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B u lle t in N o . 1628 S U M M A R IE S OF MANPOWER SURVEYS AND REPORTS FOR DEVELOPING COUNTRIES 1958-68 U.S. D E P A R T M E N T OF L A B O R 5 2 T ' r ^ J Ge or ge P. Shultz, S e c r e t a r y BUREAU OF LABOR ST AT I S T I CS Ge o f f r e y H. Moor e, C o m m i s s i o n e r June 1969 For sale by the Superintendent of Documents, U.S. Government Printing Office/ Washington, D.C. 204U2 - Price $1.75 Foreword This publication is b ased on manpower rep o rts and su rvey s p repared by consultants assign ed to developing coun tries. The rep o rts and su rv ey s w ere assem b led and sum m arized by the Bureau of L abor S ta tistic s of the U.S. Department of L abor under contract with the Agency for Inter national Development, U.S. Departm ent of State. The Bureau is indebted to many organizations whose cooperation and a ssista n c e made p re paration of this publication p o ssib le . Special acknowledgment is due to the following organizations who search ed their file s to identify and supply copies of rep o rts: International Labour Office, Education and World A ffairs,** The F ord Foundation, Governmental A ffairs Institute, and Stanford R ese arch Institute. In addition, many individuals, too numerous to lis t, aided in trackin g down fugitive re p o rts. Sum m aries of the manpower re p o rts and su rv ey s were p repared by Evelyn R. Kay, of the Office of Foreign Labor and T rad e. iii Preface F or many y e a rs manpower su rv ey s, a sse ssm e n ts, fo r e c a sts and projection s have been made in differing w ays, fo r variou s p u rp o ses, often repetitively, for many developing coun tries. R eports and su rvey s have been sponsored, supported, or conducted, by AID, its p re d e c e sso r agen cies, ILO, UNESCO, IBRD, OECD, Ford Foundation, and private contract agen cies. This work has been d iv e rse in ejq)licit objective, scope, depth, method, quality, and final utilization. P ro je c ts have focused v ariou sly on total re so u rc e s and requ irem en ts, c h a ra c te ristic s of the total manpower pool, employment and unemployment le v e ls, occupational com position, and outlook and requirem ents, so m etim es in selected occupations and c ateg o ries of sk ills and training. A prelim in ary review of AID manpower activ itie s, requested by the A dm inistrator in 1966, found that no carefu l ap p raisal of any p art of this experience had been m ade. It was not p o ssib le to find a com prehensive assem b ly of the relevant m ate rials in any central place. A s a resu lt, in M arch 1967, AID arran ged for the Bureau of L ab or S ta tistic s to collect, organize, and c la ss ify the b a sic rep o rts and su rv ey s which would meet minimum requirem ents for sy stem atic evaluation and would contribute a useful referen ce reso u rc e to the Agency’ s inform ation sy stem . C ritical exam ination of the significance, adequacy, and applications of manpower survey findings has becom e m ore im portant with growing em ph asis on a p p raisal of manpower requirem ents as a b a s is for planning of education and training p ro g ram s. Still m ore cru cial is the need fo r ap p raisal of the “ state of the a r t” in this technical field in relation to the vitally im portant employment dim ensions of economic development. The inventory presented in th is repo rt, and availability of the b a sic documents which lie behind it, furnish an im portant p artial reso u rc e for further study and evaluation, country by country, and on a com parative b a s is . Together, they constitute the fir s t n e c e ssa ry step toward analyzing manpower development and planning effo rts in developing coun tries. v Preface—Continued A word should be added regard in g the lim itations of this rep o rt and the p ro je ct which has made it p o ssib le . F ir s t, the rep o rt m akes no attempt to provide com plete coverage of the subject fo r the coun tries covered, a task which would requ ire a siftin g of the country re fe re n c e s in the b a sic docum ents and a supplem ental c an v ass of indigenous country literatu re and so u rc e s. Second, in general no linkage between the individual re p o rts and su rv ey s for a given country has been undertaken except a s the documents th em selv es rev eal this linkage. T his rep o rt re fle c ts the existin g reco rd . Its u se should advance the quest fo r b est p ractice in th is field, rev eal ste p s to be avoided or taken with sk ep ticism , and contribute to som e degree tow ard further wisdom in dealing with the im portant but elu sive manpower and employment ob jec tiv e s in the international development effort. M eridith B. Givens Agency fo r International Development U.S. Departm ent of State vi Contents Introduction.............................................................................................................................................. Page 1 A frica R e g io n a l.............................................................................................................................................. C a m e r o o n .......................................................................................................................................... C entral A frican R e p u b lic ............................................................................................................. Congo (B ra z z a v ille )........................................................................................................................ Dahomey.............................................................................................................................................. E th io p ia .............................................................................................................................................. G h an a.................................................................................................................................................. Guinea.................................................................................................................................................. K e n y a .................................................................................................................................................. Lesoth o................................................................................................................................................ L ib e r ia ................................................................................................................................................ Libya..................................................................................................................................................... M a la w i................................................................................................................................................ M a l i ..................................................................................................................................................... M orocco.............................................................................................................................................. N ig e r ia ................................................................................................................................................ R h o d e s ia ............................................................................................................................................ Se n eg al................................................................................................................................................ S ie r ra L eo n e..................................................................................................................................... Som ali R e p u b lic .............................................................................................................................. S u d a n .................................................................................................................................................. Sw aziland............................................................................................................................................ Tanzania.............................................................................................................................................. T o g o ..................................................................................................................................................... T u n isia ................................................................................................................................................ U g an d a................................................................................................................................................ 5 10 12 13 14 15 20 25 27 29 30 32 35 37 38 39 43 44 47 48 49 53 54 63 64 69 A m erican R epublics R e g io n a l.............................................................................................................................................. A rgentina............................................................................................................................................ B o liv ia ................................................................................................................................................ B r a z il................................................................................................................................................... B ritish H on d u ras............................................................................................................................ C entral A m e r ic a ............................................................................................................................ C h ile..................................................................................................................................................... C o lo m b ia............................................................................................................................................ C osta R ica ....................................................................................................................................... Dominican Republic ...................................................................................................................... E c u a d o r .............................................................................................................................................. E l S a lv a d o r ....................................................................................................................................... G u atem ala.......................................................................................................................................... G uyana................................................................................................................................................ M e x ico ................................................ 70 71 76 84 90 91 95 99 102 103 112 115 119 120 123 vii Contents—Continued Page A m erican R epublics - continued N ic a r a g u a .......................................................................................................................................... P a n a m a .............................................................................................................................................. P e r u ..................................................................................................................................................... S u rin a m .............................................................................................................................................. V e n e z u e la .......................................................................................................................................... West Indies ( g e n e r a l).................................................................................................................... J a m a i c a ......................................................... St. L u c i a ..................................................................................................................................... St. Vincent................................................................................................................................... Trinidad and T o b a g o ............................................................................................................... 125 127 131 137 138 153 154 155 156 157 E a st A sia and the P acific R e g io n al.............................................................................................................................................. B u r m a ................................................................................................................................................ China, Republic of ........................................................................................................................ In d o n e sia............................................................................................................................................ K o r e a ................................................................................................................................................... M a la y s ia ............................................................................................................................................ T h ailan d.............................................................................................................................................. Vietnam , Republic o f ...................................................................................................................... 159 160 162 168 175 178 180 191 N ear E a st and South A sia A fg h an istan ........................................................................................................................................ C e y lo n ................................................................................................................................................ C y p r u s ................................................................................................................................................ G r e e c e ................................................................................................................................................ I n d ia ..................................................................................................................................................... I r a n ....................................................................................................................................................... I r a q ....................................................................................................................................................... I s r a e l ................................................................................................................................................... J o r d a n ................................................................................................................................................. P a k ista n .............................................................................................................................................. S y r ia ..................................................................................................................................................... T u r k e y ................................................................................................................................................ 193 194 196 198 200 205 209 210 213 216 226 227 viii Summaries of Manpower Surveys and Reports for Developing Countries, 1958-68 Introduction T his collection of manpower re p o rts and su rv ey s re p re se n ts a step in AID’ S long-range goal of ap p raisin g and evaluating manpower activ ities in developing countries. E very attempt w as made to locate all A ID -sponsored manpower re p o rts and significant re p o rts p repared by other organization s. The om issio n of any AID rep o rt is unintentional and m erely indicative of the difficulty of locating and identifying elusive re p o rts. Manpower re p o rts and su rvey s m id-1968. In a ll, about 300 rep o rts this group, 226 were selected on the and satisfactio n of one or the other of selected for this inventory cover the 10-year period 1958 to were collected from variou s so u rc e s for this project. F rom b a s is of their relevance to the field of manpower development the following c rite ria : 1. They deal with the ov erall planning and implementation of a manpower development p rogram , taking into consideration the econom ic, so c ia l, and political fa c to rs in the country. 2. They provide technical a ssista n c e in sp ecific a r e a s , such a s m easurin g current or potential manpower re so u rc e s and requ irem en ts, d escrib in g techniques to make these m easu rem en ts, an alyzing educational and training institutions to m eet manpower needs, or developing job placem ent s e r v ic e s. The r e s t of the re p o rts (about 75) were not included b ecause they w ere prep ared by the countries th em selv es, rath er than by consultants, or b ecau se they did not conform to the above c rite ria . R epo rts p rep ared for developed countries o r fo r Communist countries also w ere excluded. 1 Su m m aries of the 226 re p o rts collected for this p roject are arran ged in alphabetical ord er by country within each region. They include, where p o ssib le , statem en ts on the manpower ad m in istra tive and organizational m achinery, highlights of the m issio n accom plishm ents, and m ajor reco m m endations. The su m m aries should se rv e a s a quick referen ce to manpower p ro g ram s and tech nical a ssista n c e in sp ecific cou n tries. Manpower consultants preparin g a follow-up study in the sam e country or a new p ro g ram in another, but sim ila r , country should re fe r to the full re p o rts. C opies of the rep o rts are available on a loan b a sis from the AID H istorical and Technical R eference Bran ch or from the U.S. Departm ent of L ab or lib rary . Consultants and students of manpower development will be in terested p articu larly in the selected readin gs liste d on the inside back cover of this repo rt. T hese so u rc e s were either p r e p ared o r sponsored by the Agency fo r International Development. They include technical m anuals fo r setting up and conducting manpower p ro g ram s, proceedin gs of sy m posia and sem in ars on manpower su b jec ts, and AID Manual O rd ers on strengthening labor m in istrie s and on manpower and employment development. The following tabulation su m m arize s the re p o rts, by region, of the variou s organizations resp o n sib le for their preparation: O rgan ization T o t a l........... Agency fo r In te r n a tio n a l Development........................... Education and World A f f a i r s .................................... Ford F oundation ...................... I n te r n a tio n a l Labour O f f ic e ...................................... Stan fo rd Research I n s t i t u t e ............................... United N a tio n s......................... U n iv e r s it ie s ............................. Other o r g a n iz a t io n s .............. 2 E ast A sia and the P a c if i c Near E ast and South A sia T o tal A fr ic a American R epublics 226 65 89 34 38 98 12 59 14 13 11 16 10 14 1 1 — — — 1 65 19 15 10 21 7 6 10 13 — 2 1 7 3 2 5 3 4 2 2 2 — — 2 1 A broad range of topics relatin g to manpower is covered in this collection of re p o rts. Although consultants u su ally w ere assign ed a sp ecific p ro ject, they tended to advise on se v e ra l fa cets of manpower development and planning. T h erefore, column to tals on the following tabulation differ from the preceding tabulation becau se many rep o rts contained m ore than one subject: Su b ject Assessm ent of curren t manpower s it u a t io n based on alread y a v a ila b le in fo r m a tio n .. . . Manpower surveys E stablish m en t su rveys of employment......................... Household su rveys of the la b o r f o r c e .................... P r o je c tio n s o f manpower re so u rc e s and r e q u ir e ments .......................................... Employment se r v ic e a c t i v i t i e s ............................... Education and tr a in in g program s.................................... Manpower plan n in g, ad m in is tr a tio n , and o r g a n iz a tio n ........................... S t a t i s t i c a l s e r v ic e s and o r g a n iz a tio n .................. S t a t i s t i c a l te c h n iq u e s......... A fr ic a American R epublics E ast A sia and the P a c if i c Near E ast and South A sia 28 19 9 13 25 12 8 6 1 2 1 3 20 12 11 7 14 25 9 10 38 33 20 10 24 23 15 13 4 2 7 4 4 7 2 4 3 A frica Regional Report on M iddle-Level O fficials in A frica (1963; 39 p ages and 8 sections) P rep ared for UNESCO by D erek T. Healey This is a collection of re p o rts on 10 A frican cou n tries. The rep o rts re la te to the supply of and demand fo r m iddle-level personnel in the so cial sc ie n c e s. The an aly sis is b ased on man power su rv ey s already c a rrie d out in these countries and on other inform ation that m ay be available. In addition, an analytical description of the fa c ilitie s fo r training m iddle-level p erso n nel in each country is provided. The coun tries included in the repo rt are Ghana (50 p ag es), N igeria (60 p ag es), Rhodesia and N yasaland (46 p ag es), Tanzania (15 pages), Kenya (15 p ag es), Uganda (12 p ag es), Sudan (14 p ag es), and M ali (in French, 28 p ag es). The section s on M adagascar and Senegal a re m issin g. The following is a sum m ary of the con clu sio n s reached by the consultant: 1. Only Ghana has a functioning Manpower Unit. 2. No worthwhile supply and demand e s ti m ates or fo r e c a sts of m iddle-level manpower are available. 3. Techniques of collecting education and occupational data should be im proved and ex panded. 4. Employment Exchange functions should be expanded to meet dem ands of labor and em ployers. 5. Occupational and vocational g u i d a n c e counseling should be initiated. 6. More flexibility should be developed in educational and training institutions to develop a well educated and adaptable labor force. 7. Standards regard in g teach ers of second ary schools should be establish ed and main tained. 5 A frica Regional French Education P olicy in Sub-Saharan A frica and M ad agascar (1965; 38 p ag es and 2 appendixes) Education and World A ffairs: Study Committee on Manpower Needs and Educational C apab ilities in A frica, p repared for AID Review s the French a ssista n c e p rogram in education and in technical a ssista n c e a s of 1964. USAID is advised to follow the guidelines estab lish ed by the French. O bservations of French a ssista n c e 1. In the sub-Sah aran and M a d a g a s c a r reg io n s, about 50 percent of the 8,500 French aid personnel were in education, concentrated la rg ely in secondary education. 2. T here w ere v ery few technical a ssista n c e “ ad v iso ry " personnel in A frica. M ost personnel were in “ active" function c ateg o ries such a s d o cto rs, en gin eers, and government adm ini str a to r s. 3. French policy favored reducing its perso n nel in “ active" functions by m eans of in creasin g the output of local high-level manpower through secondary and un iversity p ro g ram s. 4. French policy favored strengthening lo cal educational sy ste m s and training cen ters for form ation of “ c a d r e s" where needed, rather than creatin g sp ecialized educational schools in the French pattern. 2. Secondary education is weighted heavily toward c la s s ic a l c u rric u la rath er than the tech nical “L y c e e ." 3. The proposed training cen ters for fo rm a tion of c a d re s are m ostly in the p ro ject stage. French education a ssista n c e policy 1. The French have a tim etable of 5 to 8 y e a rs to produce w ell-trained c a d re s needed to rep lace their expatriate personnel in educa tion and government se rv ic e . 2. The French are rationing a ssista n c e funds to education by giving p referen ce to p ro fe s sional and technical sch ools, adult agricu ltu ral sch ools, and p rim ary schools adapted for ru ral a r e a s. USAID education a ssista n c e policy 1. Should be p art of integrated program . 2. Should grant sch olarsh ip only for graduate W eaknesses in educational sy stem work o v e rse a s. 3. Should not try to tra n sfe r U.S. culture or 1. M ass p rim ary education reach es r e la institutions but should cooperate with French in tively few. Only a few people get a good educa their general approach to education and man tion. power development. 6 A frica Regional Study of Manpower N eeds, Educational C apab ilities, and O v erseas Study (1965; 48 pages) Education and World A ffairs (Report No. 1): Study Committee on Manpower Needs and Educational C apabilities in A frica, prep ared for AID Sum m ary repo rt of the general c h a ra c te ristic s and d e v e l o p m e n t s observed in nine A frican countries: Ethiopia, Guinea, Kenya, L ib e ria , N igeria, Sudan3 Tan zania, T un isia, Uganda. T his rep o rt su m m arize s observation s and recom m endations of a general nature a s they apply to all or m ost of the countries surveyed. D etailed su rv ey s were made in nine A frican countries: Ethiopia, Guinea, Kenya, L ib e ria, N igeria, Sudan, Tanzania, T un isia, and Uganda. Seperate re p o rts for each of these countries have been p rep ared 1 / and provide data on the following topics: 1. An a sse ssm e n t of availab le data concern ing high-level manpower needs. 2. An ap p raisal of the cap ab ilities of indige nous A frican educational institutions to m eet manpower needs. 3. A su rvey of opportunities for study over s e a s a s they relate to high-level manpower needs. G eneral O bservations 1. M ost high-level manpower is employed in Government or education se r v ic e s, and m ost of these personnel are non-A fricans. 2. Only N igeria, Tanzania, and Kenya have p r o d u c e d reason ably sa tisfa c to ry manpower an aly ses. 3. Effective manpower planning machinery has been developed only in N igeria and Tanzania. 4. All counties face sh ortages in high-level and m iddle-level manpower in the scien tific and technical field s. General recom m endations 1. AID should strengthen re se a r c h capabil itie s of u n iv ersities in the expectation of a feed back to Government c ir c le s. 2. AID s h o u l d provide key operational personnel in addition to technical advice during the period of rapid A fricanization. 3. AID should a s s is t educational planning by making sk illed personnel available for planning and adm inistrative positions in Government agencies and in educational institutions. 4. AID should develop a com prehensive ap proach to educational planning by giving m ore attention to organization of an ov erall human reso u rc e development strategy . 1/ See individual country for sum m ary. 7 A fric a Regional E a st A frica: Study of Manpower N eeds, Educational C ap ab ilities, and O v ersea s Study (1965; 183 pages) Education and World A ffairs (Report No. 3): Study Committee on Manpower N eeds and Educational C apab ilities in A frica, prepared for AID T his study c o v ers three E a st A frican Countries: Kenya, T anzania, and Uganda. The educational and manpower p l a n n i n g organization s and p ro g ram s in each country a re analyzed and recom m endations a re made on the needs of individual cou n tries. Recom m enda tions cover each educational level b ased on su rv ey s of manpower needs. An excellent bib liography l i s t s all documents to 1965 relatin g to econom ic, manpower, and educational develop ment. Kenya—B a sic guidelines fo r Kenya’ s devel opment a re contained in the Development Plan for 1964-70. The 1965 Manpower Survey 1 / provides the m ost recent data on curren t em ployment and projection s of future requirem ents. To m eet these n eeds, Kenya m ust develop its teach er and technical educational fa c ilitie s and continue to rely on o v e r se a s train in gfor develop ing som e of these sk ills. T anzania—Manpower planning i s relativ ely advanced, both in the sy stem atic an aly sis and in 8 the establishm en t of effective adm inistrative m achinery. A number of su rv ey s which provide excellent occupational information have been prepared . The need to train g re a t num bers of high- and m iddle-level manpower will place an exceedingly heavy burden on the country’ s educational institutions, but the goal of se lfsufficiency m ay be reached by 1980. Uganda—Development has b e e n impeded se rio u sly by a sh ortage of trained manpower. No manpower su rvey is available com parable with those of Kenya and T anzania. Indications a re that m iddle-level rath er than high-level manpower is an im m ediate need. According to variou s stu dies, this need will not be met by 1971. JL/ See page 28. A frica Regional E a st A frican Manpower Utilization Study (1965; 59 p ag es and 6 appendixes) A frican -A m erican Institute rep o rt, prepared for AID Sum m ary of the problem of human re so u rc e development and utilization in E a st A frica. The m ain purpose of this study is to reco m mend m easu res to in cre ase the rate of return of A frican students from the United States and to m axim ize their productive rein tegration into their home countries. Many E a st A frican students are attending u n iv ersities and high sch ools in the United States and Canada. An attempt w as made to estab lish a lis t of students fo r each country. Kenya has approxim ately 1,200 students in the United States and Canada, o r 40 percent of total students; Tanzania, about 300 students; and Uganda, about 400 students. C ritica l prob lem s which will affect the tim ely return and m axim um utilization of these students by their governm ents were observed. F o r ex am ple, o v e r se a s study p ro g ram s do not m eet school p rio rity manpower needs of E a st A frica; coordinated guidance p ro g ram s a re lacking, p artic u larly among “unsponsored studen ts;” and, to a ss u r e return of students to resp o n sib le p o si tions, effective recruitm ent and p re-retu rn job placem ent proced u res are lacking. Recom m endations for alleviating and p r e venting som e of the c ritic a l bottlenecks in man power development and utilization cover the following topics: 1. A dm inistrative support—im provem ent in student recordkeeping proced u res. 2. A frican training se m in a rs—coordination between a d v ise rs in New York and in E a st A frican coun tries. 3. Student se m in a rs— sp ecialized training p ro g ram s to supplement academ ic co u rse s while studying abroad. 4. Guidance c o u n s e l i n g and inform ation se r v ic e s. Monthly rep o rts have been p rep ared by the A frican-A m erican Institute on manpower needs by detailed occupation in Kenya and in Tanzania. 9 A frica Cam eroon An Inter-O rganization M ission Survey of Manpower (In French; 1962; 136 pages) ILO Report to the Government of the F ed eral Republic of Cam eroon; O IT /T A P /C am eroo n /R .3; Paul C asselm an (Canada); John Andoff (Canada); M arcel F ab ri (Belgium) A ssessm en t of the manpower supply and demand, and recom m endations on im proving su rvey techniques and training fo r sk ills. The organizations involved in the manpower a sse ssm e n t su rvey included the International Labour O ffice, variou s o ffices of the United Nations (FAO, UNESCO), International Civil Aviation, the World M eteorological O rganiza tion, and oth ers. In ord er to obtain inform ation on the work fo rce , a pilot study of 40 estab lish m en ts which em ployed 10 w orkers or m ore w as conducted. However, becau se of lack of qualified p erso n nel to com plete the survey, the r e su lts are not included in this rep o rt. Manpower inform a tion w as obtained from se v e ral other so u rc e s to develop the occupational com position and needs for each m ajor economic activity. Conclusions 1. Information fo r developing a national econom ic and manpower development plan was lacking. 2. The institutional stru ctu re was rigid , which im peded so cial and econom ic changes. 3. W orkers were in stilled with traditional valu es and resen ted change. 10 4. The traditional educational sy stem failed to p rep are w orkers for the world of work. 5. Rush of ru ral m igran ts to urban a r e a s tran sform ed ru ra l underemployment into urban unemployment. 6. Educated young people are needed in the ru ral a r e a s to im prove agricu ltu ral production. Recommendations 1. Information on population, labor fo rce, and trainin g fa c ilitie s should be collected a s soon a s p o ssib le . D etails of the requ ired man power sta tistic a l data are explained. 2. Governmental organizations c o n c e r n e d with labor and labor problem s should be e s tablished at the national level and expanded into local a r e a s . 3. Education and training should be adapted to curren t needs, such a s agricu ltu ral techniques in farm a r e a s , introduction of vocational educa tion to train for m iddle-level occupations, educa tion for women. 4. Other recom m endations deal with methods of checking the ru ral-to -u rb an m igration. A frica Cam aroon O rganization of the Employment Serv ice (In French; 1962; 36 p ag es and 3 tab les) ILO Report to the F ed eral Republic of Cam eroon; O IT /T A P /C am eroo n /R .4; R oger F arin e, (Switzerland) D esc rib e s manpower and employment prob lem s, and recom m ends the extension and im provem ent of the Employment Serv ice. P o litical in secu rity and economic slack ag gravated the problem of unemployed urban w orkers. In Douala alone, 20,000 w orkers, rep resen ting 17 percent of the population, w ere unemployed. P o ssib ilitie s of employment in the p riv ate sec to r were low, but the m ilitary , the civil se rv ic e , and u tilities (railro ad s) w ere in a position to cre ate job s. Current Employment Serv ice activ ities w ere inadequate becau se of lack of personnel and funds to operate efficiently. T raining fa c ilitie s also were organized inade quately and w ere not p repared to train for the modern economy. Some appren tices, however, were provided on-the-job training to m eet the needs of individual estab lish m en ts. A survey in two provin ces w as conducted; it covered 400 estab lish m en ts that employed 10 w orkers or m ore. The following observation s were made: 1. The employed work force is stab le, except among unskilled w orkers. 2. E m ployers w ere so licited daily by job se e k e r s. 3. The g re a te st manpower needs were for sten ographers and m echanics. Some idea of future requ irem ents for man power was gleaned from the su rvey but not with any certainty. Em ployers lacked confidence in projectin g their requirem ents becau se of the un stable economic and political situation of the country. A pilot Employment Service office w as e sta b lished in Douala to replace the previou s un organized activ itie s. Its fir s t duties w ere to estim ate labor force c h a ra c te ristic s, obtain job vacancy inform ation, evaluate manpower needs in each industry, and to determ ine the manner in which to m eet these needs. Recom m endations 1„ The M inistry of L abor and Social Law s should collaborate with other public and priv ate organizations to prom ote a plan for im proving ru ra l labor conditions. The urban unemployment problem can be solved only by finding m eans of encouraging e x c e ss labor to rem ain on the fa rm s. This re su lt can be achieved by im proving crop production (cocoa and coffee) and by developing cottage in d u stries. 2o The M inistry should encourage indus trialization by studying c h a ra c te ristic s of av ail able labor supply and by training qualified manpower to m eet industry needs. 3. The Government should con sider the E m ployment Service a s its principal instrum ent for the development and training of manpower. 11 A frica C entral A frican Republic The Demand fo r and T raining of M iddle-Level and Su pervisory Personnel (In French; 1962; 40 p ag es and annex) ILO Report to the Government of the Central A frican Republic; O IT /T A P /C e n trafric ain e /R .l; Paul Andre Bonnefoy A ssessm en t of middle-! m eeting training needs. Out of a population of 1.2 m illion, about 480,000 men and women were in the labor fo rce , m ostly in agricu ltu re, hunting, and fishing. Only about a tenth of those in the labor fo rce w ere sa la rie d ; the rem ainder were p rim arily self-em ployed and fam ily w orkers. E stim a te s of available manpower a re b ased on incom plete inform ation of the population, labor fo rce , industry and occupation, and s a l a r ie s of w orkers. M iddle-level and su p erv iso ry occupational requ irem en ts a re b ased on an anal y s is of the m ajo r econom ic se c to r s. The types of training and educational fa c ili tie s alread y available are d iscu sse d . A lso d is c u sse d a re the c u rric u la offered, number of grad u ates and en ro llees, and budget allocation. An an aly sis of the effectiven ess of the educa tional and training output relativ e to the needs of the variou s economic se c to r s is made. 12 manpower and methods of Recommendations 1. T raining p ro g ram s should be im proved and expanded to m eet the needs of a m oderniz ing economy. 2. The se r v ic e s of the Com m ission on Tech nical T raining should be utilized. 3. The Center fo r L ab or Studies should p r e pare statem en ts on occupational requirem ents. 4. The A gricultural School should be guided by a C om m ission represen tin g lab o r, m anage ment, and independent farm w orkers to p ro duce higher sk illed fa rm technicians who, in turn, can train oth ers. 5. The rem aining recom m endations concern v ariou s types of training p ro g ram s fo r develop ing sp ecialized m iddle-level personnel for each economic activity. A frica Congo (B razzaville) T raining and Improvement of M iddle-Level Personnel (In French; 1962; 35 p ag es and 2 annexes) ILO Report to the Government of Congo (B razzav ille) O IT/TA P/Congo (B ra z z a v ille )/R .l; Paul Bonnefoy Review of available information on the labor force and on vocational education and training. The purpose of the m ission w as to a s s e s s available manpower inform ation and technical training in ord er to aid the Government in plan ning and organizing a vocational educational sy stem fo r the development of a qualified labor fo rce. Population w as estim ated to be 800,000, of whom 358,000 were econom ically active. About three-fourth s of the active population were en gaged in agricu ltu re. A la rg e m ajority of the high- and m iddle-level wage and sa la r y w orkers w ere non-Congolese. About tw o-thirds of the school-age population attended p rim ary sch ools, but the proportion of students in secondary schools w as very low. Technical t r a i n i n g attracted relativ ely few people. Information regard in g output and types of c o u rse s of agricu ltu ral schools is provided. In addition, there are two higher level schools: 1. L y se e Technique de B raz zav ille is fa sh ioned after the French sy stem and is divided into industrial and com m ercial section s. About 500 students attend the 6-y ear program . 2. Center for A dm inistrative and Technical Studies of the Institute of Higher Studies (attached to the U niversity of Bordeaux) conducts 2-y ear training p ro g ram s for t h o s e preparin g for m iddle-level technical and adm inistrative oc cupations. Vocational training is conducted by se v e ra l private and quasi-public fir m s, such a s the C om m ercial Company (50 technicians), National Bank (cleric al and stenographic train e es), A irFrance (7 tra in e e s), Shell P etroleum (8 depot ch iefs). Rec ommendations 1. Republic of Congo should rep lace foreign w orkers a s soon a s p o ssib le. 2. T raining should be expanded and im proved to p rep are local w orkers to rep lace foreign w orkers. 3. Employment Service functions should be initiated fo r the collection and an aly sis of man power data, vocational guidance, placem ent se r v ic e s, etc. Appendix I (26 pages) d e sc rib e s availab le inform ation on manpower development and vocational training in the country. Appendix II (26 pages) contains all the available sta tistic a l data on m a n p o w e r , education, and related inform ation. 13 A frica Dahomey The Employment Situation and the O rganization of the Employment Service (In French; 1962; 44 pages) ILO Report to the Government of Dahomey; O IT /T A P /D ah om ey /R .l; Robert Andrez (France) A review of available manpower data and a d iscu ssio n of manpower problem s. The purpose of this repo rt is to review the existin g Employment Serv ice functions and to make recom m endations regard in g its im provem ent and expansion, on the b a s is of an an aly sis of curren t and projected manpower needs. More than half of the 2 m illion people in Dahomey are in the labor fo rce . Of this total, about 25,000 p erso n s are wage and sa la r y w orkers. The economic and financial asp ects of the economy are d escrib ed a s they relate to the utilization of available manpower. P rob le m s of unemployment, underemployment, ov er crowding in the urban a r e a s, and related topics are d isc u sse d in detail. The prin cipal se r v ic e s of the Manpower Office (Employment Service) are to issu e work p e rm its, to place w orkers in job s, and to keep re c o rd s of employment and unemployment. An attem pt has been made to m aintain an inventory of all w orkers with a sk ill or pro fessio n , but these re c o rd s are incom plete. 14 Recom m endations Im m ediate action recom m endations c all for an expansion of placem ent activ ities, com pulsory announcement of job vacan cies in establishm en ts that employ 20 w orkers or m ore, requirem ents for State and quasi-public operations to hire through the Employment Serv ice, and the in itia tion of vocational guidance and selection activi tie s. Recom m endations concerning the collection of sta tistic a l data include periodic re p o rts of em ployers on the manpower situation, so cial secu rity re c o rd s fo r c lassific atio n of industry, and the development of an occupational c la s sification sy stem . Other recom m endations covered item s such as the creation of a com m ittee to c a r ry out ILO Convention No. 88 (Employment Service activ itie s), a l l o c a t i o n of sch o larsh ip s, and creation of a com m ittee to regulate the employ ment of foreign manpower. A frica Ethiopia A p praisal of P roposed Manpower Survey (1960; 10 p ag es and 15 tables) Clinton A. Johnson, AID Manpower Consultant A lternative p ro p o sals are su ggested in place of the proposed high-level manpower survey. A vailable data on employment are m eager and unreliable. The M inistry of C om m erce, Industry, and Planning collected sta tistic s on employment, w ages, and occupational distribution in m anufac turing and som e retail estab lish m en ts. Em ploy ment inform ation is available from qu asi-gov ernm ent institutions, such a s the Bank of Ethiopia, but not from the Im perial Ethiopian Government (IEG), the l a r g e s t em ployer of trained manpower. Some inform ation on educa tional and training fa c ilitie s is also available from the M inistry of Education. In all, about 30 documents w ere review ed. D isc u ssio n s with government o fficials indi cated a manpower shortage in high-level occu pations, esp ecially in the adm inistrative field. T each ers and doctors are also in short supply. However, there is danger in overestim atin g requirem ents b ased on need, sin ce the ability of the IEG to c a r ry out economic expansion p ro p o sa ls depends on its effectiven ess in collecting tax revenues. In the private se c to r, industrial development is handicapped by lack of capital and incentives to foreign in v esto rs. Hence, the F iv e -Y ear Plan fo r 1957-62, drawn up by Yugo sla v technicians, which c a lls for 140,000 new nonagricultural job s, is considered a “wild d re am .” Recom m endations Instead of the proposed high-level manpower survey, a manpower sp e c ia list should be added to the USOM/Ethiopian Staff to c a r ry out the following task s: 1. Continue the an aly sis of manpower supply and demand. 2. Prom ote a labor m arket an aly sis program in the Central Statistical Office of the M inistry of Com m erce and Planning. 3. Explore the p o ssib ility of organizing a National Placem ent Exchange for p ro fessio n al, adm inistrative, c le r ic a l, and sk illed personnel. 4. T rain personnel in the M inistry of Com m erce and Planning to operate the labor m arket an aly sis program . 5. Develop a manpower survey suitable for planning pu rp o ses. 15 A frica Ethiopia Ethiopian T raining P o lic ies and Their Relationship to Unemployment (1961; 5 pages) Robert W. Landry, USOM /Ethiopia T raining O fficer Recom m endations for the establishm en t of adm inistrative m achinery for manpower planning, training, and u tiliza tion. The sh ortage of trained human r e so u r c e s gen erally is conceded to be a m ajo r problem faced by Ethiopia in its program for a c c e le r ated econom ic development. D espite the o v er all sh o rtag es, som e s e c to r s of the economy a re faced with an overabundance of trained man pow er. To alleviate the prob lem s of th is p a r a doxical unemployment and to a ss u r e that future training of Ethiopia’ s manpower p a r a lle ls its req u irem en ts, it is n e c e ssa ry that Ethiopia develop an o v erall manpower schem e. It is recom m ended that a Committee of L ab or Utilization be form ed within the Im perial Ethio pian Government to be resp o n sib le fo r the devel opment of policy concerning the planning, train ing, and utilization of Ethiopia’ s manpower. R espon sibility fo r the implementation of Com m ittee policy, a s well a s technical and ad m in istrative m atte rs, should be vested in a 16 D irectorate G eneral of L ab or Utilization who is im m ediately subordinate to the chairm an of the Committee. During the initial stag e, the organization should concentrate on surveying presen t trained manpower r e so u r c e s; surveying and extrap olat ing trained manpower needs; and acting a s the Placem ent Exchange Center fo r all technical, m an agerial, teaching, c le r ic a l, and p ro fessio n al personnel. At such tim e a s a stron g central Ethiopian economic development agency is activated, the L abor Utilization Committee should be in a position to a s s is t in the a r e a s of developm ental planning, manpower fo recastin g , and educational and occupational guidance. (Sum m ary prep ared by the author of th is report.) A frica Ethiopia Ethiopia’ s H igh-Level Manpower—A n alysis and P rojectio n s (1964; 74 p ag es and 11 tables) Arnold M. Zack, U.S. Fulbright P r o fe sso r, p rep ared for the Haile S e la ssie I U niversity Manpower supply and demand are projected to 1972 and an occupational outlook statem ent is presented for each m ajor high-level occupation. Current and future estim a te s of high-level and skilled manpower w ere not available to a s s is t the Planning B oard in determ ining whether the variou s p ro je c ts of the 1962-67 Development Plan would have the n e c e ssa ry manpower to c a r ry them to fruition. The F iv e -Y ear Plan estim ated total employment requirem ents for each econom ic secto r but, sin ce detailed in for mation w as lacking, no occupational req u ire m ents were made. It w as n e ce ssary , th erefore, to analyze currently employed manpower and to make projection s of occupational needs. An i n v e n t o r y of high-level (universitytrained) manpower w as constructed by m eans of a survey of all fir m s that employed 50 w orkers or m ore and of sm all firm s that had c lu ste rs of p ro fe ssio n a ls. A total of 125 establishm en ts w ere interviewed; they represen ted 60 percent of total nonagricultural employment and 90 p e r cent of the nation’ s high-level employment. Twoth irds of the 5,000 high-level personnel covered in this survey were Ethiopians. A combination of c la s s ic a l projection meth ods w as used for estim atin g high-level man power demand for 1972: projection of current distribution of employment, re g re ssio n an aly sis, projection of production g o a ls, and em ploy ers’ estim ates of needs. W astage w as calculated by using the UN Study of Age and Sex P attern s of M ortality. B ased on these p rojectio n s of demand and on an an aly sis of the educational fa c ilitie s to train enough people to m eet this demand, e s t i m ates that the 1972 supply would fall fa r short of its goal w ere m ade. T h erefore, it would be n e ce ssary to u se m iddle-level manpower to fill som e of the gap s and to continue hiring foreign w orkers. Recom m endations 1. A m iddle-level m a n p o w e r su rvey is needed a s a complement to the high-level man power survey. 2. Manpower stu dies of variou s types should be continued by the L ab or Departm ent. 3. Employment Service functions should be introduced to aid in m eeting em p loy ers’ needs. 4. The U niversity should adapt its c u rricu la to m eet anticipated manpower demand. 17 A frica Ethiopia Study of Manpower N eeds, Educational C apab ilities and O verseas Study (1965; 49 pages) Education and World A ffairs (Report No. 6): Study Com m ittee on Manpower N eeds and Educational C apab ilities in A frica, prep ared for AID An a sse ssm e n t of available manpower data and an a p p raisal of educational cap ab ilities. The Im perial Planning B oard is the p rin ci pal governm ent planning agency through which all development p ro je c ts are channeled. E x tern al aid is channeled through the Econom ic and Technical A ssistan c e B oard in the M inis try of Finance, but little effort has been made to coordinate this foreign aid with the Second F iv e -Y ear Plan (1962-67). Information on man power r e so u r c e s and requ irem ents w as devel oped through se v e ra l stu d ies by UNESCO and by P r o fe sso r Zack (see preceding sum m ary) but they lacked the occupational detail n ece s s a r y for educational planning. AID currently is negotiating fo r a study on the overall a s s e s s ment of future manpower requ irem ents. D ram atic strid e s have been made in educa tion, despite an overcentralization of adm inis tration and a lim itation of funds fo r educa tion. W eaknesses of the sy stem , a s pinpointed by the 1962 UNESCO study, still ex ist, such a s the sm all proportion of school age children in school (5.5 percent), the high dropout rate (50 percen t between g rad e s 1 and 2), poor geo graphical distribution of sch o o ls, low teach erpupil r a tio s, low p ercen tages of g ir ls attending sch ools, and poor teach er training. P rio rity needs should be integrated in AID’ S own development strate gy fo r Ethiopia. Con tinuous consultation with appropriate Ethiopian 18 agen cies is n e c e ssa ry to re v ise the strate gy periodically. Although existin g stu d ies fail to provide occupational needs, certain p rio rity needs can be identified e asily ; sp ecifically , secondary school teach ers government adm in is tra to r s, agricu ltu ral technicians, and m an agers and sk illed w orkers for manufacturing indus tr ie s. Recom m endations 1. A com prehensive manpower su rvey is needed. 2. New manpower planning m achinery should be encouraged. AID should provide a d v ise r s to coordinate e ffo rts of the proposed Manpower R ese arch and S ta tistic s Section of the L ab or Department and the Interdepartm ental Manpower Information A dvisory Com m ittee. 3. AID should a s s is t in the recruitm en t and training of governm ent em ployees through the participan t training p rogram . 4. A ssistan c e to secondary education and teacher training should be continued by the U niversity of Utah. 5. High p rio rity should be assign ed to in sti tutional development at the university level. 6. R egistration of o v e rse a s students should be estab lish ed . A frica Ethiopia A Manpower Strategy for Ethiopia (1966; 79 pages) E li G insberg (U.S., Columbia University) and H erbert A. Smith (Government of Isra e l), AID Manpower Consultants A com prehensive study of the variou s fa c to rs affecting manpower development in a modern economy. The Ethiopian Government estab lish ed a Na tional Manpower A dvisory Committee in the M inistry of National Community Development a s a re su lt of the recom m endations of the Education and World A ffairs Com m ittee rep o rt. (See p re ceding sum m ary.) T his study is an outgrowth of the C om m ittee’ s recom m endations. Information on manpower supply and demand cam e from v ariou s so u rc e s, such a s the 1955 cen sus of population, the Planning B oard, edu cational institutions, and conversations with knowledgeable people. The population figure is around 2.5 m illion, of which 6.7 percent is urban. The b e st estim ate of literac y in the country a s a whole p la c e s it in the 5 to 7 percent range. L ite rac y in urban a r e a s is higher; 52 percent of the m ale population 10 y e a rs and over are literate. The only p ro sp ect for a substantial r is e in general literac y hinges on an expansion of the educational sy stem in ru ra l a r e a s. The Ethiopian Government is the prim e em ployer of trained manpower—about 95 percent of all college-train ed people are in the govern ment se c to r. T h erefore, the m ost important determ inant of future demand for trained man power will be the rate of growth in government expenditures. D ifficulties are em erging in find ing the right balance between p ro fessio n al and su b profession al manpower. In num erous c a s e s , it w as observed that the high-level p rofession al w as underutilized becau se he had to spend a great portion of his time in activ ities usually a s signed to technicians. These and other strate gic manpower iss u e s are d iscu ssed in full. The educational output at each grade level was a s s e s s e d for each year since 1950. Enrollm ent at the lower g rad e s h as expanded rapidly, but the dropout rate rem ain s high. Only about 0.5 percent reach the fir s t year of college and fewer than one-fourth of these graduate. Recom m endations cover every facet of a manpower development and utilization program . The following are a few exam ples: 1. T eacher training in stitutes should be e s tablished and supplemented by P eace C orps volunteer teach ers. 2. C ontracts with foreign firm s should r e quire that Ethiopians be trained for all sk ill le v els. 3. Government s a la r ie s should be independ ent of university d eg rees held; rath er, a c a re e r sy stem b ased on m erit should be developed. 4. A ru ra l educational sy stem should be ex panded and broadened in ord er to develop a more productive ag ricu ltu ral society. 19 A frica Ghana Development of an Employment Information P rogram (1958; 26 pages) ILO Report to the Government of Ghana; IL O /T A P /G h an a/R .2; Knut P alm stro m (Norway) A repo rt on the curren t so u rc e s of employment inform a tion, the conduct of an establishm ent survey, and p ro g ra m s fo r continuing and im proving the employment inform ation program . A s a whole, ex istin g sta tistic a l data on man power were u nreliable or out of date. The fo l lowing a re the two m ain so u rc e s of inform ation: Manual of Instruction s, which w as distributed to the P E C ’ s. Conclusions and Recom m endations 1. The O ffice of the Government Statistician collected by m ail annual and q u arterly data on em ployees in private nonfarm estab lish m en ts. The r e su lts gen erally w ere published two y e a rs late; no attem pt at an aly sis was m ade. 2. The 18 Public Employment C en ters (PEC) subm itted monthly sta tistic a l re p o rts to the Labour D epartm ent on unemployment, vacan c ie s, and placem ents. The law req u ired that these data be analyzed to provide general employment m arket inform ation. However, no an aly sis or a p p ra isa l of the employment situation w as being attem pted. The consultant introduced se v e ra l fundamen tal changes in the method of operating the P E C ’ s in o rd er to im prove their efficiency and th ere by provide reliab le and m ore useful rep o rts on lo cal employment m arket conditions. To con soli date these im provem ents, he prep ared a new 20 The experience of the consultant confirm ed the view that existin g se r v ic e s could provide a so lid foundation on which to sta r t building an employment inform ation p rogram . The im prove m ents initiated by the consultant in the adm inis trativ e organization and in technical competence of the o ffic ials concerned should be considered a s only the fir s t stag e . C onsiderable further development will be needed over the coming y e a r s before the p ro g ram will be providing the full range of inform ation n e c e ssa ry fo r the form ulation of manpower policy and before the country will be in a position to make full u se of the inform ation so provided. D etailed recom m endations on adm inistrative is s u e s and technical a sp e c ts were m ade. The recom m endations relate to developm ents which appear p racticab le in the next few y e a rs. A frica Ghana Manpower P rob lem s in Ghana’ s Econom ic Development P ro g ram (1959; 3 p ages and 4-page attachment) Robert L . Thom as, Consultant, The F ord Foundation This memorandum c o n sists of recom m endations and con clu sion s regard in g a manpower pro g ram fo r Ghana b ased on d isc u ssio n s with high-level o ffic ials. In a memorandum to government o ffic ials, the consultant lis t s h is ob servation s on the types of manpower inform ation needed fo r Ghana’ s F iveY ear Development Plan (1959-64). Although step s had been initiated to estab lish a labor m arket inform ation program (see preceding page), it m ay be se v e ral y e a rs before the program is fully functioning. To bridge this gap, it is recom mended that a manpower su rvey be conducted along the lin es of a sim ila r one m ade in Uganda by the consultant. (See page 69.) He su g g e sts that the Ford Foundation p r o v i d e a con sultant for this p r o j e c t . (See following two p ag es.) The Government of Ghana should go beyond taking a one-tim e manpower survey and make plans to estab lish a perm anent organization for manpower development. Several p ag es of notes on the subject of a manpower p ro g ram are at tached. The m ajor topics cover the ad m in istra tive and organizational m achinery required for a manpower development program and the prin cipal kinds of sta tistic a l data n e c e ssa ry for man power planning. 21 A frica Ghana Survey of H igh-Level Manpower in Ghana (1960; 17 pages) Edward D. Hollander, Consultant, The F ord Foundation T h is report is a direct outgrowth of the recom m enda tions made p reviou sly by a Ford Foundation consultant. (See preceding sum m ary.) The purpose of the m issio n w as to conduct a su rvey of high-level manpower and to reco m mend organization and procedure fo r an effective manpower development program . The survey w as to provide a benchm ark fo r projectin g supply and demand of highly trained people. It w as hoped that the survey would a lso serv e a s a fir s t step toward the establishm ent of a manpower organ i zation. During the 1950’ s , the economy grew 5 p e r cent a year, about twice a s fa st a s population. Lacking official e stim ate s or projectio n s, the consultant made h is own assum ptions that the rate of growth fo r the 1960-65 period would con tinue at the sam e pace. Separate assum ptions were made regard in g the im pact of the projected Volta R iver P ro jec t, in accordance with plans subm itted by en gin eers from K a ise r Aluminum. The su rvey covered over 200 establish m en ts in both public and p riv ate se c to r s of the economy, which rep resen ted about 90 percent of nonfarm wage and sa la r y and government employment. Among the 241,000 em ployees covered, about 54,000 were working in 120 high-level adm inis tra tiv e, p ro fessio n al, technical, and skilled c r a fts occupations. 22 P rojectio n s of high-level manpower req u ire m ents indicate a net in cre ase of 39 percen t over the 1960-65 period. R eplacem ents for death and retirem en t bring this figure up to 62 percent. R equirem ents a re la r g e st among p rim ary school teach ers and in the sk illed manual occupations; but secondary school teach ers and ph ysician s will be the m ost difficult to find. The m ost se rio u s manpower problem is the underutilization and low productivity of the labor fo rce . Capital investm ent and sp read of tech nology eventually will im prove underemploy ment, esp ecially among those in agricu ltu re and trad e. Low productivity, resu ltin g p rim arily from poor nourishm ent and endemic illn e ss, can be alleviated through vigorous national p ro g ram s to in cre ase food production and to extend public health se r v ic e s. Recom m endations cover the p roced u res for: 1. E stab lish in g a manpower organization. 2. Recruiting, training, and utilizing Ghana ian s. 3. Introducing an institutional b ase fo r man power p ro g ram s. 4. Developing a program for manpower in form ation and re se a rc h . A frica Ghana Survey of H igh-Level Manpower in Ghana (1960; 62 pages) Robert D. Loken, Manpower A dv iser, The Ford Foundation Final repo rt of the 1960 (See precedin g sum m ary.) The findings of the 1960 su rvey are describ ed m ore fully in this final repo rt. There are som e sm all d iscrep an cies in data between the two re p o rts but not enough to alte r the conclusions and recom m endations. T ab les on curren t occu pational vacan cies and projected needs are provided. P rob lem s of sh o rtages and anticipated supply in each of the m ajo r occupations are d isc u sse d . Ghana can draw on three b a sic so u rc e s of supply to m eet its high-level manpower req u ire m ents: 1. Those employed now—By upgrading those alread y in high-level occupations, m ost of the requirem ents for additional personnel will be m et by 1965. Furtherm ore, if only 5 percent of the la rg e pool of unskilled labor w ere trained fo r sk illed trade occupations, m ore than 10,000 em ployees would be added to the high-level segm ent by 1965. 2. The educational sy ste m —Schools and co l le g e s will furnish about 25,000 additional p erso n s to the high-level labor fo rce . Vocational guidance Ghana Manpower Survey. should be provided to middle and secondary school le a v e rs; these are the alm o st exclu sive source of Ghana’ s future high-level manpower. An inventory of personnel in training at technical sch ools, u n iv ersities, and on-the-job is p ro vided. 3. Imported personn el—The u se of o v e rse a s personnel should be lim ited to urgent needs only. M ost ex p atriates can be hired on con tract b a sis for sh o rt-term assign m en ts. Recom m endations include the creation of a Manpower Com m ittee represen tin g all se c to r s of the economy and coordinating all activ itie s relatin g to manpower. The 1960 Manpower Sur vey should serv e a s b a sis for the preparation of a com prehensive manpower development plan to estab lish p ro g ram s and ta rg e ts. Appendix A d e sc rib e s the method used in estim atin g w astage among high-level manpower. It w as n e c e ssa ry to construct life tab les of m ales from data derived from v ario u s stu d ies made for other coun tries. The method used here would be adaptable to many other cou n tries. 23 A frica Ghana Development of the Employment and Manpower Information P rogram (1963; 138 pages) ILO R eport to the Government of Ghana; IL O /T A P /G h an a/R .7; A.N.K. N air (India) Report a p p ra ise s the p r o g r e ss of the manpower in form a tion situation sin ce 1958, ev alu ates the u sefu ln ess of th is inform ation in relation to manpower planning, and provides technical a ssista n c e and recom m endations on other manpower p ro g ram s and p roced u res. The consultant worked directly with the Employment Serv ice Branch in the Labour Departm ent and cooperated with the National Planning C om m ission, the Central Bureau of S ta tistic s, and the Departm ent of Education. Eventually, a Technical Working Group w as form ed con sistin g of rep resen tativ es from all organization s concerned with the collection of manpower data. A vailable Manpower Information 1. Establish m ent re p o rts on employment and earn in gs, collected qu arterly by Central Bureau of S ta tistic s from estab lish m en ts that employed 10 p e rso n s or m ore—Although many reco m m e n d a t i o n s were made by the 1958 ILO m issio n , 1 / the program has not made much p r o g r e ss. 2. Public Employment C en ters (PEC) for monthly sta tistic a l su m m aries of their activ itie s — B ecau se of inadequate technical supervision at these C en ters, quality of the work su ffe rs. 3. F acto ry in spectors re p o rts on im portant inform ation regard in g occupational description s and sa la r y r a n g e s—L ack of sta ff prevents ade quate coverage of plants. 4. Survey of H igh-Level Manpower in Ghana, 1960 2 J —T his study prov ides a factual a s s e s s ment of and projectio n s for high-level manpower req u irem en ts. 5. Educational sta tistic s on enrollm ents, by type of c o u r se —F ig u re s on the su c ce ssfu l com pletion of these c o u rse s are not available. 24 6. Population cen sus of 1960 (available 1963) — T his so u rce provides benchm ark data for em ployment and manpower stu dies. Work of the M ission With the advice and guidance of the Technical Working Group, the consultant worked out a plan for the effective development of the Public E m ployment C en ters, which included a te st pilot project. M ore than half the publication is in the form of appendixes which make up a manual for estab lish in g an effective employment se rv ice program : 1. Sample fo rm s for collecting manpower inform ation (20 p ag es). 2. E xam ples of operating activity rep o rts (9 p ag es). 3. P rocedure fo r collecting and analyzing employment and manpower i n f o r m a t i o n (36 pages). 4. Interim recom m endations (9 p ag es). 5. L etter from the C om m issioner of Labour regard in g the collection of manpower infor mation (3 p ag es). 1/ See page 20. 2 / See two preceding su m m aries. A frica Guinea Report on the Punched Card Tabulating Equipment fo r the Republic of Guinea (1982; 14 pages) J . L . M cPherson, AID Statistical Consultant Statement on one segm ent on an AID report. The main portion of this rep o rt is on the sub ject topic. However, the consultant commented on the state of sta tistic a l competence of the p ro fe ssio n al Guinean. The observation was based on d iscu ssio n s with p erso n s in authority and r e sponsibility regard in g the com pilation of s t a t is tic s to be m ach in e-processed. In e sse n c e , there w as a com plete lack of re g a rd for the quality of the sta tistic a l data being p ro c e sse d . M em bers of the Office of S tatistic s felt their role was only to p r o c e ss the data and not to question the accu racy and com pleteness of the b asic input inform ation. The m ost d is tr e ssin g elem ent, to the consultant, was the obvious satisfaction of the p ro fe ssio n als with this state of a ffa ir s. Further questioning with reg ard to the d is position of tabulated output revealed that the tabulations were kept se c re t within the GOG until they w ere at le a st 1 year old. The e x p re ss reaso n for this p ractice was “b ecau se we are not su re they are right and we do not want to subject the rep o rts to outside c r itic is m .* The consultant b eliev es there is great need for competent sta tistic a l advice in Guinea. “Illadvised, ill-im plem ented sta tistic a l activities will resu lt in u n satisfactory re su lts which will be b l a m e d on the the d ata-p ro ce ssin g equip ment s u p p l i e d by the United States. This would be an e asy way out for them and del eterio u s to our im age a s a nation anxious to help.” 25 A frica Guinea Study of Manpower N eeds, Educational C ap ab ilities, and O v ersea s Study (1965; 54 pages) Education and World A ffairs (Report No. 7); Study Com m ittee on Manpower Needs and Educational C apab ilities in A frica, p repared for AID A review of the curren t po litical, econom ic, and so cial situation in Guinea, and an an aly sis of manpower supply and demand. The aftereffects of independence (1958) left Guinea se rio u sly handicapped when it decided not to join the French community. In retaliation , the French pulled out virtu ally all m iddle- and high-level adm inistrative staff, technical p e r sonnel, and capital equipment. They also r e moved or destroyed much of the sta tistic a l data that had been com piled on Guinea’ s economy, labor fo rce , and educational sy stem . D espite a ssista n c e from the Sino-Sovietcoun tries, which encouraged monopoly of m ost e n te rp rise s, little econom ic p r o g r e ss has been made. In addition, the M inistry of Econom ic Development prepared a Seven -Y ear Development Plan (1964-70), which is m ore of a lis t of proposed p ro je c ts rath er than an integrated strategy . L ittle or no data are available on manpower. A 1957 labor force cen sus in dicates a nonfarm A frican labor fo rce of 92,000 of which 420 are in m an agerial occupations and 18,000 in sk illed and 26 sem isk illed jo b s. Supply of trained manpower is very lim ited and acute sh o rtages a re likely to p e r s is t fo r som e tim e b ecau se of the relativ ely few secondary school and university grad u ates. An an aly sis of manpower needs of the country revealed that the m ost c ritic a l need i s for secondary sch o olteach ers and for m iddle-level personnel. Guinea m ust se t out a co u rse to produce needed sk ills in the sh o rtest and b est manner p o ssib le . R egarding AID’ S role in Guniea, a se t of p rio ritie s should be estab lish ed , conditioned by the political and econom ic in stability of the coun try. Recom m endations a re aim ed at supporting the variou s schools producing m iddle-level sk ills. USAID also should encourage an inte grated sy stem of manpower and educational planning, which should include manpower plan ning m achinery and a sta tistic a l office to collect pertinent data. A frica Kenya U tilization of Manpower in the Kenya Public Service (1963; 17 pages) John L . Thurston, Manpower Consultant, The F ord Foundation An a p p raisal of the manpower situation, esp ecially in Government Serv ice, and the r e su lts of the A frican i zation program . Kenya’ s forthcom ing independence (1964) and the probable departure from Government se rv ice of sizeab le num bers of foreign pro fessio n al and adm in istrative o ffic e rs will cre ate a se rio u s manpower sh ortage. E xtrao rd in ary effo rts will have to be made to fill the manpower gap o cca sioned by the tim e la g between the departure of the ex p atriates and the return of A frican s from u n iv ersities and c o lleg es o v e rse a s. In 1961, there w ere 6,000 ejqpatriateofficers in the public se rv ic e . Of th is total, 1,000 already have left the se rv ic e , 900 have filed retirem ent p a p e rs, and 100 axe expected to r e tir e soon. Thus, one-third will have left by the tim e of in dependence. By the end of 1965, it is estim ated that 2,700 will still rem ain on the r o lls. The resu ltin g sh ortage can be m et by only three so u rc es: new grad u ates, new ex p atriates, and existin g staff. It is anticipated that by 1965 only 550 eligib le grad u ates will be available to fill the vacant p o sts. T h erefore, the m ost im m ediate co u rse of action to m eet requirem ents ap p ears to be through recruitm en t, training, and prom o tion of those on the curren t staff who m ay not m eet norm al requirem ents of education and experien ce. Recom m endations 1. Retain ex p atriates a s a holding operation. 2. Improve higher educational institutions. 3. Upgrade curren t em ployees. 4. E stab lish a strong A fricanization and training unit, respo n sible a lso for producing sta tistic a l data. 27 A frica Kenya H igh-Level Manpower Requirem ents and R eso u rces in Kenya 1964-1970 (1965; 46 pages) Calvin F. D avis, Manpower Consultant, The F ord Foundation A manpower supply and demand su rvey to serv e a s b ase fo r rev isin g educational and training p ro g ram s and p o lic ie s. The high-level and m iddle-level survey in cluded 348 public and private establishm en ts that employed 100 w orkers or m ore and r e p r e sented three-fourth s of total nonfarm em ploy ment. The survey covered 165 im portant occupa tions. An an aly sis of the re su lts in dicates that sh o rtages, on the av erage, are not a s serio u s a s expected. F o r exam ple, the supply of univer sity -train ed personnel will be n early sufficient to m eet minimum needs; a 20-percent shortage in m iddle-level and p ro fession al-su ppo rtin g oc cupations will occur, sh o rtages in skilled tech n icians and office w orkers will be se rio u s; and sh o rtages in the sk illed manual worker category will be m inor. In som e individual occupations, however, se rio u s sh o rtages will e x ist by 1970 and in oth ers, w asteful su rp lu se s. 28 Recom m endations 1. The proposed Manpower Planning and P rogram m e Section in the M inistry of Economic Planning and Development should be estab lish ed . 2. The S ta tistic s D ivision should issu e an Employment Trend R eport, and should im prove techniques of employment su rv ey s. 3. The A fricanization p rogram should be ex panded and im proved. 4. Educational planning should be coordi nated and integrated with other plans and p ro g ram s to m eet the occupational needs of the country. The v ariou s methods and sy ste m s are describ ed in detail. 5. V arious m e a su re s for i n c r e a s i n g the supply of high-level manpower in the Govern ment secto r also are describ ed . A frica Lesotho Manpower Situation in Basutoland (1964; 59 pages) ILO Report to the Government of Basutoland; IL O /T A P /B asu to lan d /R .l; Dr. W alter Elkan (United States) T his rep o rt a s s e s s e s the manpower situation and recom m ends ste p s to im prove the collection and a n a l y s i s of manpower data for economic planning. Sou rces of Manpower Information Recom m endations 1. 1956 C ensus of Population. 2. 1956 Social Survey— sam ple survey of households. 3. 1956 C ensus of A griculture. 4. Annual R ep o rts—rec o rd of number of p a s s e s issu e d to those leaving the country to take employment in the Republic of South A frica. 5. 1963 Survey of E stab lish m en ts, conducted by the Chamber of C om m erce—occupations of sk illed w orkers by income and employment se c to r. 6. R ecords of m in ers recru ited on con tracts through the T ran sv aal and Orange F re e State Cham ber of M ines. 7. Departm ent of Education Annual R ep o rts— training fa c ilitie s and number of en ro llees and grad u ates at each educational level. 1. The prop osal of the Government of B asu to land to set up a Central Statistical Office should be c a rrie d out. 2. Integration of sta tistic a l data on manpower should be the respo n sibility of an economic ad v ise r attached either to the Central Statistical office or to a sep arate planning office. 3. A dm inistrative m achinery s h o u l d be created for economic planning and, la te r for manpower planning. 4. F or the short term , the employment s it uation and the adequancy of the educational and training sy stem s should be review ed period ically. 29 A fric a L ib e ria A Pilot Survey of H igh-Level Manpower in L ib eria (1961; 70 pages) W illiam Langbehn, AID Manpower A dviser A detailed description of a manpower supply/dem and study. T his rep o rt on high-level manpower re q u ire m ents is one of a s e r ie s p rep ared a s an overall econom ic su rvey of L ib e ria under the direction of Northwestern U niversity, Evanston, 111. The consultant was a m em ber of the University Survey T eam and worked clo sely with the Bureau of Econom ic R ese arch of the Government of L ib e ria . By identifying the magnitude of existin g and p rospective sh o rtages of high-level man pow er, the team hoped that Government, edu cational institutions, and establish m en ts would institute action p ro g ram s to provide training in high-level occupations. The rep o rt d e sc rib e s the v ario u s step s taken to conduct a pilot survey of estab lish m en ts for estim atin g current le v e ls of employment and projected needs in 25 s e l e c t e d occupations. Techniques used in conducting the survey a re outlined; exam ples of the questionnaire, and the instruction s for com pleting the questionnaire, are suppliedo R esu lts from the establishm ent survey provide information on the current (1961) le v e ls of employment in the surveyed occupa tions, non-A fricans employed in these jobs, 30 tra in e e s, vacan cies, and estim ated employment requirem ents in 1966. F o r pu rposes of analyzing and projectin g each occupation, estim a te s of supply and w astage were calculated. Supply data for each occupation were obtained from variou s educational institutions in L ib eria, and inform ation on students abroad cam e from Government of L ib e ria so u rc e s. W astage was estim ated from variou s so u rc e s. Each occupation is then describ ed in detail, after all these fa c to rs are taken into co n sid era tion. B ased on the re su lts of this survey, the consultant d is c u ss e s the manpower problem s in L ib e ria and m akes r e c o m m e n d a t i o n s for alleviating som e of these p rob lem s. A short section evaluates the techniques used in this su rvey and m akes recom m endations for im prov ing subsequent stu dies. Appendix E su m m arize s a recent report, Survey on the P resen t Vocational Training F a c ilitie s and the Future Vocational T raining Needs of L ib e r ia , by D r. Hans B a ritsc h of ILO. Africa Liberia Study of Manpower N eeds, Educational C apab ilities, and O v erseas Study (1965; 42 pages) Education and World A ffairs (Report No. 5); Study Committee on Manpower Needs and Educational C apabilities in A frica, prepared for AID Educational study fo r the purpose of delineating AID’ S ro le in manpower and educational development in L ib e ria . L ib e ria is attempting to launch a 5-year devel opment plan. The Office of National Planning is to be the sta ff arm of the National Planning Agency. The Departm ent of Education, the Bureau of L ab or, and the Office of National Planning prob ably will coordinate to form a National Manpower Com m ission. It is assum ed that one of the fir s t ta sk s of the C om m ission will be to estim ate L ib e r ia ’ s manpower requirem ents and to p ro p o se a strategy by which all training program s could be utilized m ost effectively. P r e c ise data on curren t employment of highlevel manpower are not availab le. Langbehn’ s 1961 survey is lim ited to certain manpower field s and to m ajor em ployers; the government cen sus of 1962 fa ils to distinguish between high-, m iddle-, and low -level manpower. None th e le ss, even with these lim itations, sta tistic s from these su rvey s can be useful for manpower planning. The bulk of the rep o rt d e sc rib e s the educa tional cap ab ilities of L ib e ria and the availability of o v e rse a s sch o larsh ip s. About 10 percent of the national budget is allocated to the Department of Education; additional funds are available from external gran ts and loans (USAID, P eace C orps, Ford Foundation). C u r r e n t enrollm ent, the number and quality of the teaching staff, and the cu rric u la of each education and training facility are d iscu sse d in detail. Recom m endations for AID action 1. Encourage the development of the educa tion and manpower planning m achinery in Liberia# 2. Support boarding fa c ilitie s and con solida tion of sm all sch ools at the secondary level. 3. Continue to im prove secondary teach er training techniques and m ate rials. 4. A ssign highest prio rity to the development of an effective instructional pro g ram at the university. 5. Support o v e rse a s postgraduate study. 31 A fric a L ib ya Manpower in Libya (1960; 13 pages) E .L . Keenan, AID Manpower Consultant D escription of L ib y a*s manpower problem s. The many fa cets of Libya* s manpower situ a tion a re categorized into the following m ajor segm en ts: Manpower in the sh ort term C urrent manpower needs can be satisfie d somewhat by stepping up the use of training fa c ilitie s already in existen ce and by intensifying on-the-job training. Audiovisual training has proved su c ce ssfu l for sh o rt-term development of la rg e num bers of w orkers in other countries and m ay be a useful t e c h n i q u e in Libya. Manpower in the long term School attendance i s in creasin g at the lower grad e le v e ls, but six y e ars of schooling is not e n o u g h preparation fo r the technical and m echanical knowledge requ ired for many job s. T each ers should be trained to provide occupa tional guidance to students at a relativ ely early age. To m eet anticipated demand fo r m iddle- and high-level manpower requ irem ents, technical and teach er training at the secondary and univer sity le v els m ust be im proved. B alan ce between foreign and Libyan w orkers The national goal is to fill all position s with Libyan w orkers. On the other hand, em ployers want qualified w orkers who know their job and know how to produce. In the short run, Libyans 32 can fill sem isk illed and som e skilled position s through on-the-job training or apprenticeship with sh o rt-term wage su b sid ies. T hese sy ste m s a re cheaper and fa ste r than expanding the vocational school sy stem . On-job training a lso p erm its upgrading people alread y employed. M ore attention should be paid to in creasin g labor productivity rath er than enforcing rigid labor law s which make it difficult and costly to d is charge inefficient w orkers. Manpower in Government The v a r i o u s sh ifts of personnel in Govern ment re su lt in poor manpower utilization. To cope with this situation, training-w ithin-government p ro g ram s should be initiated to provide t r a i n i n g to Government w orkers. Foreign ex perts already employed by the Government could a s s is t a s training in stru cto rs in their sp e cial a r e a s of com petence. Recommendations (other than those indicated above) 1. The new M inistry of L ab or and Social A ffairs should plan and adm inister a manpower p rogram coordinated with the ov erall economic go als. 2. The Libyan Development Council even tually should coordinate the v ariou s p h ases of manpower development with v ariou s M inis tr ie s . organized labo r, and organized em ployers. A frica Libya A Manpower Information P ro g ram (1962; 24 pages) ILO Report to the Government of the United Kingdom of Libya; IL O /T A P /L ib y a /R .7; C .P . Van Rijn (Netherlands) An a sse ssm e n t of curren t and anticipated manpower supply and demand, and recom m endations for the develop ment of a manpower inform ation p rogram . ordinating function, in consultation with r e p re sen tatives from government, em ployers, and w o rk ers, to determ ine the need fo r manpower inform ation and to allocate respo n sibility for collection, an aly sis, and dissem ination of the r e su lts. 2. Information from the establishm ent su r vey should be utilized better. B ylaw , em ployers a re requ ired to prove d etails of their work fo rce to employment o ffices every 6 months. Specific recom m endations for im proving the Recom m endations variou s step in the collection of inform ation are 1. A sep arate Department of Manpower should detailed. F o r exam ple, the Department of Labor should p rep are a card index on em ploy ers, by be estab lish ed in the M inistry of Lab or and Social A ffairs. This Department should e x e rc ise a c o using so cial secu rity c a rd s a s a check. E xistin g so u rces of data include the 1954 C ensus of Population, 1956 Census of Em ploy ment and Production, 1958 National Income E s t i m ates, the biannual establishm en t survey, and so cial secu rity re c o rd s. Data from these so u rc e s are not com parable with each other and are in com plete for the purpose of an aly sis. Im prove m ents in the methods used in the establishm ent su rvey are m ost likely to yield the m ost poten tially useful data for manpower an aly sis. 33 A frica Libya A Survey of R equirem ents of P ro fe ssio n a l, Technical and Skilled Manpower in Libya, 1934-69 (1964; 64 pages) A.N.K. N air, ILO Expert A step-b y-step description of a manpower su rvey and an an aly sis of occupational needs. The purpose of the su rvey w as to collect man power inform ation regard in g employment, o c cupations, sh o rtages, anticipated requ irem ents, and supply of trained personnel. The su rvey covered all government fa c ilitie s and three in d u stries in the p riv ate secto r: petroleum min ing; construction; and automobile s a le s , se rv ice and re p a ir. It w as believed that these se c to rs em ployed m ost of the high- and m iddle-level w orkers. Vocational trainin g in stitutes furnished data on the output of trained personn el, and the M inistry of Education and the Civil Service provided data on p erso n s in o v e r se a s or govern ment training. Many problem s were encountered in c o llect ing inform ation from estab lish m en ts. D espite repeated v isits to individual fir m s, there were long delays in the receip t of the retu rn s. L ack of staff and tim e prevented adequate industry cov erage. The absence of a national occupational c lassific a tio n sy stem created con siderable dif ficulty in c lassify in g occupations. M oreover, it 34 w as believed that e stim a te s of future manpower requ irem ents w ere understated. D espite these prob lem s, the r e su lts of the su rvey provided the planning and training authorities with som e quantitative data, which did not e x ist before, to enable them to appreciate the magnitude of man power needs and to p rep are a manpower develop ment plan. Recom m endations 1. Additional training p ro g ram s of higher quality should be available and should include trainin g o v e rse a s. 2. B etter utilization of manpower should be made by placing people in occupations fo r which they were trained. 3. The wage and sa la r y policy should be review ed in ord er to provide incentives to young people to enter technical and sk illed field s. 4. The continuing study of manpower supply and d e m a n d should be strengthened and im proved. A frica Malawi H igh-Level Manpower in N yasaland’ s Development (1962; 29 pages) G eorge Seltzer (U niversity of M innesota), Manpower Consultant for Carnegie Corporation; a rticle in Manpower and Education, Country Studies in Econom ic Development, F red erick H arbison and C h arles A. M yers, ed ito rs (New York, M cGraw-Hill Book Company, 1965), p ag es 268-296 A policy-oriented d iscu ssio n of key manpower is s u e s confronting the Government of N yasaland (later Malawi). Nyasaland is in the p ro c e ss of transition (as of 1962) from a te rrito ry within the Federation of R hodesia and N yasaland to self-governin g statu s. The new Malawi Government will face m assiv e problem s in all a r e a s of development. A griculture is the dominant economic activ ity; n early half of the G ro ss D om estic Product com es from agricu ltu re which em ployes about 38 percen t of total labor fo rce . Thirteen percent of the labor force are employed in construction activ itie s and 10 percent are in manufacturing. N yasaland is a substantial exporter of labor throughout central and southern A frica. In 1960, about 160,000 N y asas w ere working outside the country com pared with about 152,000 employed internally. It i s , however, an im porter of highlevel and skilled manpower. Over 90 percent of all adm inistrative and p ro fessio n al personnel com e from European countries. B a sic education in Nyasaland has its roo ts in m issio n ary ac tiv itie s. A dual school structu re h as p revailed for both A frican s and non-A fri can s. The form al education p r o c e ss usually does not yield high-level manpower qualified to enter employment; custom arily , additonal training or education is required. The re su lts of a 1962 study of curren t and projected manpower r e so u rc e s and requirem ents are describ ed . The establishm ent of a Manpower Council is e sse n tial for coordinating and developing a man power p rogram . Its b a sic role is two-fold: 1. To provide assu ran ce the manpower, ed ucation, and socioeconom ic decision s are made in a common fram e and with d irect referen ce to one another. 2. To p rep are an action-oriented human re so u rc e p rogram in support of development g o als and ta rg e ts and to ov ersee its operations. 35 A frica Malawi Education for Development Education in Malawi (1964; 81 pages) A m erican Council on Education, p repared fo r AID D e sc rib e s the p resen t educational situation in Malawi and recom m ends that p rio rity be given to expansion of secondary education and to introduction of higher education. The purpose of the su rvey team w as to a s s e s s M alaw i’ s needs for educational institutions and c u rric u la r em ph asis and to propose an educa tional plan for M alawi’ s econom ic and so cial developm ent for the next 15 y e a rs. Whenever p o ssib le , the team co rrelated its work with the manpower su rvey recently com pleted under C a r negie C orporation (see preceding sum m ary) au sp ices and with the Malawi Government’ s econom ic development plan. M alawi’ s 3.7 m illion population (1963) is growing at a rapid rate; the number of children needing education i s in creasin g at an even g re a te r rate . About 360,000 children (half of the total) are in p rim ary sch ools, 3,000 in secondary sch o ols, 900 in vocational sch ools, and over 200 in foreign sch o ols. The 11 teach er 36 training schools do not p rep are enough teach ers adequately. In light of these and other fa c ts, the Government has given education high p rio rity and is devoting 3 percent of its g r o s s dom estic product to education. The team made detailed recom m endations for the development of education at each level on the b a s is of an aly ses of available data and p ro jections to 1980. P r io r itie s are su ggested and co st estim ates are provided. The team sp ecifically r e c o m m e n d s the establishm ent of an educational planning function within the M inistry of Education and the Univer sity. In addition, a represen tative from this unit should work c lo sely with the Manpower Council, which had been proposed by the C arnegie C or poration Manpower Survey T eam . A frica M ali Manpower Study fo r M ali (1961; 47 pages) Valm ore J . Doucett, AID Manpower Consultant A survey of manpower r e so u rc e s and requirem ents in M ali. P rio r to the a rriv a l of the consultant, q u es tion naires regard in g employment had been sent to all M in istries; only one w as returned. D irect contact with individual M in istries w as not p e r mitted and travel r e stric tio n s prevented direct observation. A vailable data from other re c o rd s w ere inadequate. Some inform ation on students abroad w as obtained through the Office of Foreign A ffairs and the M inistry of Plan and Rural Economy. The population figure of M ali is 3.8 m illion, of which 95 percent a re ru ral and 97 percent are illiterate. Only 8 percent of school age children attend school. P e r capita income is US$52. Life expectancy is 37 y e a r s. B ased on the F iv e -Y ear Plan, e stim ate s of manpower requirem ents for industrial e sta b lishm ents w ere m ade. E stim ates of Government employment w ere projected on the b a s is of the number of v acan cies reported in the 1961 budget. N early 600 students are being trained abroad, about half in F ran ce and about one-fourth in Communist coun tries. About 160 a re in the p ro c e s s of being selected for technical training in the U .S.S.R . M ost of the sk illed w orkers will have to be im ported until training fa c ilitie s are ade quate to m eet the needs. An in terestin g section on com parative stu dies d e sc rib e s the experien ces in training people of other developing countries: Indonesia, L ib e ria , N igeria, and Libya. 37 A frica M orocco D iagnostic Report on Manpower S ta tistic s and Conditions in M orocco (1966; 44 pages) D O L IT A C jy Staff P aper No. 27; Kenneth G. Van Auken, J r . , Manpower Consultant An inventory and evaluation of available manpower data and recom m endations for sh o rt-term and long-term man power development p ro g ram s. M ost of M orocco’ s economic and so cial p rob lem s are a re su lt of the rapid rate of population growth, 3.3 percent annually (pro jected to 3.5 percent in 1960-70). A gricultural output has not kept pace with population growth and has forced a ru ra l-to -c ity m igration and im portation of food products. L abor-in ten sive p ro g ram s and a firm educational b ase for the development of sk illed w orkers are needed. An e sp ecially stron g em ph asis should be made to produce w orkers with technical sk ills in ag ricu ltu re. The Planning and Statistical D ivision of the M inistry of Development fa c e s the problem of sk illed manpower sh o rtages and im balances, which w ere revealed when the F iv e -Y ear Plan (1965-70) was drawn up. However, there is a lack of curren t and reliab le manpower data for a s s e s s in g and planning action p ro g ram s. D ata so u rc e s include: 1. 1960 C ensus (lacks detail in occupational sk ills). 2. National Accounts: section on employment in m anufacturing and mining (1964). 3. E stablish m en t su rvey of high-level man power (1963). 38 4. Pilot su rvey of establish m en ts for em ployment and w ages (1958). The M inistry reco g n izes the lim itations of these so u rc e s and currently is attem pting to im prove and expand its data-gatherin g activ itie s. It is recom m ended that at le a s t two U.S. manpower ex p erts be assign ed to work with the Planning D ivision to help develop manpower p ro g ram s. M ost urgent work is requ ired to combat the high urban unemployment, about 28 percent of the urban work fo rce , by applying the experience of the U.S. Civilian Conservation C orps to orient urban unemployed youth toward agricu ltu ral and ru ra l p u rsu its. Upgrading e x ist ing sk ills is another m ajor a re a for technical a ssista n c e . C ou rse work to produce agricu ltu ral extention w orkers and other farm w orkers can help im prove food production and work op portunities in the ru ra l a r e a s. In the long run, an inventory of sk ills and a su rvey of sk ill needs should be p rep ared in ord er to determ ine educational and training needs, Steps on how these ta sk s can be accom plished are d escrib ed . 1 / U.S. D epartm ent of Labor International Technical A ssistan c e C orps. A frica N igeria Investment in EducationJL/ (1960; 139 pages) Sir E ric Ashby, Chairm an of the C om m ission on Post-School C ertificate and Higher Education in N igeria (financed by Carnegie Corporation) A com prehensive rep o rt of N igeria’ s educational needs up to 1980, b ased on projections of high-level manpower requirem ents. One of the b a sic documents used by the Com m issio n to project education needs w as the study prepared by F re d eric k H arbison on N igeria’ s high-level manpower needs. A copy of this study i s included in the C om m ission ’ s report. H arbison estim ated that 31,000 additional high-level personnel and 55,000 additional tech nical and su p erv iso ry personnel would be needed by 1970. The current educational sy stem is not capable of producing th is quantity. The short fall would have to continue to be filled with ex p atri a te s. (About one-third of high-level manpower is foreign .) Some upgrading of sk ills can fill the gap a little, but not to the extent required. H arbison concluded that N igeria’ s m ost u r gent need is for a fivefold expansion of in ter m ediate (technical) education. At the u niversity level, the m ost urgent need i s for technical and scien tific education. Although technical educa tion i s m ore costly than lib eral education, N igeria should be prepared to support this program . The m ajor recom m endations of the C om m is sion aim at upgrading curren t s k ills and de signing a postsecon dary sy stem to psodce the estim ated 1970 needs. In ord er to a s s e s s educa tional needs at the higher le v e ls, the C om m ission estim ates the number of pupils and teach ers in p rim ary and secondary gram m ar sch ools up to 1970. The final rep o rt c o v ers in detail all le v els of the education sy stem . The acceptance of the C om m ission ’ s rep o rt appears in Educational Development 1961-70, Sessio n al P aper No. 3 of 1961, Federation of N igeria, along with m odifi cation s and changes in the recom m endations. To provide guidance and balance between education and manpower, the C om m ission r e c ommended the e s t a b l i s h m e n t of an InterRegional Manpower B oard and a Manpower S ec re ta ria t. 2 / A lso known a s the Ashby C om m ission Report. _2/ A National Manpower B oard w as e stab lish ed in 1962, m em bers of which are drawn from all se c to r s of the economy. Several in terestin g and inform ative manpower stu dies have been published by this board. J j 39 A fric a N igeria Establish m en t of an Employment M arket Information P rogram (1962; 24 pages) ILO Report to the Government of N igeria; IL O /O T A /N igeria/R .3; R.N. Jack so n (United Kingdom) A review of the employment se rv ice organization and so u rc e s of employment data. The Labour D ivision of the F ed eral M inistry of Labour op erates a field organization of labor o ffic e s; a m ain labor office is in each of the three region al cap itals. There is no sep arate budgetary provision of a national employment exchange a s such. Employment exchanges are operated at m ost labor o ffices, but their control is only one of the many duties of a labor o fficer. V ery little specialization , such a s testin g and counseling, is done. The o ffices are poorly equipped and scan tily staffed. T his situation will be aggravated when new re sp o n sib ilitie s are assu m ed a s a re su lt of the acceptance of the Ashby C om m ission Report. (See preceding sum m ary.) A vailable data on employment w ere in suffi cient for effective employment se rv ice o p era tions. They con sisted of the following: 1. 1952-53 cen sus (a 1962 cen su s is under way). 2. Annual establishm en t rep o rt of em ploy ment and earn in gs. 3. Q uarterly review of labor i n s p e c t i o n ac tiv itie s and sim ila r m atters. 4. R egistratio n s and placem ents of the em ployment exchanges. 40 Steps were taken to conduct a pilot su rvey of establish m en ts to obtain the n e c e ssa ry current data. An index of estab lish m en ts w as com piled for L ago s and la te r extended to cover all of N igeria. All m anufacturing estab lish m en ts that employed 40 w orkers or m ore, all nonmanu facturing estalish m en ts that employed 100 or m ore, and selected government agen cies were included in the survey. The question naires w ere m ailed and followed by p erso n al v isits. Occupa tional c lassific a tio n was done by the consultant and his counterpart. L ater an Occupational R esearch and A nalysis Unit w as se t up in the Employment S e rv ic e s Branch. The re su lts of the su rvey confirm ed the p re ssin g need for trained technicians, a need mentioned by the Ashby C om m ission. Specific recom m endations covered im prove ments in the adm inistrative, financial, and functional asp e cts of an effective Employment Service O ffice. The index of establish m en ts should be m aintained; other agen cies p o ssib ly could supply the needed inform ation. Future establishm ent su rvey s should be b ased on the method devised by the consultant and a manual of p roced u res should be p repared when these methods have been standardized. A frica N igeria Study of Manpower N eeds, Educational C apab ilities, and O v erseas Study (1965; 58 pages) Education and World A ffairs (Report No. 8): Study Com m ittee on Manpower Needs and Educational C apabilities in A frica, prep ared for AID, Report a s s e s s e s available data on high-level manpower needs, a p p ra ise s cap ab ilities of N igerian educational institutions to m eet these n eeds, and su rv ey s oppor tunities for study abroad. The National Development Plan, 1962-68, p rep ared by the M inistry of Economic Develop ment, called for an av erage annual G ro ss National Product growth rate of 4 percent. Highest prio rity w as given to agricu ltu re, industry, and training of high-level and in term ediate-level manpower. A ccom plishm ents to date were difficult to a s s e s s at this tim e (1965) but many o b se rv e rs concluded that N igeria fe ll short of its goal. The National Manpower B oard, created in 1962, prepared a com prehensive establishm ent su rvey of high-level manpower needs in govern ment, educational institutions, and private indus try. T here is a sev ere shortage of sk illed man power. R evised p r o j e c t i o n s indicate that H arbison’ s 1970 e stim ate s of m iddle-level man power were too low by n early h a lf.J./ In fact, 1963 employment already approxim ated H arbison’ s 1970 target. This d iscrepan cy a ro se b ecau se he defined interm ediate personnel in te rm s of education received o r requ ired, where a s the Manpower S e c re ta ria t counted all those who actually w ere working in the occupation r e g a r d le ss of their educational background. T h is situation su g g e sts the c ritic a l im portance of in -se rv ic e training and upgrading of those alread y employed. Excellent d escription s of the manpower m achinery and of the educational c ap ab ilities of N igeira are provide. The m ajor recom m endations of this rep o rt concentrate on the “d esirab le d irec tio n s* of U.S. Government aid. AID should give fir s t p rio rity in its a ssista n c e strategy to the development of indigenous institutions and second p rio rity to sch o larsh ip s and other student aid at N igerian u n iv e rsitie s. Low er p rio rity should be given to a s s is t N igerians to study in the Unites States. Each of these item s is explained in detail. 1 / Copy of H arbison’ s study is included in the Ashby Com m ission rep o rt. See page 39 for referen ce. 41 A frica N igeria N igerian Human R esou rce Development and Utilization (1967; 200 pages) Education and World A ffairs Report: Com m ittee on Education and Human R eso u rce Development, N igerian P ro ject T ask F o rc e , F re d e ric k H. H arbison Manpower needs of the N igerian educational and training sy stem . The purpose of the p ro ject was to a s s is t AID in evaluating and planning its p rogram of a ssista n c e to N igeria in the a r e a of education and human re so u rc e development. N igeria is fortunate in having available well developed planning m achinery. The prin cipal integrating body is the National Econom ic Coun cil and its su b sid iary , the Join t Planning Com m ittee. In the a re a of education and human re so u rc e development, there are the Joint C o n s u l t a t i v e Com m ittee for Education, the National Manpower B oard, and the National U n iv ersities C om m ission. P art I of the rep o rt d e sc rib e s the problem s and manpower needs of the N igerian economy; P a rt II an alyzes its training and educational s y s tem , both form al education at all le v e ls and inse rv ic e training; and P art III d is c u ss e s the financing and efficiency of form al education. economy and the of the interm ediate and low productivity se c to r s, esp ecially sm all in d u stries and ru ra l en ter p r is e s . 2. C ritical high-level and m iddle-level p e r sonnel, such a s sc ie n tists, technicians, man agem ent personn el, teac h ers, should be trained to fill the needs of the high productivity se c to rs. 3. E x istin g educational and training r e so u rc es should be b etter u t i l i z e d through im proved p l a n n i n g and coordination among governm ental units. 4. B etter qualified teach ers should be devel oped by upgrading through in -se rv ic e training p ro g ram s. 5. To facilitate achievement of these p r io r i tie s, “development orientation* should be en couraged throughout the educational and training sy stem . Such a sy stem in co rporates two vital elem ents: (a) an employment orientation where by youth a r e trained to se rv e a s productive The sum m ary p rese n ts five p rio ritie s fo r m em bers of society , and (b) se rv ic e on the p art AID action: of the educational sy stem to the c ritic a l national 1. The e d u c a t i o n a l and training sy stem development g o a ls (so cial, p o l i t i c a l , and should be directed m ore effectively to the needs econom ic). 42 A frica Rhodesia Manpower Development and Utilization P o lic ies and P ra c tic e s in the Rhodesian P rivate Sector and their In terrelationships with the Management System : A C ase Study (1966; 295 pages) New York U niversity, Graduate School of B u sin e ss A dm inistration: Ph.D. dissertatio n by C h arles G. Nowacek A study of the p rac tice s and p o lic ie s of private firm s and statutory b o ard s that affect manpower development and utilization in Rhodesia. Since m id-1950, the lab o r m arket has moved rapidly toward an advanced stag e of m aturity. An in creasin g number of m ale A frican s are em ployed in m anufacturing, mining, and con stru c tion and have relativ ely stab le attachm ents to the urban labo r m arkets. However, the continued u se of w orker re g istratio n fo r controlling m obil ity and the w eakness of the trade union m echanism a re sig n s of stru ctu ral inhibitions to full labor m arket m aturity. F or the economy a s a whole, and within firm s, training of manpower d e se rv e s m ore r e so u r c e s, attention, and planning of government and top m anagem ent. The output of sk illed w orkers is inadequate to m eet curren t and future needs of industry. Industry should encourage general up grading of all s k ills of the work fo rce by depend ing p rim arily on apprenticeships and in -se rv ic e training rath er than on external so u rc e s of supply. Given the p olitical stab ility in Rhodesia in te rm s of the assum ptions outlined and the p o li tic a l-r a c ia l context, both the constitutional gov ernment and the ju rid ical sy stem should provide the fram ew ork for a continuation of p ast indus tria l and so cial development. This fram ew ork should provide the m eans of escapin g not only the p o licies of apartheid but also the im ple menting m e asu re s im plicit in these p o lic ie s. It should also encourage attitudes and the institu tional patterns of advancing the growth and development of Rhodesia a s a whole, within m u ltiracial sch em es, sy ste m s, and su b sy stem s of manpower adm inistration. 43 A frica Senegal Development of a Manpower P ro g ram (In French; 1962; 52 pages) ILO Report to the Government of the Republic of Senegal; O IT /T A P /Sen egal/R .2; Leon Reneau, (Belgium) A ssessm en t of manpower situation in Senegal. The F o u r-Y ear Econom ic Development Plan (1961-64) did not include statem en ts on human r e s o u r c e s or on manpower development. Recognizing this om issio n , the Government cre ated a M inistry of Education and Training to provide the n e c e ssa ry trained manpower to m eet the econom ic go als. Current data are insufficient to provide an accu rate picture of the employment situation. The few data that are available are d escrib ed . The Employment Office has not been able to render useful se rv ic e b ecau se of the com petition from p riv ate employment placem ent o ffic es. A ccording to a recent labor law, the Government plan s to grant the Employment Service com plete monopoly in placem ent func tions. Two manpower su rv ey s w ere conducted to determ ine occupational requirem ents for m eet 44 ing the needs of the econom ic plan. The su rv ey s covered both public and priv ate se c to r s of the economy. The r e su lts indicate that the number of high- and m iddle-level manpower in the public secto r m ust be in creased by a third (or 9,000), and in the private sec to r by 5,000. A survey also was made of the v ario u s training institutions to determ ine availability of trained manpower. Recommendations 1. Surveys of manpower r e so u rc e s and r e quirem ents should be made on a continuing b a s is . 2. An inventory of trained manpower should be maintained by utilizing re c o rd s of training institutions. 3. The adm inistrative m achinery for m an power development should be expanded and im proved. A frica Senegal O rganization of the Employment Service (In French; 1963; 34 pages) ILO Report to the Government of the Republic of Senegal; O IT /T A P /S en eg al/R .3; Leon Reneau, Belgium D escription of the functions Employment S e rv ic e s. A s the re su lt of the labor law of 1961, the Employment Service w as estab lish ed on the b a s is of the ILO Convention No. 88. However, b ecau se of its sm all budget, it h as not been able to fulfill the needs of an effective manpower se rv ic e . F o r exam ple, only one agent was a s signed to c a r ry out placem ent and registratio n functions in each region al office. (The law p ro vided that these functions be sep arate .) L ack of funds also delayed the collection of sta tistic a l inform ation such a s number of w orkers em ployed. The functions and operations of the Employment Serv ice o ffices are describ ed in detail. The stru ctu re of the cen tral office at D akar and of the four regional o ffices ap p ears to be and operations of the adequate for norm al Employment Service func tions, but the opening of two new region al o ffices w as not ju stified. Recom m endations em phasized that the work which was starte d by the consultant should be continued. This work con sisted of collection of reg istratio n sta tistic s, im provem ent in p lace ment proced u res, and adaptation of ILO occupa tional c lassific atio n sy stem . In addition, an inventory of establishm en ts should be developed. A National Consultative Com m ission on Sta t is t ic s , at the level of the C om m issioner G eneral of the Plan, should be estab lish ed . The Chief of the Employment Service should be an effective m em ber of the technical section of the Planning O rganization. 45 A frica Senegal The ILO O rganization of the Employment Service (In French; 1964; 17 pages) R eport to the Government of the Republic of Senegal; O IT /T A P / Sen egal/R . 5; A lfred Caron, (Belgium) Continuation of the work ILO consultant. T his rep o rt is an elaboration of preceding recom m endations concerning the organization of the cen tral and region al Employment Service o ffices in accordance with the labor law of 1961. R e c o m m e n d a t i o n s d escrib ed the effo rts which should continue o r should be initiated to provide an effective Employment Serv ice. R ec om m endations were made on the following topics: 46 starte d by the preceding 1. Improvement of ph ysical fa c ilitie s. 2. Cooperation among the v ariou s o ffices and with the cen tral office. 3. Popularization of Employment Service activ ities. 4. T raining of personnel. 5. P reparatio n of a technical manual. 6. Improvement of operating p roced u res. 7. C lassificatio n of occupations. A frica S ie r ra Leone Survey of Manpower Requirem ents at Higher and Interm ediate L ev els (1965; 59 pages) R eport to the Government of S ie r ra Leone, p repared by Robert Brown (London) A prelim in ary study b ased on lim ited available data. The fir s t C ensus of Population, conducted in 1963, in dicates a population of over 2 m illion, of which 90 percent is directly dependent on a g r i culture. About 63,000 people in the labor fo rce a re wage e a rn e rs. Surveys of establishm en ts and of educational and training institutions w ere con ducted by the consultant to analyze currently em ployed nonfarm manpower, to estim ate future needs, and to com pare these needs with an tici pated educational output. The methods used in the establishm en t su rvey and in the educational trainin g capability su rvey are d escrib ed fully and detailed tab les on the r e su lts are presented in the appendix. An an aly sis of manpower supply in relation to estim ated needs re v e a ls that se rio u s defi cien cies will occur in alm ost ev ery occupation at all le v e ls of education. Government admin istrativ e o ffic e rs rep resen t the only r e a l su rp lu s, p rim arily becau se certain students are on gov ernment sc h o larsh ip s and “bonded” to govern ment se r v ic e s on graduation. Recom m endations 1. Manpower needs should be review ed p e riod ically in ord er to r e v ise manpower and educational planning. 2. A Manpower Planning Unit should be estab lish ed in the Development Office and inte grated with all planning functions. 3. A fter organization of this Unit and p ro c e ssin g of cen su s data, a fu ll-sc a le supply and demand manpower su rvey should be conducted. 47 A frica Som alia Republic Som alia Manpower Survey (1966; 4 pages) A irgram A347, May 14, 1966, p repared by A m em bassy M ogadiscio Sum m ary of an ILO report on the manpower situation in Som alia (full text, 11 pages). B ecau se of high birth and m ortality r a te s, Som alia has an unusually la rg e proportion of its population in the prew orking age. Approxim ately 75 percent of the population is dependent on the other 25 percent. No national fig u res are cited, but recorded unemployment in M ogadiscio w as four tim es higher by the end of 1963 than it w as in 1960 and is expected to get w orse. The ILO consultant, D r. Nizan, recom m ended concentration on labor-inten sive rather than capital-inten sive p ro je cts to help absorb the la rg e potential pool of unemployment. To bring this about, he p ro p o ses bringing new fa rm a r e a s under cultivation, introducing ag raria n refo rm , 48 constructing r e s e r v o ir s and ponds, developing fo re st and fish e rie s re so u r c e s, and prom oting community development p ro g ram s. P resen t sh o rtages in sk illed manpower also will continue to get w orse u n less certain step s are taken. The country p a r t i c u l a r l y needs scien tific and engineering grad uates. T hese can be trained by o v e rse a s study and by intensive on-the-job and technical school training. In sum m ary, the study m akes an “excellent c a se fo r planning for education, not a s a d esirab le adjunct to, but a s a n e c e ssa ry and in tegral p art of, economic planning.” A frica Sudan Establish m en t of an Employment M arket Information P rogram (1965; 38 pages) ILO Report to the Government of the Republic of the Sudan; ILO /O T A /Sudan/R .9; H. P. Davenport (India) An intensive study of all asp e cts of manpower develop ment and planning in Sudan. An Em ployment Serv ice had been estab lish ed in Khartoum; but the methods of reg istratio n , o c cupational and in du strial c lassific atio n , and s t a tistic a l collection made the data unsuitable to se rv e a s a source of employment m arket in for mation. To obtain up-to-date inform ation r e garding employment in industrial e stab lish m ents, the consultant conducted su rvey s of establish m en ts to obtain inform ation on em ploy ment, occupations, in - se r v ic e training p ro g r a m s, v acan cies, and sim ila r data. Only about 50 p e r c e n t of the surveyed establish m en ts responded. Population and labor fo rce p ro je c tions w ere made on the b a sis of the 1956 Census of Population. The r e su lts from the su rv ey s and these projection s aided in the preparation of the proposed T en-Y ear Plan. 2. The development of manpower w as ham pered by the lack of coordinating manpower adm inistrative m achinery. Recom m endations 1. O fficials should prom ote wide understand ing of the need for manpower planning. 2. A manpower advisory com m ittee and co ordinating m achinery should be estab lish ed to integrate manpower policy with economic and so cial development planning. 3. The work of the existin g Manpower Plan ning A dm inistrative Unit should be reviewed. (Work con sisted of survey techniques.) 4. The Employment Service should be o r ganized according to ILO Convention No. 88. 5. In view of the serio u s shortage of skilled w orkers a s revealed by the survey, the valuable comments made by respondents should be r e Conclusions examined. 6. A manpower a sse ssm e n t and planning con 1. Manpower problem s were developing a s a sultant should be assign ed to aid in carry in g out re su lt of the rapid in cre ase in the number of the v ariou s recom m endations, and a suitable p erso n s of working age, the shortage of skilled local counterpart o fficer should be identified. personnel, and dependence of foreign w orkers. 49 A fric a Sudan Functions and A ctivities of the D epartm ent of L ab or (1965; 26 pages) DOLITAC 1 / Staff Paper No. 3; Arthur W. Motley, Manpower Consultant Review of current labor p ro g ram s and recom m endations for the establishm ent of a workable M inistry of L ab or. The purpose of the m issio n was to make a detailed an aly sis of the functions and operations of the Departm ent of Lab or in Sudan. The effectiv en ess of the Departm ent would be im proved by AID’ s a ss istin g it to provide leadersh ip fo r the creation of a viable labor movement and to contribute to a long-term economic develop ment program . The recom m ended organ iza tional pattern and a sum m ary of the variou s recom m endations, actions to be taken, and technical se r v ic e s needed appear in the ap pendix. Under the M inistry of L ab o r, three sp ecific functions should be estab lish ed : 1. Manpower—resp o n sib le fo r all activities of the Em ployment Serv ice, vocational training, apprentice training, on-the-job training. 2. S t a n d a r d s —resp o n sib le for ordinances providing w orker p r o t e c t i o n : collection of w ages, protection again st job in ju rie s, factory in spection s, workmen’ s c o m p e n s a t i o n , child labo r. 50 3. L ab or re latio n s—respo n sible fo r trade disp u tes, re g istratio n of trade unions. Recom m endations 1. The L abor Department should assu m e leadersh ip in manpower planning in coordination with other M in istries. 2. The E m p l o y m e n t Service should be im proved and reorgan ized at national and local le v e ls. E sp e cia lly needed are ru ra l employment development p ro g ram s and labor m arket infor mation p ro g ram s. 3. The M inistry should hire additional p e r sonnel and provide in -se rv ic e training in ord er to c a r r y out the variou s recom m endations. 4. AID should provide technical a ssista n c e in all asp e cts of the reorganization of the Lab or M inistry. Technical se r v ic e s a re liste d in the appendix. J j U.S. Departm ent of L ab or International Technical A ssistan c e C orps. A frica Sudan Study of Manpower N eeds, Educational C apab ilities and O v erseas Study (1965; 42 pages) Education and World A ffairs (Report No. 4): Study Committee on Manpower Needs and Educational C apab ilities in A frica, p repared fo r AID An a sse ssm e n t of available data on manpower needs, an ap p raisal of educational institutions, and a study of o v e rse a s training opportunities. The T en-Y ear Plan of Econom ic and Social Development (1961-71) w as form ulated by the Econom ic Planning S e cre tariat of the M inistry of Finance. D ata on manpower are too sc a rc e to be of a ssista n c e in planning for high-level man power development. The re c o rd s of som e of the r e se a r c h conducted by variou s foreign tech nicians (ILO, UN, AID) have been lo st or m islaid . The manpower an aly sis conducted by Edwin C. C rosby 1 / in 1960 was reviewed a s the m ost com prehensive available study to date. A ccording to e stim a te s, high-level manpower supply would m eet alm ost 75 percent of the ad ditional personnel requ ired by 19 71. M iddle-level manpower supply ap p ears to be in g re a te st need for a ssista n c e sin ce only 12 percent of req u ire m ents a re expected to be met. Specific needs at this level are for technically trained personnel. Recommendations 1. More effective manpower planning m a chinery should be encouraged. 2. A ssistan c e should be provided to develop ing m iddle-level manpower. 3. Training of employed manpower should be supported. 4. USAID should continue its p resen t support for the U niversity of Khartoum and perh aps in c re a se its a ssista n c e . 5. O v erseas training should be maintained esp ecially for the development of m iddle-level manpower. 1/ Of the Education D ivision of USAID/Sudan. 51 A frica Sudan H igh-Level Manpower R equirem ents and R eso u rces Republic of Sudan, 1968-1972 (1967; 55 pages) John B. Seal, J r . , Manpower A d v iser, The F ord Foundation A sse ssm e n t of the employment situation of grad u ates of higher education institutions in Sudan. A su rvey of public and private establishm en ts was conducted to determ ine the occupational distribution in each nonfarm econom ic activity. Only a little over 2 percent of Sudan’ s population hold nonfarm wage employment. Of this group, the public se c to r em ploys 87 percent. F iv e -y e ar e stim ate s w ere projected on the b a s is of the retu rn s from e s t a b l i s h m e n t s . E stim a te s of supply w ere b ased on an an aly sis of the output trends of secondary and higher education institu tions. The m ajor portion of the rep o rt an alyzes the relationship between supply and demand projected to 1971. In ord er to estab lish m ean ingful r e l a t i o n s h i p s , specialized sk ills are m atched with specialized requ irem en ts. Only in this way can sc a r c e r e so u rc e s be allocated to the p rio rity needs of economic development. About 10 p ag es of tab les presen t these d etails. to fill the educational and sk ill needs for economic development. D etails of the adm inis trativ e m echanism to effect this recom m endation are provided. 2. Sudan should e stab lish a Manpower Plan ning and P ro g ram Section in the M inistry of Finance and Econom ics to implement the recom mendations made in this rep o rt into an active program . Other manpower organizational units a lso a re recom m ended to c a rry out manpowerrelated functions. 3. The Manpower Branch of the M inistry of L ab or and Cooperation should p rep are m an power and employment re p o rts periodically; for exam ple, establishm ent su rv ey s, labor fo rce su rv e y s, educational sta tistic s. 4. Personn el p ro g ram s, such a s recruitm ent and selection, placem ent, vacancy an aly sis, in -serv ic e training, retirem ent sy stem , should 1. Sudan should invest in secondary and be expanded and im proved for effective u tili higher education so lely in the amounts n e c e ssa ry zation of the Public Serv ice. Recom m endations 52 A frica Swaziland Manpower A ssessm en t (1965; 81 pages) ILO Report to the Government of Swaziland; IL O /T A P /Sw azilan d /R . 1; A. V. Tottle (United Kingdom) P relim in ary a sse ssm e n t of manpower re so u rc e s and requirem ents with p articu lar referen ce to skilled man power requ irem en ts. A vailable inform ation con sisted of the 1956 C ensus of Population, the 1960 sam ple su rvey of the labor fo rce , q u arterly establishm ent su rvey s of employment, and fragm entary data from v a r ious other so u rc e s. Information about future de velopm ents w as contained in “Swaziland D evel opment Plan 1963-66,* which w as little m ore than a listin g of d esirab le p ro je cts to be subm itted to the B ritish Government for approval and allo c a tion of funds. The lack of national income s t a t is tic s and of staff made com prehensive planning im po ssib le. A s a re su lt, little inform ation could be deduced about future manpower requirem ents. Q uarterly establishm en t su rv ey s had been conducted to obtain inform ation on current em ployment of wage e a rn e rs in the nonfarm secto r. The r e su lts of these su rvey s w ere analyzed to make estim ates of curren t and future manpower needs by occupation, industry, locality, and ed ucational requ irem en ts. B ecau se the coverage varied from q u arter to qu arter, the data w ere not com parable; th erefore, an an aly sis of the em ployment trend w as not p o ssib le . F o r the m ost p art, the survey tended to con firm what already w as known about manpower. Twenty percent of all paid jobs were held by ex p atriates. U n less educational output is higher, there is little chance of many local people r e placing ex p atriates in these job s. Recommendations 1. G reater attention should be paid to the creation of employment in planning future eco nomic development. 2. T raining of local people should be em phasized in ord er to rep lace ex p atriates. 3. Vocational guidance and trainin g oppor tunities should be offered to d irect people into m iddle-level and technical ac tiv ities. 4. An effective labor m arket organization should aim at reducing current su rp lu se s and sh ortages. D etails of such an organization are provided. 5. A p i l o t Employment Exchange Office should be estab lish ed . 53 A frica Tanzania Human R eso u rc es and Manpower Planning in Tanganyika (1960; 30 pages) John L . Thurston, Consultant, The F ord Foundation The development of human r e so u rc e s in Tanganyika is m ore c ritic a l than in m ost developing countries b ecau se of its em ergence tow ard independence and the attendant urge for A fricanization. The consultant recom m ended again st con ducting a job survey at the presen t tim e (1960) b ecau se there is no danger of oversupply of trained w orkers in the im m ediate future. It w as su ggested, however, that a job survey and an educational output survey be conducted around 1963. In the m eantim e, b ecau se of the grea t im port ance of agricu ltu re to the economy, effort should be expended to develop sk illed agricu ltu ral a d v ise rs or extension w orkers to aid farm fa m ilie s. Recruitm ent and training of such w orkers will be a form idable job over the next few y e a rs. Government Service is an i m p o r t a n t em ployer of trained m a n p o w e r . The need to A fricanize and the expected lo s s of one-third of the presen tly employed ex p atriates will cre ate 54 stron g p r e s s u r e s on the Government Service to find adequately trained manpower to fill not only the vacan cies but also the anticipated expansion of s e r v ic e s. It was recom m ended that a training unit be estab lish ed in the M inistry of Education to which four training ex p erts from the United Kingdom o r the United States would be assign ed for at le a st 3 y e a rs. Other types of activ ities for review include entrance requirem ents for high- and m iddlelevel jo b s, stan dards and req u irem en ts, job a n aly sis, and job testin g. One section of the r e port analyzed the current educational sy stem and output. Only a very sm all percen tage of Tanganyika’ s children attain a high school educa tion. T each ers and school fa c ilitie s are in cru cial need. C alculations a re made to estim ate the c o st of supplying the requ ired number of teac h ers. A frica Tanzania Survey of H igh-Level Manpower R equirem ents and R eso u rc es in Tanganyika, 1962-67 (1962; 81 pages) G eorge T ob ias, Consultant, The Ford Foundation T his an aly sis of high-level manpower r e so u rc e s and requ irem en ts is a followup of previous stu dies and recom m endations. T his rep o rt advances by one step the contin uous p r o c e ss of making approxim ations of man power r e s o u r c e s and requirem ents and of su ggestin g p ro g ram s n e c e ssa ry to bring them into balance. Information from a survey of establishm en ts and from other available sta tistic a l data form ed the b a s is fo r making a high-level and sk illed man power inventory. E m ployers w ere asked to repo rt their curren t employment by occupation and other inform ation on nationality of w orkers, v acan cies, tra in e e s, and so u rc e s of new w o rkers. They also w ere asked to estim ate employment needs 2 and 5 y e a rs ahead and to b ase their projection s on anticipated production plan s. This type of infor m ation, supplemented by assum ptions on m ortal ity and retirem en t r a te s, w as the b a s is for projectin g the number of additional w orkers needed fo r replacem ent of each occupation. The p ro g ram of A fricanization a lso w as taken into account to determ ine som e of the lo s s e s to variou s occupations. The supply of high-level manpower to meet th is demand w as estim ated from a review of the educational sy stem . T raining fa c ilitie s and c u r ric u la w ere analyzed to determ ine the level and quality of output. A gainst a total requirem ent of 8,000 w orkers in high-level occupations over the next 5 y e a rs, slightly over 2,200 trained people will be available. The report d is c u ss e s in detail the supply of m edical w orkers and teach ers and the output of trade schools. To maintain a continuous review of the m an power situation, a Human R eso u rces S e cretariat should be estab lish ed in the Econom ic Develop ment C om m ission. The S e c re ta ria t should be respo n sible for initiating and developing p ro g r a m s, setting p rio ritie s, and seeing that they a re c a rrie d out by the appropriate M in istries. The staff should be drawn from presen t em ployees of variou s M in istries and should be knowledgeable of Tanganyika’ s so c ia l, econom ic, manpower, and educational problem s. A sta tistic a l sy stem also w as proposed with m ajor respon sibility for coordinating all eco nomic and so cial data in the S ta tistic s D ivision of the T re asu ry . R espon sibility fo r collecting sta tistic a l data on manpower should rem ain in the appropriate M in istries. Several recom mendations were made concerning the collection of labor m arket inform ation, su rvey techniques, occupational c lassific atio n , and sim ila r su b jects. 55 A frica T anzania Survey of the H igh-Level Manpower Requirem ents and R eso u rc es for the F iv e -Y ear Development Plan 1964-65 to 1968-69 (1965; 21 pages) Robert L . Thom as, Consultant, The F ord Foundation The establishm ent survey of 1964 r e v e a ls that the target goal of self-su fficien cy in high-level manpower will be reached in 1980, if proposed educational and manpower p ro g ram s are c a rrie d out. The fir s t manpower su rvey w as made in 1962 by G eorge T ob ias. (See preceding sum m ary.) Since that tim e, national manpower planning m achinery w as estab lish ed and a F iv e -Y ear Plan w as form ulated. A new survey w as needed to obtain inform ation to p repare supply and demand projectio n s for sp e cific high-level occupations under the conditions fo r development laid down in the Plan. The 1964 study surveyed all la rg e e stab lish m ents in Tanzania; they represen ted nearly three-fou rth s of all nonagrieultural em ploy ment. H igh-level manpower was concentrated in governm ent and in the la rg e r establish m en ts. A ll adm inistrative, managem ent, p ro fessio n al, technical, sk illed c r a fts, and c le ric a l occupa tion s, which were considered high-level and sk illed, were catego rized according to e d u c a tional and training requ irem ents. The establishm ent survey provided occupa tional inform ation on employment, v acan cies, number of job s held by A frican s, and em ployer e stim ate s of requ irem ents in the 5-year period 56 to 1969. The num bers of p erso n s actually r e quired to fullfill em ployer demand were calc u lated by adding lo s s e s (death, retirem en t, and A fricanization) to anticipated net in c re a se s Where p o ssib le , refinem ents were made to these b a sic p rojectio n s. T ab les showing both industry and occupational p rojectio n s and their com ponents are presented. Supply data w ere e stim ate s b ased on educa tional and training output. U niversity-trained manpower supply w as estim ated by straigh t ex trapolation of curren t le v e ls among the v ariou s d iscip lin es. No attempt w as made to estim ate the sh ortfall in skilled occupations since m ost sk ills w ere acquired on the job and through prom otions. The an aly sis re v e a ls that the target goal of self-su fficien cy in high-level (profession al and technical) manpower will be achieved by 1980, if the proposed educational p ro g ram s are c a rrie d out. Some prob lem s with developing skilled (manual) occupations e x ist, but there is every reaso n to believe the difficu lties which do e x ist will be reso lved satisfa c to rily . A frica Tanzania Integration of Educational and Economic Planning in Tanzania (1965; 78 pages) G eorge Skorov, UNESCO, International Institute of Educational Planning (IIEP) T his study ex p lo res the problem s of form ulating educa tional development plans and evaluates the methods used in T anzania to overcom e these problem s. The fir s t half of the study su m m arizes the econom ic development plan and the labor force and employment situation to provide a setting for the main th e sis of the study. E xistin g studies on manpower needs and r e so u r c e s are evaluated. C onsideration is given to the fact that the variou s consultants started p rac tically from sc ratc h and that they often had to substitute experience and im agination for fa c ts and fig u re s which w ere not availab le. The Hunter Study (1962) w as the fir s t rough a sse ssm e n t of high-level manpower in E a st A frica. Its m ajor purpose w as to a s s is t those engaged in university planning. The m ajor c r it ic ism s of the study w ere that insufficient oc cupational d etails were supplied and that a con stant correlatio n between the relativ e siz e of employment and changes in national income was assu m ed . The T obias Survey (1962) w as a landm ark in manpower surveying in Tanzania and the fir s t sy stem atic inventory of high-level manpower by broad occupational groups. Its m ain w eakness w as that the study could not be related to a sp e c i fic economic p ro g ram since there was no devel opment plan yet in existen ce. The Thom as Survey (1964) w as geared to the economic development plan, its occupational coverage was m ore inclusive than the T obias study, and its conclusions on the educational sy stem w ere m ore p re c ise . Its m ajor weak n e sse s were the application of a developed coun try ’ s annual rate of economic growth to an underdeveloped country and the assum ption that the existin g occupational distribution would be the sam e in 1970. The second half of the study evalu ates the manpower and educational planning p ro g ram s that resu lted from these su rv ey s. An an aly sis of the economic outlook of Tanzania indicated that a m ore cautious approach to manpower projection s would be required since the projected high r a te s of economic growth and productivity m ay not be achieved. All the manpower su rv ey s made c le a r the vital role of secondary and higher education, esp ecially in scien tific and technical fie ld s, in ord er to m eet high-level manpower req u ire m ents. It w as su ggested that any su rplu s educated manpower would be absorbed by the in creased rate of A fricanization and, th erefore, the danger of o v e r e s t i m a t e d needs is re ally not so great. 57 A frica Tanzania Job A n alysis, A fricanization, and Manpower Management in Tanganyika (1965; 6 pages) John B. Seal, J r . , Manpower U tilization O fficer to the Government of Tanganyika, A rticle in P ersonn el A dm inistration (July-A ugust 1965) p.36ff. This a rticle d eals with the e ffo rts to A frican ize the Civil Serv ice through the technique of job an aly sis. A fricanization of the Civil Serv ice h as been an im portant objective of the Government of Tanganyika. While the number of A frican s em ployed in the Civil Service in creased from 78 percent in 1951 to 88 percent in 1961, they were la rg e ly concentrated in the lower le v els; only 20 percent were represen ted in the higher ran k s. The F ord Foundation w as invited to exam ine the economy from the standpoint of human r e so u r c e s development and manpower planning. The rep o rt 1 / submitted in 1960 con cluded that (1) expatriate o ffic e rs would be needed fo r se v e ra l m ore y e a rs; (2) su p e rv iso rs m ust be respo n sible fo r job-training ac tiv itie s; (3) the Government m ust provide outstanding p ro fessio n al leadersh ip to develop an expanded training p rogram ; and (4) m aximum effo rts are needed to adju st both entrance stan dards and job content to facilitate hiring A frican s into the C ivil Serv ice. Thus, job an aly sis a s a m an agem ent technique would be a partn er in the trem endous training and staffin g effort facing the country. The F ord Foundation sent three job an aly sts to coordinate the training effort toward A fri canizing the Civil S e rv ice. T heir f ir s t task * o ccu rrin g in the m idst o f independence activ ities* w as to su rvey high-level adm inistrative jo b s. 58 T hese included 80 p o sts in 12 M in istries and constituted the “elite c o r p s” of the Civil Serv ice. The r e su lts becam e the benchm ark documents for job an aly sis and m easu rem en ts. The repo rt con sisted of position descrip tio n s, functional and organizational c h a rts, and observation s and recom m endations of all fa c to rs related to job perform ance. One of the m ajor problem s encoun tered in this survey w as the d istru st engendered by operating o ffic ials and their fe ar that their jobs would be downgraded. This apprehension required constant salesm an sh ip to explain the re a l purpose of job an aly sis and m easurem ent. Specific outcome of the su rvey resu lted in a m ore effectively organized and flexible cadre of adm inistrative talent at a la rg e saving in annual s a la r ie s . Since the time of the survey, by 1965, alm ost 89 percent of the total Civil Service was A frican and n early half of the highlevel position s w ere held by A frican o ffic e rs. The next step w as to extend job an aly sis through out all se c to r s of the economy in a way to convince both management and em ployees of its worth. In its m odest way, job an aly sis can help determ ine the speed and direction in the develop ment of A frican b u sin e ss le a d e r s of tom orrow . 1 / See su m m ary on page 54. A frica Tanzania Strategy of Implementing a Manpower P ro g ram in a Developing Country P aper delivered to Conference of International Institute of Educational Planning (1966; 59 pages) Robert L . Thom as, Consultant, The F ord Foundation A description of the actions taken to implement a manpower pro g ram in Tanzania and an evaluation of the effectiv en ess of these m e asu re s a re “relevant to other sub-Sah aran, newly independent c o u n tries.” Two b a sic or “ m a ste r ” p o lic ies govern Tan zan ia’ s manpower program : 1. Achieve self-su fficien cy at all sk ill le v els by 1980. 2. To achieve this am bitious goal, invest in education that is related to the sk ills needed for economic development. N e c e ssa ry preconditions to a su c ce ssfu l man power program include: 1. Support by highest political le a d e rs and governm ent o ffic ials. 2. Integration of program with the economic development plan. 3. D irect communication between chief man power planning officer and chief executive of nation. 4. High-level manpower requ irem en ts p r e sse d in sp ecific occupational te rm s for guid ance of educational plann ers. The section on the “ P r o c e ss of Im plem enta tion” d e sc rib e s the step s taken to bring supply into balance with demand through Tanzania’ s educational sy stem . The implem entation of the v ario u s p o licies a re d isc u sse d in detail. Much of the su c c e ss of the program is the re su lt of occupational counseling b ased on employment m arket inform ation. T raining of high-level p ro fe ssio n al and technical w orkers can be done in the school sy stem . M iddle-level w orkers can be produced by l e s s form al m eans through upgrad ing, b etter utilization of curren t skilled w o rkers, on-job and apprentice training, and retention of sk illed expatriate w orkers. A strong cen tral planning organization is e s sen tial to the ac c elerate econom ic development of a developing country, and a manpower planning unit is a n e c e ssa ry p art of that organization. T anzania’ s Planning O rganization is independ ent of any other government agency and has been given great authority. It developed the fiv e-y ear plan in collaboration with other M in istries. One of the fe atu res of the Planning O rganization is the establishm ent of Planning Units in the M inis t r ie s . T hese units a re in tegral p a r ts of the M in istries but provide a focal point for the Cen tra l Planning O rganization in dealing with the M in istries. ex Within the Planning O rganization, the Man power Planning Unit created a National Man power A dvisory Committee made up of m anage ment, lab o r, and government le a d e r s. This com m ittee o b t a i n s advice, reactio n s, and opinions on such p ro je c ts a s the National Ap prenticeship Plan, trad e, testin g, etc. The r e s t of the rep o rt d e sc rib e s the role of the public and private se c to r s in the p r o c e ss of developing and utilizing sk ills. Special em ph asis is placed on the development of a flow of infor mation needed to c a r ry out an effective manpower program . 59 A fric a T anzania Manpower Development for Industrialization Country C ase Study: United Republic of Tanzania (1966; 67 pages) P rep ared for the Center fo r Industrial Development, United Nations, by Robert L . T hom as, Consultant, The F ord Foundation T his c a se study d eals with e stim ate s, plan s, and im ple mentation actions relatin g to Tanzania’ s p rogram of high-level manpower development to m eet the needs of its Plan for Economic and Social Development. A description of the country, the economy, and the F iv e -Y e ar Plan se ts the stag e for the d isc u s sion on Tanzania’ s manpower supply/dem and outlook and on the v ario u s p ro g ram s for p ro ducing the sk ills needed for its e c o n o m i c development. T anzania’ s curren t stock of high-level man power sk ills w as estim ated in 1964 and matched with e stim ate s of demand in ord er to identify sh o rtfalls. E ffects on A fricanization and w astage from deaths and retirem ent were a lso con sidered in these a p p r a isa ls. It was concluded that scien c e-b a sed occupations requiring a univer sity degree or post-high school education su ffer the g re a te st sh o rtages. M ost other occupations would be in adequate supply by 1980. The targ et of “ self-su fficien cy by 1980” will be achieved if the P lan ’ s educational p ro g ram s are c a rrie d out. S u c c ess alread y has been ex perienced in the expansion of secondary school enrollm ent and the task of educating the public of the pu rp oses of a manpower pro g ram has been well done. 60 The strate gy for developing high-level sk ills in Tanzania includes the following: 1. Investment in education is made only to the extent that need for sp ecific sk ills e x ists. 2. G overnm ent-sponsored students m ust at tend the U niversity of E a st A frica. 3. Student gran ts are offered alm ost ex clu sively in facu lties producing sp ecific sk ills. 4. M easu res w ere introduced to in crease the number of scien ce and m athem atics students. 5. To c a r r y out the decision of A fricanize the public secto r f ir s t , governm ent-sponsored students m ust work for the Government for 5 y e a rs after graduation. The strategy fo r developing m iddle-level sk ills was relativ ely sim ple in concept. Many of these w orkers (n u rses, p rim ary te ac h e rs, technicians) will be trained in institutions op er ated by government m in istrie s. C le ric al w orkers and craftsm en will be trained p rim arily in trade and vocational sch o ols, in plant, and on the job; industry will assu m e the b asic resp o n sib ility for training many of these w orkers. A frica Tanzania Labor F o rce Survey of Tanzania (1966; 156 pages) Robert S. Ray, Consultant, The F ord Foundation The p rim ary objective of this study is to provide inform ation on labor supply in Tanzania to balance previou s rep o rts that dealt with labor demand only. Tanzania h as long needed to know m ore about its curren t supply of labor in ord er to (a) e stab lish a benchm ark for making projection s and (b) develop quantitative and qualitative data on m iddle-level and unskilled lab o r. The techniques used in this survey were adapted from other coun tries and should be applicable for su b se quent su rv ey s. ILO definitions, concepts, and recom m endations were followed throughout the survey. The survey was conducted by interviewing a sam ple of households covering 1.25 percent of the urban population and 0.5 percent of the ru ra l population. B a sed on population e stim ate s, 8,290 ru ra l and 1,225 urban households were selected and interviewed for a period in M arch 1965. There w ere 61 trained en um erators and 6 su p e rv iso rs engaged in collecting the data. The types of questions, liste d in the appendix of the rep o rt, were concerned m ostly with the em ploy ment statu s and the educational level of the r e spondents. Q uestions on hours worked and pay received helped pinpoint the extent of underem ployment. The appendix also contains an abridged (37 pages) en um erator’ s training manual. The bulk of the rep o rt analyzes the re su lts of the survey. Separate ch apters, supported by 77 tab les, d isc u ss the c h a ra c te ristic s of the popu lation and the labor fo rce , employment, the un derem ployed and unemployed, educational le v e ls, and mobility of the labor fo rce. In sum m ary, the r e su lts of the su rvey show that, out of an estim ated population of 10,248,000 in M arch 1965, over 95 percent were living in ru ra l a r e a s. More than half of the population were 14 y e a rs and o v e r. Of this group, tw o-thirds w ere in the labor fo rce; the rem ain der were keeping house, in school, or unable to work. The o v erall unemployment rate w as 4.0 percent, which represen ted 7.0 percent in the urban a r e a s and 3.9 percent in the ru ra l a r e a s . An excellent chapter d e scrib e s the v ariou s components and altern atives for m easurin g and analyzing under employment. 61 A frica T anzania Utilization of Tanzania Science G raduates of the U niversity of E a st A frica, 1962-66 (first draft) (1967; 18 pages) Ja m e s A. Johnson, Consultant, The F ord Foundation A study of recent university scien ce grad u ates to d eter mine the relationship between their u niversity training and their curren t employment. P rojectio n s of supply of and demand for high-level manpower had been made previou sly in Tanzania, but no inform ation w as available to estim ate the requirem ents to rep lace sp e c i ally trained p erso n s who fail to enter the occupa tion for which they were trained or who leave the occupation som e tim e after they enter it. To im prove the quality of projection s of man power requ irem en ts, a survey of recent scien ce grad u ates (1962-66) w as conducted to determ ine to what extent their un iversity training w as being utilized in their curren t employment. E ach graduate w as asked h is employment history, po st-gradu ate training, m obility, and a number of attitudinal question s. Of the 148 grad u ates from the university, 57 were p e r sonally interview ed, 60 were studying abroad under government sponsorship or on their own, and 31 w ere in ac cessib le a r e a s or otherw ise not available for p erso n al interview,. Of the 130 grad u ates who responded, 85 percent were em ployed in government or governm ent-related e n te rp rise s. Of the 57 respondents actually interview ed, percen t were employed in occupations for which their scien ce training was e sse n tia l; the r e m ainder were in occupations which b arely utilized their scien ce training. Other breakdowns by em igration, post-gradu ate training, etc., are d isc u sse d . 62 The study revealed that, without exception, the M in istries placed the grad u ates in p o sts with out re g a rd to their p re fe re n c e s. M oreover, gov ernment em ployees w ere apt to be tra n sfe rre d from a re a to a re a on sh ort notice and at frequent in terv als. C ontrary to the usual preferen ce fo r the capital city by educated p erso n s in m ost developing cou n tries, the g rea t m ajority of Tanzanians interviewed strongly p r e f e r r e d placem ent up-country rath er than a position in D ar e s Salaam . The re aso n s given for this preferen ce w ere better housing fa c ilitie s and a m ore satisfa c to ry clim ate. Recom m endations for government em ploy ment: 1. E stab lish a com m ittee to review a ssig n ment of grad u ates. 2. Include a factor fo r underutilization and for movement out of the occupation in next man power projection. 3. Review government policy of sc h o lar sh ips. 4. Remove “office work" functions from scien tific job s. 5. E stab lish uniform placem ent and tra n sfe r p o licies. 6. Provide adm inistrative and accounting training. A frica Togo The Employment Situation and the O rganization of the Employment Service (In French; 1960; 15 pages) ILO Report to the Republic of Togo; O IT /O T A /T ogo/R .2; Andre Aboughanem A study of the manpower situation and su ggestion s for the im provem ent of the Employment Serv ice, A ccording to the 1959 C en su s, population is estim ated to be 1,200,000. Approxim ately 500,000 are econom ically active, of which 90 percent are in agricu ltu re. Only 1,200 people are em ployers and 12,000 are wage and sa la r y w orkers in Gov ernm ent se r v ic e s, industry, and trade. T raining fa c ilitie s co n sist of a sm all training school and a few apprenticeship cen ters, sup plem ented by inform al on-the-job training. The methods of training are arch aic and have not kept pace with the changing needs of a m odernizing economy. The Employment Serv ice c o n sists of a D irec tor and six agents. Its placem ent se r v ic e s have been m inim al over the la st few y e a rs and appren ticeship se r v ic e s have been extrem ely lim ited. ordinate apprenticeship, training, and placem ent work. 2. The Employment Serv ice should have ad ditional personnel and should be reorgan ized into three section s: a. An inform ation section fo r employment m arket stu d ies. b. A section on sk ill development and appren ticeship training. c. A placem ent section. 3. The Employment Serv ice should organize a sm all center for sk ill development and the M inistry of L ab or and Social A ffairs should seek foreign technical a ssista n c e fo r the c en ters. 4. Worker c a rd s (carnets) should be abol ished b ecau se they a re a hindrance to mobility Recom m endations and placem ent of job se e k e rs. 1. The M inistry of L ab or and Social A ffairs 5. The Serv ice should regulate the placem ent of season al w orkers. should participate in economic planning and co 63 A frica T un isia Human R eso u rces for Econom ic Growth and Social P r o g re ss in T un isia (1961; 75 pages) Memorandum from Burnie M erson, AID Manpower A dv iser, to USAID/Technical S e rv ic e s D ivision, dated May 8, 1961. Sum m ary of re p o rts p repared by M r. M erson during his tour of duty in T unisia. The purpose of this memorandum is to p rep are the fram ew ork for the development of a position paper on human r e so u rc e s for the guidance of U.S. o ffic ials in T un isia. Infor m ation from vario u s re p o rts and a irg ra m s relatin g to manpower and human r e so u r c e s which w ere p repared during M r. M erson’ s tour of duty is pulled together to provide a cohesive an aly sis of the curren t manpower situation in T un isia. A doctrine of human re so u rc e development is p r e sented in relation to the economy a s a whole, econom ic and manpower planning, manpower m obilization, human freedom , and the ro le of sp ecific AID p ro g ram s. M a n p o w e r p ro g ram s and planning for economic development in developing countries req u ire a central planning and development agency. This organization e stab lish e s the needs and g o als of the economy a s a whole. Separate but coordinated functions to c a r ry out these go als should be the respo n sibility of sp ecialized units, such a s a manpower planning unit and an educational planning unit. T hese groups can develop methods and p r o c e ss e s for developing, 64 utilizing, and distributing manpower to meet the economic and so cial g o als. B a sic to economic and human reso u rc e development p ro g ram s is the need to under stand the institutions and attitudes which have developed a s p art of the tradition s of the society. An agricu ltu ral society experien ces difficulty in rapid adjustm ent to an industrial economy which dem ands disciplin e, productivity, leadersh ip, and entrepreneurship. The change over should be gradual and only a s needed. AID prio rity p ro g ra m s, at le a st in the ea rly sta g e s of development, should be directed toward im proving agricu ltu ral output, both in quantity and quality, to sa tisfy the m ost im m ediate needs of the country—food enough to feed the popu lation. A 31-page appendix d e sc rib e s the manpower problem s, tren d s, and developm ents related to T un isia’ s economic p rogram . All available s t a tistic a l data relatin g to the labor fo rce (ch arac t e r is t ic s , employment, industry, and occupation) a re assem b led and analyzed in light of the econom ic development plans. A frica T un isia Manpower, Education, and Traning in T un isia a s R elated to the USAID P rogram (1963; 32 pages) E dgar C. McVoy, AID Manpower Consultant An ap p raisal of manpower needs and of training p ro g ra m s to m eet these needs, and an a sse ssm e n t of fo r eign a ssista n c e . There a re acute sh o rtages of many types of trained manpower at all sk ill le v e ls. E stim ates of these needs and of potential supply were made for the T en-Y ear Development Plan (1962-71). In ord er to m eet these needs, the Government of T un isia began a pro g ram of educational r e form and expansion. The main ob jectives of this new sy stem are to provide u n iversal prim ary education, to give education a “ national* c h arac te r , and to provide trained manpower needed for development. The v a rio u s vocational training and apprenticeship p ro g ram s are scrutinized. The m ain agency respo n sible for im prove ment of manpower utilization is the Employment Serv ice, which was initiated in 1960 under the M inistry of Public Health and Social A ffairs. E m p h asis is placed on job m arket information; placem ent is a secondary function. The Serv ice has a sm all testin g and selection center for candidates of vocational training and apprentice ship. The M inistry of Education conducts its own te sts for students applying fo r adm ission to sch o ols. T un isia has not developed other featu res of an integrated sy stem of manpower utilization; there is no ov erall manpower policy or coord i nating board. M ost foreign a ssista n c e com es from French technicians, m ost of whom fill post a s teach ers civil serv an ts. The United Nations has a manpo w er-related p ro je ct for supporting the Occu pational T raining and Productivity Institute. M em bers of the U.S. P eace C orps are training teach ers and construction w orkers. USAID has many p ro je cts d irectly and indirectly related to manpower development. Recom m endations for USAID p ro g ram s A s a general policy, USAID should: 1. Provide enough technicians in each a r e a of study to coordinate with the Government of T un isia and with other technical a ssista n c e p ro g ra m s. 2. Develop a pool of F rench-speaking tech n icians in ord er to work m ore effectively with T un isians. 3. Require that U.S. con tractors train local w orkers at each sk ill level. 4. Extend additional a ssista n c e to the E m ployment Service to develop it into an effective manpower development, utilization, and d is tr i bution organization. 65 A frica T un isia A Study of the Public Employment Serv ice in T unisia (1965; 78 pages) Joint rep o rt by survey team : L a z a rd Seiff, AID; K arl A hlem ius, The F ord Foundation; E d g a rd -L o u isG o sse ,IL O R esu lts of an intensive su rvey of the Tunisian E m ployment Serv ice organization, adm inistration, function, and o b jectives. T his study a ro se from concern e x p re sse d by o ffic ia ls in the M inistry of the Plan and National Economy and the M inistry of Youth, Sp o rts, and Social A ffairs regard in g the a c com plishm ents of the Employment Serv ice. The su rvey team attempted to identify the strengths and w eak n esses of the Tunisian Employment Service with a view to in creasin g its con tri bution toward a p ro g re ssiv e manpower p rogram . All asp e cts of the Service were investigated. V isits w ere made to local o ffices and to em ployers. The m ajo r portion of the rep o rt d e sc rib e s in detail the ob servation s and recom m endations for each Employment Serv ice operation. Many of the 66 recom m endations w ere made by o ffic ials in the Serv ice and covered em ployer relatio n s, occupa tional c lassific a tio n , job ord er taking, applica tion taking and fillin g, recruitm en t, selection of applicants, r e fe r r a l techniques, followup of r e fe r r a ls to em ployers, and sta tistic a l re p o rt ing. Other ob servation s and recom m endations were made on the organization, staffin g, su p e r vision, and sta ff development in the Employment Serv ice. D etailed recom m endations are p r e sented on each of these topics. The final chapter of the rep o rt d is c u ss e s the form ulation of a policy strengthening the E m ployment Serv ice and fo r adapting its se r v ic e s to the changing needs of the economy. A frica T un isia Study of Manpower N eeds, Educational C apab ilities, and Over s e a s Study (1965; 41 pages) Education and World A ffairs (Report No. 8): Study Com m ittee on Manpower N eeds and Educational C apab ilities in A frica, p rep ared for AID. D escription of manpower and educational planning in T unisia. The Government’ s e stim ate s of sk illed man power needs are given in the T en -Y ear Develop ment Plan (1962-71). Total requ irem en ts at all sk ill le v e ls amount to over 15,000 trained p e r sonnel each y ear. T his figure r e la te s only to the secondary and te rtiary se c to r s and omit req u ire m ents fo r sk illed agricu ltu ral personnel. In ad dition, the plan failed to fo re se e T u n isia’ s lo s s of qualified manpower through the departure of many ex p atriates. T h erefore, trained manpower requ irem en ts m ay be much g re a te r than o r ig inally estim ated . E x istin g manpower data are insufficient to provide detailed e stim ate s of o c cupational needs. The g re a te st need ap p ears to be fo r m iddle-level manpower and fo r sk illed w o rkers. The T en -Y ear Educational Plan has fir s t p rio rity within the general development plan. In 1964, 26 percent of the national budget was allocated to education. Educational refo rm em ph asized in creased enrollm ents at every level in accordance with the econom ic, so cial, and cultural needs of the country. About 80 percent of the 3,000 students abroad w ere studying in F ran ce. It is anticipated that this number will be cut back d rastic a lly b ecau se enrollm ents at the U niversity of Tunis are high and the U niversity probably will be able to fill m ost high-level manpower needs within a few y e a rs. A ccording to current e stim ate s of man power requ irem en ts, the supply of high-level personnel is con sidered to be well over 40 p e r cent ahead of schedule, if needs of the a g ricu l tu ral secto r are included. It is anticipated that there will be a sh ortage of 1,500 high-level agricu ltu ral w orkers by 1972. Recom m endations 1. Further stu dies should concentrate on sp ecific occupational needs of key economic se c to r s. 2. Development of m iddle-level manpower should be accorded fir s t p rio rity . 3. Secondary training, agricu ltu ral training, and in -se rv ic e training should be supported by USAID. 67 A frica T un isia Reorganization of the Employment Service (In French; 1966; 39 pages) ILO Report to the Government of T un isia; O IT /T A P /T u n isia/R .1 5 ; E d g ard -L o u is G o sse (France) Role and function of the Employment Service and recom m endations for its reorganization. The Employment Service is located in the M inistry of Youth, Sp orts, and Social A ffairs. The m ajor se r v ic e s offered are placem ent, sta tistic s on placem ent and job re g istra tio n s, and occupational c lassific atio n . D eatils of the ad m in istrative and operating functions of the cen tra l office and branch o ffices are provided. Recom m endations 1. The Government should recognize the im portance of Employment Serv ice ac tiv itie s. 2. Both trained personnel and budgetary so u rc e s should be in creased in ord er to provide adequate se r v ic e s to the public. 68 3. Lab or inspection activ ites should be a sep ara te unit from Employment Serv ice activ i tie s. 4. The occupational c la ssific a tio n sy stem should be developed according to ILO reco m mendations. 5. S ta tistic s should be collected and analyzed on all asp e cts of the employment m arket situ a tion. 6. All agen cies involved in manpower devel opment should cooperate with each other and coordinate their plans for im proving the quality of the labor fo rce . A frica Uganda Report on the Survey of Manpower and Training (1959; unnumbered pages) Robert L . Thom as, Manpower Consultant, The Ford Foundation R esu lts of a su rvey to determ ine current and p ro jected occupational supply and demand. A su rvey of nonagricultural employment in the public and private se c to rs of the economy was conducted. Information on all le v els of occupa tions w as obtained through p erso n al v isits to 102 em ployers who represen ted 82 percent of all nonagricultural employment in Uganda. E m ployer cooperation w as excellent and no infor m ation w as denied the in terview ers. Supply in form ation w as obtained from educational and training institutions and from re c o rd s of individ u a ls studying abroad. C urrent employment by occupation and e s t i mated 1964 dem and/supply relatio n sh ips are presen ted in detailed tab les. Evidence indicates an urgent job m arket demand for an adequate supply of “better educated” manpower. Many v acan cies e x ist now becau se not enough trained people are availab le. This situation will becom e even m ore se rio u s in the next five y e a rs. Edu cational fa c ilitie s are not keeping pace with the anticipated expansion of government and indus try and with the need to rep lace those who die or r e tir e . T raining is needed p articu larly at the m id d le - le v e l occupational c ate g o rie s where se rio u s sh o rtages already ex ist. The M inistry of Education and Labour has been aw are of this educational need and has taken ste p s to in crease the supply. The number of grad uates of A frican schools has rise n but not enough. If in c re a se s are to be achieved and the urgent demand to be met, a reallocation or r e distribution of p resen t educational fa c ilitie s and funds will have to be made. The point w as str e sse d concerning the d e s ir ability of the establishm ent of adm inistrative m achinery for providing continuing job m arket inform ation. 69 A m erican R epublics Regional “A lianza p a ra el P ro g re so ” Demands Quick Action on Manpower and L ab or P ro g ra m s (1961; 44 p ages) Fernando S ie r r a B e rd ecia and M alcolm Kennedy, AID Consultants An a sse ssm e n t of p rogram needs and plan s in w orker education and lab o r lead er training and in labor min istr y adm inistration , in s ix L atin A m erican cou n tries. If the A lliance for P r o g r e ss is to be c a rrie d out so that the benefits of econom ic expansion are distributed equitably to those who contribute to the productive effo rts, it i s n e c e ssa ry to stren g then dem ocratic trade unions and to develop labor p ro g ram s that will guarantee fa ir minimum stan dards and im prove opportunities for jo b s. G eneral recom m endations, countries applicable to all 1. To p re se rv e dem ocracy in Latin A m erica, the U.S. public policy, a s stated in Public Law 86735, 1 / should be circu lated m ore widely and em phasized m ore p o sitively among U.S. p erso n nel on duty th ere. 2. When com pared with the need for fullsc a le , well balanced labor p ro g ram s, AID a s sistan c e is “ absurdly sm a ll.” W ell-trained p e r sonnel and efficient speedy se r v ic e s are needed to provide a stron g and resp ected labor m in istry. 3. R eliable sta tistic a l inform ation i s needed to know the nature and magnitude of labor prob le m s. 70 4. Employment se r v ic e s are needed to make better u se of the labor force in line with the requirem ents facing economic development. 5. P ro g ra m s for industrial safety m ust be developed to reduce lo s s e s in m an-hours. 6. Flexible sy ste m s fo r setting up minimum w ages should be estab lish ed to give w orkers in creased buying power. Specific recom m endations cover the following countries: Argentina (10 pages) B ra z il (5 pages) Colom bia (4 pages) M exico (4 pages) Uruguay (7 pages) Venezuela (5 pages) 1 / The policy of the U.S. Government “ sup p o rts the strengthening of fre e dem ocratic trade unions to r a is e stan dards of living through im proved labor-m anagem ent re la tio n s.” (Section 1 (b) (4), P .L . 86-735.) A m erican Republics Argentina T raining Qualified Manpower fo r Industry (In Spanish; 1961; 20 pages) ILO R eport to the Government of Argentina; O IT /T A P /A rg en tin a/R . 5 A rep o rt on the second stag e of the work of a group of ILO ex p erts from 1956 to 1960. The group w as asked to estab lish v ario u s educational p ro g ram s concerning vocational training and, in particular, to organize c o u rse s fo r in stru c to rs and sk illed workshop le a d e rs in general m echanics. The rep o rt is divided into three p a rts: P art I con cern s the p rob lem s existin g when the m is sion arriv ed . Argentina at that tim e w as r e o r ganizing her adm in istrative, econom ic, and so c ia l organizations on a national sc a le . One of im portance to the M ission was the combining of the National C om m ission of A pprenticeship and Vocational Orientation with the Office of Technical Education to form the National Council of Technical Education, CONET. Some of the prob lem s are d iscu ssed . They deal m ostly with lack of budget fo r adequate su p p lies and sa la r ie s . P oor coordination between the sch ools and industry lim ited adequate train ing for in du strial requ irem en ts. Need fo r train ing in agricu ltu ral a r e a s w as ignored. P a rt II d e sc rib e s the work accom plished by the M ission. Several sem in ars and c o u rse s w ere organized; for exam ple, a co u rse to im prove the com petence of in stru cto rs and workshop le a d e rs, study se s sio n s on technical teaching techniques fo r workshop le a d e rs, study p erio d s with p ro fe s s o r s of gen eral technology and m echanical draw ing. The m ission subm itted a program for skilled m echanics, lathe o p e rato rs, and m illw rights; planned p ro g ram s and selected p articipan ts for foreign gran ts; helped to in stall and utilize dem onstration equipment; and helped to cre ate a pilot center for training. P art III c o n sists of the following recom m en dations: 1. Consider creatin g perm anent government units to study the needs of lo cal in d u stries in the provin ces. 2. C reate a perm anent se rv ic e to exam ine the r e su lts of teaching techniques. 3. Study the p o ssib ility of giving autonomy to schools to take c a r e of im m ediate needs. 4. O rganize teaching c en ters so that all teaching personnel can learn from in stru cto rs who have taken improvement c o u rse s. 5. Grant fa c ilitie s to the d irector of teaching cen ters and in sp ectors to p erm it their p ro fe s sional im provem ent. 71 A m erican R epublics Argentina Survey of Manpower (In Spanish; 1957; 81 pages) ILO Report to the Government of Argentina; O IT /T A P /A rgen tin a/R .3; M r. Jo s e f Deroo (Belgium) A n alysis of the industrial and occupational stru ctu re of manpower in industry, b ased on available inform ation and on an establishm ent survey. A vailable data con sisted of c e n su ses of popu lation, birth and death r e c o r d s, and p rojectio n s made by the United Nations. T hese data are analyzed, a s fa r a s p o ssib le , by occupation and industry. D ata on student output of technical and p ro fessio n al schools also a re d escrib ed . A su rvey of nonagricultural estab lish m en ts in Buenos A ire s and se v e ra l provin ces provided manpower needs by industry. N early 2,000 e sta b lishm ents w ere included in the sam ple: all e sta b lishm ents em ploying 1,000 w orkers or m ore, and every third establishm en t employing 25 to 999 w o rkers. More than 1,200 establish m en ts represen tin g 261,000 w orkers responded. Eighteen in du stries w ere included in the survey. W orkers were c la ssifie d into 94 occupa tions. Job vacancy data and anticipated occupa tional needs six months after the survey also were requ ested. D etailed tab les provide the oc cupation and industry distribution s of current employment, job v acan cies, and future needs. 72 The rep o rt concludes that an abundant supply of w orkers who have few sk ills is available for in dustrial needs, but a sc a rc ity of skilled w orkers (such a s lathe o p erato rs and m echanics) will continue to e x ist. The su rvey in dicates that additional training p ro g ram s geared to the needs of industry are needed. Recom m endations call for the creation of a sy stem to collect inform ation about the actual and potential work fo rce; better coordination of sta tistic a l so u rc e s; the use of sta tistic s com piled by the so cial secu rity adm inistration; im prove ment of cen sus sta tistic s on labor fo rce and employment; c la ssific a tio n of occupations b ased on ILO recom m endations; development of the National Employment Serv ice; m ore attention to technical training; im provem ent in com piling sta tistic s on in du strial and technical training; c lo se r contact of training p ro g ram s with labor and industry; and the form ation of a national coordinating body. A m erican R epublics Argentina Notes for a Manpower Survey P rep ared for the Instituto Torcuato di T elia (1961; 27 pages) Robert L . Thom as, Manpower A dv iser, The F ord Foundation D escription of the techniques of obtaining manpower sup ply and demand data for the Center’ s p rospective survey of high-level manpower in Argentina. The Instituto T orcuato di T elia (the Center) proposed a study of the curren t and projected supply and demand of high-level manpower in Argentina. The purpose of the study w as to ef fe ct governm ental and private d ecision s in edu cation and training so that future sk ill output would be consistent with national needs. T hese Notes provided the b a s is for the study which the Center conducted in 1961-62. The m ajo r portion of this rep o rt d e sc rib e s the step-b y-step p roced u res n e c e ssa ry to c a r ry out the proposed manpower study: 1. Occupations to be covered—only p ro fe s sion al, technical, and adm inistrative occupations. 2. Sam ple cov er age—c o n s t r u c t i o n of a benchm ark. 3. Q uestionnaire design. 4. Methods of obtaining supply data from edu cational and training institutions. The r e su lts of the survey are d escrib ed in: L o s R e c u rso s Humanos de Nivel Universita rio y Tecnico en la Republica Argentina, P a r ts I and II, 646 p ag es (including a 116-page appendix, a 20-page bibiography, and a 12-page annex). Second edition 1964. Center fo r Econom ic Investigations, Instituto Torcuato di T elia. Techniques of the su rvey are d escrib ed in: Informe Metodologico R ec u rso s Humanos, A rgentina, by Enrique O teiza, 1963. Instituto Torcuato di T elia. Related re p o rts published by the Institute in clude: L a E m igracion de P ro fesio n ales y T ecn icos A rgentinos, by M o rris A. Horowitz, 1962. (6 p ages) Estim atin g Future Requirem ents for Engi n e e rs, by A1 B roehl, 1964. (54 pages) 73 A m erican R epublics A rgentina Industrial Development in Argentina (1961; 181 p ag es and appendix) Arthur D. L ittle, Inc. A study of the problem s of in dustrial development in Argentina. One section (pages 130-158) c o v e rs human re so u rc e development for industry. Sh ortages of personnel ranging from skilled labo r to top management a re co stly and lim it econom ic growth in every segm ent of industry. M ost training organization s have ju st begun operations and therefore cannot be evaluated c ritically . F o r exam ple, the Productivity Center h as b arely begun its program of upgrading labor; the Institute fo r Executive Development has ju st opened its do ors; the National Council of Tech nical Education (CONET) is so new that few people interview ed knew it existed. The m ajor recom m endations were: 74 1. A council of training organization s should be form ed to plan coordinated e d u c a t i o n a l effo rts. 2. An en larged and ac celerated program should be developed to in cre ase training fa c ili tie s outside Buenos A ire s. 3. Methods of d e c re a se the lo s s of trained people to other coun tries should be devised. 4. The number of sch olarsh ip applications should be in creased and the selection proced u res should be stream lin ed . A m erican R epublics Argentina O rganization of Technical Education and P ro fessio n al T raining S e rv ic e s for Industry (In Spanish; 1962; 85 p ag es and 12 annexes) ILO Report to the Government of Argentina; O IT /T A P /A rgentin a/R *7 Report stu dies actual and projected needs for technical and p ro fessio n al training, recom m ends national policy in these fie ld s, and e sta b lish e s p rio ritie s to attain the proposed ob jectives. Argentina had reorgan ized the se r v ic e s of a p p r e n t i c e s h i p and p ro fessio n al orientation (CNAOP) and technical education (DGET) to form the National Council of Technical Education (CONET) in May 1960. (Refer to O IT /T A P /A rgentina/R .5) P a rt I d e sc rib e s the structu re and functions of CONET. In gen eral, CO NET has not functioned sa tisfa c to rily . In resp o n se to a decree to sim plify adm inistrative ch ores through the decen tralization of a p art of its ac tiv itie s (e.g ., m ore autonomy to the schools), a new organizational structu re was recom m ended. C h arts are in cluded to show the actual stru ctu re and the p ro jected structu re. P a rt II r e fe r s to the stru ctu re and functions of the d iv erse training establish m en ts: (1) cen te r s to train qualified w orkers (2) schools to train technicians (3) sp e cial c o u rse s for ad vanced apprenticeship and (4) m issio n s to train a rtisa n s and fa r m e r s. P art III c o v ers manpower requirem ents and training needs. A su rvey of establishm en ts using a different b ase and coverage from previous stu dies of manpower was conducted. D etails of the survey are provided, and the r e su lts are used to estim ate apprentice training and technical training relativ e to needs of industry. The d is tribution of training institutions by educational le v els and geographic se c to r s a lso is analyzed. Recom m endations are b ased on these an aly ses. F ir s t stage p r io ritie s deal with the expan sion and im provem ent of training institutions. Second stage c o v e rs employment se rv ic e func tions which place people in jobs and determ ine needs of industry. Third stage d e sc rib e s sp e c i fic d etails of further refinem ent to provide a b ro ader b ase fo r institutional training. 75 A m erican R epublics B o liv ia O rganization of the Employment Service and the Development of a Labor M arket Information P ro g ram (In Spanish; 1959; 33 pages) ILO Report to the Government of Bolivia; O IT /T A P /B o liv ia/R .5 ; W illiam H. M ason (United Kingdom) A description of Employment Serv ice activ ities in Bolivia. The m issio n ’ s objective w as to aid the governm ent in developing the m e a su re s n eces sa r y to obtain reliab le and curren t inform ation on the manpower situation in B olivia. However, the expert had to dedicate a con siderable p art of h is work to the general organization of the Employment Serv ice. The f ir s t p ra c tic a l m anifestation of an E m ployment Serv ice w as a decree published A pril 4, 1945. The decree called fo r eight o ffices, but only one w as estab lish ed in L a P az . Very little had been accom plished up to the tim e of the m ission . Several other offices were created in M arch 1958. Their prin cipal function w as to place un employed mine and factory w orkers in public w orks p ro g ram s. The im m ediate need w as to e stab lish p roced u res to effect such placem ent. Development of the Service a s an instrum ent to 76 c a r ry out a policy of full employment w as to com e la te r. Job m arket inform ation is related inti m ately to such development. The m ost urgent inform ation needs a re liste d . Included in the rep o rt are evaluations of office in stallation s, b rie f d escriptio n s of sta ff du ties, and com m ents on sta ff recruitm ent and training. The m issio n outlined proced u res to be followed in the next few y e a rs and commented that much work is n e c e ssa ry to a ss u r e the con tinued functioning and future growth of the s e r v ic e , Technical recom m endations c a ll for a sytem atic program of em ployer con tacts, re p o rts on job m ark ets, and a plan fo r long-term manpower utilization. Those of an adm inistrative nature cover budget allocatio n s, office and equipment, organization, and personn el. A m erican R epublics B olivia Survey of the Comibol M ines (1964; 7 p ag es plus tables and ch arts) Edw ard L . Omohundro, U SA ID /Bolivia Manpower D ivision D escription of the re su lts of the fir s t attempt by USAID to gather and evaluate labor force data on the nationalized m in es. Inform ation collected in the su rvey of m ines included employment and occupational trends for each operating mine and the employment history of w orkers recently laid-off. An an aly sis of un em ployed and disch arged m in ers, and interview re sp o n se s from the m an agers of the operating m ines are presented in detail. Employment data on Comibol m ines cam e from the Social Security O ffice, USAID Control le r ’ s O ffice, and the Econom ic Section of the A m erican E m b assy . T hese data are not c o n sist ent, but they do re fle c t employment changes over tim e even if their le v e ls of employment do not ag re e. Inform ation on the occupational distribution of employment cam e from the Social Security Office fo r the third qu arter of 1963. The occu pations w ere coded according to the U.S. D ic tionary of O ccupations. No attempt w as made to obtain inform ation on w ages. N am es of laid off m in ers were obtained from v ariou s so u rc e s and intensive interview s were held with these people. The r e su lts of these interview s are ana lyzed in an unnumbered section of th is repo rt. Q uestionnaires requesting inform ation on employment, su rp lu s w orkers, plans fo r lay offs, r e a so n s for la y -o ffs, e tc ., were sent to the man a g e r s of Comibol m ines. The repo rt w arns that re sp o n ses to these questions may not re fle c t the views of central o ffices. About 80 p ag es of this repo rt are devoted to sta tistic s and an an aly sis of employment and related inform ation for each of the Comibol m in es. 77 A m ercian R epublics B o liv ia Manpower A sse ssm e n t Planning (In Spanish; 1964; 58 pages) ILO Report to the Government of B olivia; O IT/O ’T A /T A P /B o liv ia/R .9 ; D r. Sanford Cohen, U niversity of Michigan A review of av ailab le manpower inform ation and the de velopment of a manpower planning organization. B o liv ia’ s fir s t national economic and so cial development plan covered the 10-year period 1962 to 1971. T his document w as m ore of a declaration of ob jectives than a plan of action. Subsequently, a 2 -y e ar plan (1963-64) w as p r e pared to rem edy som e of the im m ediate d efici en cies of the long-term plan. The preparation of the next 2 -y e ar plan (1965-66) w as in the p r e lim in ary stag e. B ecau se of lack of manpower data, both sh o rt-term plan s w ere delayed in presentation . The National S e c re ta ria t fo r P lan ning and Coordination w as estab lish ed in mid1963 to develop these plan s. The ILO m issio n exam ined these sep arate plan s to identify the manpower ro le in econom ic developm ent. A side from specifying the ob jec tive of creatin g 60,000 new job opportunities annually, no mention of manpower w as made in the 10-year plan or in the 2 -y e ar plan s. Very few data were available fo r a n aly sis. The la te st cen su s of population w as fo r 1950 and all p ro jection s w ere m ade from th is b a se . A labor fo rce 78 sam ple su rvey w as conducted in 1963 but data from this source were not yet available. P r e lim inary estim a te s from th is su rvey indicated an unemployment ra te of 5 percen t, m ost of whom w ere new w orkers. The ILO consultant, a m em ber of the CE PAL group, worked with the M inistry of Planning and the manpower section of the M inistry of L ab or. He recom m ended the creation of a central man power planning section in the M inistry of P lan ning and the conversion of the regional em ploy ment se rv ic e o ffic e s, which have been virtu ally inactive, to manpower evaluation o ffic e s. These recom m endations and oth ers regard in g organ i zation are given in detail. The m ajor portion of the rep o rt is an annex represen tin g a sp e cia l repo rt to the National S e c re ta ria t for Planning and Coordination. The topic evalu ates the employment situation and problem s of manpower planning. T h is rep o rt coordinates available data on manpower and attem pts to analyze needs by econom ic sec to r. A m erican R epublics B olivia Bolivian A pprenticeship P ro g ram and the Highway T raining P ro jec t (1965; 11 pages) A rchie G. Beaubien, AID A pprenticeship A dviser A review of the experim ental w orker-train ing p ro g ram s included in construction con tracts and the modernization of the apprenticeship p rogram . The highway contract training p rop osal ap p e a r s to be d esirab le and worthy of a tra il run a s an experim ent to provide industrial training not otherw ise available to unskilled w o rkers. To im plem ent th is p rop osal, the following su g g es tions are made: the contractor should (1) hire a training d irector and se v e ra l job in stru cto rs; (2) construct and equip a training center; and (3) estab lish a ratio of appren tices to sk illed work e r s . Specific recom m endations regard in g the selection and training of appren tices also w ere m ade. Apprenticeship in B olivia is presen tly d o r mant. Sections of the labor code re fe r to appren ticesh ip. An effort w as made to revam p the law in late 1950’ s , but it foundered in the L ab or M inistry. An in te re st in the needs for an appren ticeship p rogram will be review ed a s soon a s in dustrial p rojectio n s and manpower training needs are fully a s s e s s e d . The consultant d is c u s s e s som e of the internal prob lem s of getting a training pro g ram started . 79 A m erican R epublics B olivia Manpower Development in the M inistry of L abor (1963-1965; 4 pages) DOLITAC 1 / Staff P aper No. 19; Edw ard L.Omohundro, Manpower A dviser Recom m endations for the establishm en t of a Manpower D ivision in the M inistry of L ab o r. The Manpower D ivision w as to have a m ajo r ro le in organizing and managing local and na tional employment m ark ets. T his D ivision w as expected to provide inform ation on labo r supply and demand, by occupation and industry, for each significant local job m arket. It w as to work c lo sely with all other agen cies involved in man power development planning. The consultant a ss iste d in strengthening the sta tistic a l and r e se a r c h branch of the Manpower D ivision. F ro m AID funds, s ix people were em ployed and $5,000 worth of office equipment was purch ased. In addition, se v e ral m em b ers of the sta ff received in -se rv ic e training; and two m em 80 b e r s attended the labor and p rice s ta tistic s se m in ar in Puerto Rico. The g re a te st obstacle in the re se a r c h branch, however, has been the com plete lack of coordination between the central office of the M a n p o w e r D ivision and the eight local o ffic es. It w as recom m ended that continuing technical a ssista n c e be provided the Manpower D ivision and that the employment m arket inform ation p ro g ram be continued. 1 / U.S. D epartm ent of L abor International Technical A ssistan c e C orps. A m e r ic a n R e p u b lic s B o liv ia A F e a s ib ilit y A s s e s s m e n t o f H um an R e s o u r c e D e v e lo p m e n t P la n n in g in B o l i v i a (1 9 6 5 ; 2 3 p a g e s ) D o n a ld P . S a n d e r s , A ID M a n p o w e r C o n s u lt a n t (O h io S t a t e U n i v e r s i t y ) D e s c r i p t i o n o f th e p r o b l e m s o f h u m a n r e s o u r c e d e v e lo p m e n t, th e cu rren t m a n p o w e r s i t u a t i o n in B o l i v i a , a n d r e q u i r e m e n t s f o r e f f e c t i v e m a n p o w e r p la n n in g . A s u m m a r y o f th e v a r i o u s p r o b l e m a r e a s o f m a n p o w e r d e v e lo p m e n t i n c l u d e s s t a t e m e n t s on E d u c a t i o n a l a c t i v i t i e s s e e m to h a v e b e e n c o o r d i n a t e d w ith th e N a t io n a l C o u n c il o f E d u c a t i o n a l th e C o o r d in a t io n . ru r a l/u r b a n so c io e c o n o m ic c le a v a g e , lo w p r o d u c t i v i t y a n d u n d e r e m p lo y m e n t , e m i g r a t i o n A s e r i o u s d e f ic ie n c y o f s t a t i s t i c a l d a t a a n d o f s k i l l s , i l l i t e r a c y , a n d th e e d u c a t i o n a l s y s t e m . i n f o r m a t io n o n m a n p o w e r a n d e d u c a t io n e x i s t s . B o liv ia ’ s m an p o w er a c tiv itie s a r e d ire c te d t o w a r d r u r a l e d u c a t i o n , c o m m u n it y d e v e lo p m e n t , a g ric u ltu ra l e x t e n s io n , a n d p u b l ic h e a lt h ; b u t v e r y lit t le h a s b e e n a c c o m p lis h e d . T h e 1 0 - y e a r p la n and th e 2 - y e a r p l a n s a r e i n a d e q u a t e f o r m a n p o w e r d e v e lo p m e n t . (S e e IL O r e p o r t R .9 ) . T h e a b s e n c e o f th e se d a ta p r e v e n t s an a d e q u a te a s s e s s m e n t o f th e c u r r e n t a n d f u t u r e s i t u a t i o n . S p e c ia l poor p ro b le m s q u a lit y in e d u c a t io n in c lu d e th e o f t e a c h e r s , th e h ig h w a s t a g e o f s t u d e n t s a t a l l e d u c a t io n a l l e v e l s , th e p a u c i t y o f s c h o o l s in th e r u r a l a r e a s , a n d i n a d e q u a t e f a c i l i t i e s to t r a i n p e o p l e . C o o r d in a t io n b e tw e e n in d iv id u a l p la n n in g a - T h e i d e a l c o n d it io n s u n d e r w h ic h h u m a n r e g e n c i e s a n d b e t w e e n p la n n in g a n d i m p le m e n t in g s o u r c e d e v e lo p m e n t p la n n in g s h o u ld b e c o n d u c t e d a g e n c ie s a r e d e s c r i b e d . T e c h n i c a l a s s i s t a n c e s h o u ld s e e k E d u c a tio n is not e ffe c tiv e . and H um an In a d d it io n to th e R e so u rce D e v e lo p m e n t S e c t io n o f th e M i n i s t r y o f P la n n in g , t h e r e a r e a l s o a P la n n in g S e c t io n o f th e M i n i s t r y o f E d u c a t i o n a n d a n O f f ic e o f U n i v e r s i t y D e v e lo p m e n t th re e m a in o b je c t iv e s to d e v e lo p h um an r e s o u r c e s : (1) to e n c o u r a g e c o o p e r a t io n a n d c o o r d in a t io n a m o n g p la n n in g a g e n c i e s ; (2) to p r o v i d e r e s o u r c e s fo r d a ta c o lle c tio n an d a n a l y s i s ; an d a t th e U n i v e r s i t y o f B o l i v i a . T h e E H R D s e c t i o n (3) o f th e M i n i s t r y o f P la n n in g a p p a r e n t l y c o o r d i w h ic h w ill i n s u r e th e t e c h n i c a l v a l i d i t y o f th e to p r o v i d e t e c h n i c a l s k i l l s a n d e x p e r i e n c e n a te s a ll g r o u p s bu t so m e w o rk h a s a lr e a d y b een e f f o r t . D e t a i l s o f h ow t h e s e o b j e c t i v e s s h o u ld b e d o n e w ith o u t a n y c o o r d in a t i o n o r c o n s u l t a t i o n . c a r r i e d o u t a r e p r o v id e d . 81 A m e r ic a n R e p u b lic s B o liv ia R e v ie w o f D a t a A v a il a b l e in B o l i v i a R e l a t i n g to P o p u la t io n a n d L a b o r F o r c e (1 9 6 7 ; Jo h n H. L in t o n , M an pow er A d v ise r, 33 p ag e s) H um an R e so u rc es A n a l y s i s o f p o p u la t io n a n d l a b o r p r o je c t io n s fr o m v a r io u s s o u r c e s . C u r r e n t a n d r e l i a b l e d a t a o n th e p o p u la t io n a ctu al D iv is io n , U S A I D / B o l iv ia f o r c e s t a t i s t i c s and p r o p o r t io n lo w e r b ecau se a n d l a b o r f o r c e in B o l i v i a a r e n e e d e d a s a b a s e th e m a r g i n a l l y e m p lo y e d , s u c h a s p a r t - t i m e s t r e e t p r o j e c t i o n s . T h e m o s t r e c e n t c e n s u s w a s ta k e n v e n d o r s a n d u n p a id f a m i l y w o r k e r s o n f a r m s . in The P o p u la t i o n D a t a a 1963 la b o r w o rk er* p r o b a b ly to f o r m u l a t e p l a n s a n d p r o g r a m s a n d to p r e p a r e 1 9 5 0 a n d a n ew o n e i s s c h e d u le d f o r 1 9 6 8 . “ g a in f u l is sa m p le c o n c e p t in c lu d e s h o u s e h o ld m any su r v e y in d ic a te s fo r c e p a r tic ip a tio n r a t e o f a ro u n d 40 to 4 5 p e r c e n t o f t o t a l p o p u la t io n . T h e 1 9 5 0 C e n s u s o f P o p u la t io n e n u m e r a t e d A b o u t 72 p e r c e n t o f th e l a b o r f o r c e w o r k e d 2 .7 m i l l io n p e o p l e . A d ju s t m e n t s f o r u n d e r c o u n t in a g r i c u l t u r a l a c t i v i t i e s , a c c o r d i n g to th e 1 9 5 0 an d fo r a c a lc u la te d c o e ffic ie n t o f e r r o r r e s u lt e d c e n s u s . B y 1 9 6 3 , t h i s f i g u r e i s e s t i m a t e d to h a v e in a n ew t o t a l o f o v e r 3 m i l l io n p e o p l e . D u r in g d r o p p e d to 67 p e r c e n t . S h o r t - t e r m p r o j e c t i o n s th e 1 9 5 0 ’ s , th e a n n u a l r a t e o f g r o w t h w a s 1 .4 o f la b o r fo r c e a c tiv ity , by in d u str y an d o c c u p a p e r c e n t , w e ll b e lo w th e a v e r a g e r a t e o f g r o w t h o f 2 .3 p e r c e n t e x p e r i e n c e d in o t h e r S o u th A m e r tio n , ic a n c o u n tr ie s. In 1 9 6 3 , u n d e r U .N . s p o n s o r s h i p , a s a m p l e h o u s e h o ld s u r v e y w a s m a d e . P o p u la t i o n w a s e s t i m a t e d t o b e n e a r l y 3 .1 m i l l io n p e o p l e ; n e a r l y 2 0 p e r c e n t l i v e d in u r b a n a r e a s . w ere m a d e b y U S A ID a n d o t h e r g r o u p s . S k i l l s L e v e l s o f th e L a b o r F o r c e F e w d a ta a r e a v a ila b le fo r a n a ly s is o f s k ill l e v e l s , e s p e c i a ll y f o r m id d le - le v e l s k i l l s su c h a s c r a f t s m e n in th e c o n s t r u c t i o n i n d u s t r y . T h e s e L a b o r F o r c e D a ta s k i l l s r e q u i r e p r i o r t r a i n i n g a n d e x p e r i e n c e to q u a l if y a t th e jo u r n e y m a n l e v e l . A b s e n c e o f o c T h e 1950 c e n s u s in d ic a t e s th a t ab o u t o n e - h a lf o f th e p o p u la t io n i s e c o n o m i c a l l y a c t i v e . T h e 82 c u p a t io n a l s k i l l d a t a m a k e e s t i m a t i n g a n d p la n n in g o f f u t u r e t r a i n i n g n e e d s d i f f ic u l t . A m e r ic a n R e p u b lic s B o liv ia N a t io n a l T r a i n i n g E s t a b l i s h m e n t s in V e n e z u e l a a n d C o l o m b i a a n d t h e i r R e l e v a n c e to B o l i v i a (1 9 6 7 ; 19 p a g e s ) J o h n H . L in t o n , M a n p o w e r A d v i s e r , H u m a n R e s o u r c e s D iv i s i o n , U S A I D / B o l iv ia D e s c r i p t i o n o f f e a t u r e s o f o t h e r L a t i n A m e r ic a n t r a i n i n g ce n te rs w h ic h m ig h t u s e f u l l y T h e v o c a t io n a l t r a i n i n g i n s t i t u t i o n s in C o lo m be a d o p ted in B o liv ia . T h e E l A lto ( L a P a z ) S c h o o l w a s d e v e lo p e d in b i a (S E N A ) a n d V e n e z u e la (IN C E ) w e r e c r e a t e d re sp o n se in r e s p o n s e to th e i n c r e a s i n g l e v e l o f i n d u s t r i a l a c t i v i t y in c o n s t r u c t i o n . It i s h o p e d , h o w e v e r , iz a tio n in th o se c o u n tr ie s and a to dem and stim u la te d by in c r e a se d dem and fo r th a t n ew d e m a n d fo r o th e r s k i l l s c a n u ltim a te ly g r e a t e r a n d h ig h e r d e g r e e o f s k i l l s in th e l a b o r b e m e t b y i m p r o v e d v o c a t io n a l t r a i n i n g in p u b lic f o r c e . T h e s e i n s t i t u t i o n s a r e s i m i l a r in c o n c e p t an d p r iv a te sc h o o l s y s t e m s . a n d o r g a n i z a t i o n . F o r e x a m p l e , th e y a r e a u to n om ous t r a i n i n g i n s t i t u t i o n s r e m o v e d f r o m th e r e g u l a r e d u c a tio n a l s y s t e m a n d th e y a r e s u p The P e tare IN C E has c o n s tr u c tio n c e r ta in tr a in in g fe a tu re s c e n te r at w h ic h m ig h t b e a d a p t e d f o r th e E l A lto ( L a P a z ) S c h o o l; t h e s e p o r te d b y a s p e c ia l ta x le v ie d on p a y r o lls . E a c h fe a tu re s o r g a n iz a tio n i s d e s c r ib e d s o th a t c o m p a r is o n s t r a d e , e m p h a s i s on h a n d t o o l s , t e a c h e r t r a i n i n g m a y b e m a d e a n d th e q u a l it y o f th e p r o g r a m s c o u r s e s fo r in str u c to r s. m ay be o b serv ed . in c lu d e sp ace arran g em en t fo r each T h e E l A lt o l o n g - r a n g e p r o g r a m i s to p r o v i d e t r a i n i n g f o r c u r r e n t e m p lo y m e n t d e m a n d in th e O b se r v a tio n s L a P a z a r e a . T h i s w ill r e q u i r e m o r e d a t a o n th e la b o r fo r c e an d on la b o r r e q u ir e m e n t s . S u ch d a ta a r e c o l l e c t e d b y S E N A ( C o lo m b ia ) w h ic h h a s i t s D e v e lo p m e n t o f t r a i n i n g i n s t i t u t i o n s s i m i l a r ow n s t a t i s t i c a l d e p a r t m e n t . E v e n t u a l ly , t h i s ty p e to t h o s e o f IN C E a n d S E N A w ill r e q u i r e m o r e o f jo b m a r k e t r e s e a r c h c a p a b i l i t y s h o u ld b e d e a n d d i f f e r e n t t y p e s o f i n d u s t r y in B o l i v i a b e f o r e v e lo p e d in B o l i v i a , p e r h a p s in th e M i n i s t r y o f d e m an d w a r r a n ts e x p e n d itu r e s fo r su c h s c h o o ls . L ab or. 83 A m e r i c a n R e p u b l ic s B r a z il S a m p li n g a n d O th e r S t a t i s t i c a l A c t i v i t i e s in B r a z i l , 1 9 5 6 - 5 9 (1 9 6 0 ; 11 p a g e s ) T h o m a s B . J a b i n e , A ID S a m p li n g A d v i s e r I n t r o d u c t io n o f s a m p l i n g t e c h n i q u e s a n d d a t a p r o c e s s i n g to th e B r a z i l i a n I n s t it u t e o f G e o g r a p h y a n d S t a t i s t i c s . T h e c o n s u l t a n t w a s a s s i g n e d to w o r k w ith th e d e s c r i b e d . A s u m m a r y o f a c c o m p l i s h m e n t s in B r a z i l i a n I n s t it u t e o f G e o g r a p h y a n d S t a t i s t i c s , e a c h t o p ic i s l i s t e d . R e c o m m e n d a t i o n s a r e m a d e (I B G E ) to s u g g e s t p o s s i b l e a p p l i c a t i o n s o f s a m f o r c o n tin u in g th e p r o g r e s s a l r e a d y m a d e b y c o n p li n g t e c h n iq u e s f o r 1 9 6 0 c e n s u s . T h e I B G E i s su lta n t th e p a r tic ip a n t tr a in in g o f c o m p u te r p r o g r a m m e r s F ed eral G o v e rn m e n t’ s c e n tra l sta tistic a l in sp e c ific fie ld s and by and o th e r s p e c ia liz e d f ie ld s . agen cy. D e t a i l s o f th e v a r i o u s a c t i v i t i e s r e l a t i n g to sa m p lin g a ss ig n m e n ts a n d to d a t a - p r o c e s s i n g s y s t e m s a r e 84 A m e r ic a n R e p u b lic s B r a z il S u m m a r y R e p o r t o f M a n p o w e r C o n s u lt a n t to USAED B r a z i l (1 9 6 3 ; 5 p a g e s a n d a t t a c h m e n t s ) T h e r o n J . W i l l i a m s , A ID M a n p o w e r C o n s u lt a n t D e s c r i b e s th e n e e d f o r m a n p o w e r a s s e s s m e n t a n d p l a n n in g c a p a b i l i t y a n d m a k e s r e c o m m e n d a t i o n s to a s s i s t in r e c tify in g d e f ic ie n c ie s . T h e N e e d f o r M a n p o w e r A s s e s s m e n t a n d P la n n in g A c r i t i c a l p e r i o d w a s r e a c h e d in 1 9 6 2 - 6 3 w h en B r a z i l e x p e r i e n c e d i n d u s t r i a l u n e m p lo y m e n t f o r th e f i r s t t im e fo llo w in g a d e c a d e o f e x p a n s io n . E c o n o m i c d e v e lo p m e n t p la n n in g r e q u i r e d r e a p p r a i s a l o f e m p lo y m e n t p o t e n t i a l . T h e n ew T h r e e Y e a r P l a n d id n o t r e c o g n i z e m a n p o w e r r e s o u r c e s a s a f a c t o r in i n d u s t r i a l i z a t i o n c a p a b i l i t y . U .S . a s s i s t a n c e to B r a z i l d id n o t p r o v i d e f o r , a n d w a s n o t e q u ip p e d to f i l l , t h i s c r u c i a l g a p in B r a z i l ' s p la n n in g . B r a z il itself w as n ot te c h n ic a lly e q u ip p e d f o r m a n p o w e r a s s e s s m e n t a n d p la n n in g , a lth o u g h m a n y o f f i c i a l s h a d r e a l i z e d th e n e e d an d h ad r e q u e s te d te c h n ic a l a s s i s t a n c e . R e c o m m e n d a tio n s tio n t h a t th e a t tit u d e a n d th e c o m p e t e n c e o f th e U S A ID m i s s i o n m u s t b e i m p r o v e d s i g n i f i c a n t l y b e fo re any r e c o m m e n d a tio n s c a n b e i n i t ia t e d e ffe c tiv e ly . A n O f f ic e o f M a n p o w e r P la n n in g a n d D e v e lo p m e n t s h o u ld b e e s t a b l i s h m e d to p r o v i d e i n f o r m a t io n , a d v i c e , a n d g u id a n c e to a l l p la n n in g a g e n c i e s o n h u m a n r e s o u r c e s . It s h o u ld in c lu d e a s m a l l s t a t i s t i c a l a n d r e s e a r c h s e c t i o n to o r g a n i z e a n d i n t e r p r e t , in m a n p o w e r r e s o u r c e t e r m s , th e d a t a c o lle c te d b y v a r io u s a g e n c ie s . A N a t io n a l B u r e a u o f L a b o r S t a t i s t i c s s h o u ld b e e s t a b l i s h e d to c e n t r a l i z e a n d c o o r d in a t e r e s e a r c h and d a ta - c o lle c tio n a c t iv itie s o f v a r io u s a g e n c ie s. A N a t io n a l E m p lo y m e n t Service S y ste m s h o u ld b e e s t a b l i s h e d t e m p o r a r i l y u n d e r th e p r o T h e p r i m a r y r e c o m m e n d a t i o n i s th a t a c o m p e t e n t m a n p o w e r c o n s u l t a n t b e a s s i g n e d to U S A ID p o s e d O f f ic e o f M a n p o w e r P la n n in g a n d D e v e lo p on a fu ll- tim e b a s i s . T h e p r o g r a m re c o m m e n m e n t o f L a b o r . (S e e R o b e r t C l a y r e p o r t f o r d e t a i l s d a t i o n s , a s f o l l o w s , a r e m a d e w ith th e q u a l i f i c a o f e m p lo y m e n t s e r v i c e f u n c t io n s .) m e n t , a n d e v e n t u a l ly t r a n s f e r r e d to th e D e p a r t 85 A m e r i c a n R e p u b l ic s B r a z il T e c h n ic a l Labor P ro gram (1 9 6 3 ; R o b ert J. C la y , A ID — E n d -o f-T o u r R e p o rt 7 p ag e s) Labor T e c h n ic a l O ffic e r D e s c r i b e s th e o b j e c t i v e s o f a p r o p o s e d t e c h n i c a l l a b o r p ro gram a n d th e w o r k o f th e c o n s u l t a n t to d e v e lo p s u c h a p ro gram . T h e o b j e c t i v e s o f th e p r o g r a m w e r e to p r o s h o u ld b e s e m i a u t o n o m o u s , a n d tw o m o d e l o f v id e a s t r a t e g y o f h u m a n r e s o u r c e s d e v e lo p m e n t f i c e s s h o u ld b e e s t a b l i s h e d i n i t i a l l y in R io d e a n d u t i l iz a t i o n t h r o u g h m a n p o w e r a n a l y s i s , p la n Ja n e ir o and S ao P a u lo . n in g , a n d o r g a n i z a t i o n ; to p r o v i d e a n e m p lo y m e n t 3 . U S A ID s h o u ld a s s i s t b y p r o v i d i n g (a ) a s e r v i c e to s e r v e a s th e p r i n c i p a l s u p p o r t a g e n c y l a b o r l e a d e r p a r t i c i p a n t t r a i n i n g p r o g r a m ; (b) f o r m a n p o w e r s t r a t e g y ; a n d to a s s i s t in a p la n w h ic h v i s u a l i z e s a d o m e s t i c a l l i a n c e f o r p r o g w o r k e r - e d u c a t i o n p r o g r a m s ; a n d (c ) a f u l l - t i m e r e s s w h e r e b y th e S t a t e s o f S a o P a u l o a n d G u a n a b a r a e x t e n d th e b e n e f i t s o f th e p r o g r a m to o t h e r S ta te s. R e c o m m e n d a tio n s a w o rk e r-e d u c a tio n a d v is e r to h e lp d e v e lo p l a b o r t e c h n i c i a n to h e lp S U D E N E (th e S u p e r in t e n d e n c y f o r th e D e v e lo p m e n t o f th e N o r th E a s t ) d e v e lo p a m a n p o w e r r e s e a r c h a n d s t a t i s t i c s p r o gram a n d to a s s i s t S E N A I (th e N a t io n a l S e r v i c e 1. W hen c o n d it io n s w a r r a n t , a c o m p l e t e t e c h o f I n d u s t r i a l A p p r e n t ic e s h ip ) a n d o t h e r o r g a n i z a n i c a l l a b o r p r o g r a m s h o u ld b e i n i t ia t e d a n d c a r t i o n s to t r a i n t h e i r p e r s o n n e l in th e t e c h n i q u e s r i e d o u t w ith in th e f r a m e w o r k o f a n in d e p e n d e n t n e e d e d to d e t e r m in e m a n p o w e r s k i l l n e e d s a n d o r g a n i z a t i o n a l u n it. tr a in in g r e q u ir e m e n ts . 2 . A m a n p o w e r p r o g r a m w h ic h i n c lu d e s th e 4 . E m p lo y m e n t s e r v i c e w o r k s h o u ld i n i t i a l l y d e v e lo p m e n t o f a n a t io n a l e m p lo y m e n t s e r v i c e e m p h a s iz e in d u s tr ia l s e r v i c e s , su c h a s o c c u p a a s a s u p p o r t a g e n c y to i m p le m e n t p la n n in g a n d t io n a l a n a l y s i s o f m a n p o w e r r e q u i r e m e n t s on a c o n m i d d l e m a n a g e m e n t , a n d d e v e lo p in g a jo b m a r k e t and s t a t i s t i c s p r o g r a m . t in u o u s b a s i s s h o u ld b e p r o v i d e d . T h e a g e n c y 86 a n a ly sis and jo b e v a lu a t io n u p g r a d in g A m e r i c a n R e p u b l ic s B r a z il M a n p o w e r P la n n in g R e p o r t (19 6 5 ; 1 4 p a g e s ) D O L IT A C 1 / S ta ff P a p e r N o . 1; R a y m o n d L a r s o n , M an p o w er A d v is e r D e s c r i b e s th e p r o b l e m s a n d n e e d s in m a n p o w e r a n d m a k e s r e c o m m e n d a t i o n s f o r U .S . a s s i s t a n c e . T h e o b je c t i v e o f th e a s s i g n m e n t w a s to d e t e r m in e th e t y p e s o f a s s i s t a n c e n e e d e d to c o l l e c t a n d u s e d a t a in a n a l y z in g m a n p o w e r r e s o u r c e s and r e q u ir e m e n ts as o f th e g o v e r n m e n t , p r i v a t e , a n d u n i v e r s i t y sp o n so re d m an pow er a c tiv itie s. 7 . A ID s h o u ld e n c o u r a g e S E N A I to b e m o r e th e y r e l a t e t o B r a z i l ’ s e f f e c t i v e in o r g a n i z i n g e m p lo y m e n t s e r v i c e a c e c o n o m ic a n d s o c i a l d e v e lo p m e n t , a n d to p r e t i v i t i e s f o r i t s t r a i n e e s a n d f o r o t h e r s , a n d s h o u ld p a r e a w o r k p la n f o r s u c h a s s i s t a n c e . M a jo r M an pow er P r o b le m s and a s s i s t th e m in d e v e lo p in g i n f o r m a t io n on l a b o r N e ed s, and S u g g e s t e d A p p r o a c h e s to t h e i r S o lu tio n 1 . I m p r o v e m e n t o f th e D e c e n n ia l C e n s u s i s d e m a n d in g e n e r a l a n d f o r s p e c i f i c o c c u p a t io n s . 8 . T h e L a b o r M i n i s t r y s h o u ld b e a s s i s t e d in la w e n f o r c e m e n t . 9 . C o m m u n ic a t io n s b e t w e e n e m p l o y e r s a n d s c h o o l s s h o u ld b e d e v e lo p e d . needed. 2 . P r o j e c t i o n s o f o c c u p a t io n a l r e q u i r e m e n t s R e c o m m e n d a t i o n s f o r U .S . A s s i s t a n c e a r e n eeded. 3 . C u r r e n t i n f o r m a t io n o n p o p u la t io n , m o b il i t y , a n d l a b o r f o r c e c h a r a c t e r i s t i c s i s n e e d e d on 1 . T h e A ID H u m a n R e s o u r c e s O f f ic e s h o u ld a r e g i o n a l b a s i s , a s w e ll a s e a r n i n g s , e m p l o y h a v e a m a n p o w e r a d v i s e r to s u p e r v i s e a n d c o m e n t c o n d it i o n s , a n d m u l t i p le jo b - h o ld in g in k e y o r d in a te a ll m an p o w e r a c t iv it ie s . o c c u p a t io n s . 2. A 4 . A N a t io n a l C i t i z e n s M a n p o w e r A d v i s o r y C o u n c il i s n e e d e d to g u id e a n d c o o r d in a t e l a r g e h o u s e h o ld s u r v e y s w h ile a w a it in g a d e c i s i o n o n r e sp o n s ib ility fo r th e n a t io n - w id e t i o n s a n d to p la n e s t a b l i s h m e n t s u r v e y s . 3 . T h e U .S . s h o u ld s u p p ly a c e n s u s s p e c i a l i s t h o u s e h o ld to a i d in a m a j o r o v e r h a u l o f th e c e n s u s . I f t h i s t a s k h a s b e e n s t a r t e d a l r e a d y , th e n w o r k o n a 5 . A S t a t i s t i c a l A d v i s o r y P a n e l s h o u ld g u id e s e r i e s o f s t u d ie s on e a r n in g s , fr in g e b e n e fits, a n d o t h e r c o n d it io n s o f e m p lo y m e n t s h o u ld b e su rv e y . and U .S . t e c h n i c i a n s h o u ld b e s e n t to th e P la n n in g M i n i s t r y to a s s i s t in m a n p o w e r p r o j e c a d v i s e th e M a n p o w e r A d v i s o r y C o u n c il. 6 . B r a z i l ’ s u n i v e r s i t i e s s h o u ld b e in v o lv e d in B r a z i l ’ s m a n p o w e r p r o g r a m s . a M a n p o w e r C e n t e r a t th e U n i v e r s i t y o f B a h i a i s p la n n e d to c o o r d in a t e f o r th e S a l v a d o r a r e a a l l a ss is te d . F o r e x a m p le , 1 / U .S . D e p a r t m e n t o f L a b o r I n t e r n a t io n a l T e c h n ic a l A s s i s t a n c e C o r p s . 87 A m erican R epublics B r a z il An Overview of Industrial Education in B ra z il (1965; 15 pages) DOLITAC 1 / Staff P aper No. 30, Jo sh u a Levine and John Walsh A s s e s s e s the need fo r in du strial education in B ra z il, evalu ates AID e ffo rts in developing a p rogram , identifies the problem a r e a s , and m akes recom m endations fo r further AID a ssista n c e . In the absence of accu rate data, requirem ents fo r trained manpower can only be estim ated. U sing the experien ces of other coun tries, the consultants estim ate that the annual number of new entrants requ irin g sk ill training is 160,000. However, only half of this number is curren tly being trained each year. T h erefore, a substantial change is needed in existin g training institutions if they are to meet B r a z il’ s manpower needs. A sh ort description of each institution is provided. USAID effo rts to develop in dustrial educa tion s t a r t e d in 1946 when CBAI (C om issao B razileiro -A m erican o de Educacao Industrial) w as created. USAID contributions since that tim e appear to have been effective in bringing about useful change, but much still rem ain s to be done. The problem a r e a s in B r a z il’ s in du strial edu cational program fall into these c ateg o ries: 88 leadersh ip and direction, planning and develop ment, coordination, financing, staffing, and r e se a rc h and evaluation. In these a r e a s the follow ing recom m endations are made: 1. The A r e a Technical Center program should be continued and should direct its atten tion m ore to m eeting industrial manpower needs. 2. A training ad v iso ry team should a s s is t SENAI to reorien t itsp o lic ie s and p ra c tic e s. The team should be com posed of a training adm inis tra to r, four in-plant training a d v ise r s, three in du strial apprenticeship a d v ise r s, a labo r fo rce an alyst, and sh o rt-term technical a ss ista n ts in sp ecialized a r e a s. 1 / U.S. Departm ent of Labor International Technical A ssistan c e C orps. A m erican R epublics B raz il SENAI P ro jec t Review (1968; 6 pages) C h arles V. Youm ans, AID Manpower Development A dviser Review s the SENAI P ro ject to im prove its in dustrial man power trainin g p ro g ram s. The m ajo r p u rp o ses of the m issio n were to im prove the effectiv en ess of SENAI* s industrial manpower training p ro g ra m s, to in cre ase the number of tra in e es 20 percen t, to se t up a s y s tem to collect data, to im prove quality of in stru c to r s , and to develop instructional m a te ria ls. A manpower survey was planned and im plem ented in Sao Paulo. Data have been tabulated and a final rep o rt will be forthcom ing. Industrial manpower su rv ey s have been requ ested in other SENAI region s. A training program fo r an aly sts on “occupa tional an aly ses fo r training needs p u rp o se s” has been started . SENAI su ggested five p r io ritie s for the p ro ject team relatin g p rim arily to details of man power su rv ey s and to sp ecific school p ro g ram s. The r e s t of the rep o rt outlines the p r o g r e ss of each prio rity , participant training, counterpart development, and detailed v isits to schools and training cen ters. It w as recom m ended that the SENAI P ro ject T eam be continued at the four-m an level and the work be extended to the end of 1970. The im provem ent of industrial manpower train ing is one of B r a z i l ’ s m ost c ritic a l needs. 89 A m erican Republics B r itish Honduras The Manpower Situation in B ritish Honduras (1963; 23 pages) ILO Report to the Government of B ritish Honduras; IL O /T A P /B ritish H on duras/R 04; V.G. Munne (G reat Britain) A survey of the manpower situation, e sp ecially fo r sk illed occupations. A vailable data to analyze the manpower s it uation w ere m eager, The West Indies Population C en sus of 1960 provided som e b a sic fa c ts on pop ulation and labor force but v ery little on occupa tions. Future requirem ents for manpower will be a s s e s s e d m ore read ily after the national eco nomic development plan has been p repared and the requirem ents of sp ecific p ro je c ts within the plan can be studied. There ap p ears to be a sub stan tial su rplu s of labor and, u n less a m ajor econom ic expansion is realized , demand in the n ear future is not likely to ab sorb this su rp lu s. Since the construction industry is expected to have m ost demand for sk illed w orkers* the expert surveyed nine building co n tractors and other so u rc e s to estim ate curren t employment by occupation in the sk illed c r a fts. Skilled work e r s in occupations concerned with the m ain tenance and r e p a ir of equipment and m achinery w ere m ore difficult to estim ate since they are employed in sm all num bers among many firm s. Indications, however, are that these occupations are also in short supply. Recom m endations 1. Obtain technical a ssista n c e to aid man power a sse ssm e n t and planning. 2. E stab lish accelerated training c o u rse s for building tra d e s, 3. P rep are and maintain lis t of e sta b lish m ents, c la ssifie d by economic activity. 4. Obtain tabulations of the I960 Population Census from Ja m a ic a Tabulation Center. 5. Collect inform ation from all departm ents on economic development p ro je c ts affecting the manpower situation. A m erican Republics Central A m erica Human R eso u rc es of Central A m erica, Panam a and M exico, 1950-1980 (1960; 155 pages) L ou is Ducoff, United Nations, Economic C om m ission fo r Latin A m erica Com prehensive an aly sis of C entral A m erica’ s demo graphic situation and its relation to econom ic development and regional econom ic integration. Population in C entral A m erica, Panam a, and M exico has been expanding fa ste r than in any other region of the world. The av erage annual rate of in cre ase between 1950 and 1959 w as 3.2 percent. Urban population con sisted of about onethird of the total. Age com position of the popula tion, education le v e ls, m arital statu s, and other dem ographic asp e cts of the population are d is c u ssed . B a sed on the p a st trends of birth and death r a te s and their p rojected direction and m agni tude in the future, estim ated population to 1980 is provided fo r each country according to three assum ptions in r a te s of birth. L ab or fo rce is p rojected by r e g r e ssio n an aly sis. Built into these projection s are certain assum ptions regard in g the economic go als of each country. C om parative tren ds in g r o s s national product (1946-1956) indicate that relativ ely high annual growth r a te s were experienced in E l Salvador (5.3 percent), Mexico (6.3 percent), and C osta R ica (7.1 percent), resu ltin g in high per capita g ain s. GNP annual growth w as lower in other coun tries which had correspondingly low er p er capita gain s. B ased on m edium -as sumption population p rojectio n s, GNP growth r a te s to 1980 have to in creased 64 percent in Honduras and 91 percent in C osta R ic a ju st to maintain the 1954-56 p er capita r e a l GNP. T h is sta g gerin g task fo r Central A m erican countries which have lim ited reso u rc e ap p ears le s s fo rm i dable when other asp e cts of the problem are e x amined. F or exam ple, even sm all sh ifts from fa rm to industrial employment will affect total GNP; im proved farm in g techniques will in crease productivity; educational fa c ilitie s will provide a better p repared work fo rce. The appendix provides techniques and meth ods of projection s and a n aly sis, and detailed tab les on labor fo rce in each country. 91 A m erican R epublics C entral A m erica Industrial Manpower in C entral A m erica and Panam a Some Issu e s and A spects (1963; 34 pages) F ra n c is X, Gannon, Manpower A dviser to the C entral A m erican Economic Integration S e c re ta ria t (SIECA) D e sc rib e s existin g and potential so u rc e s of region al man power inform ation and su g g e sts adm inistrative m achinery fo r setting the manpower plan in motion. T raining p ro g ra m s are analyzed in light of technical manpower needs in the region. The manpower asp ect of economic integration of Central A m erica has lagged behind capital investm ent. Further expansion of the in tegra tion movement depends on the role which human fa c to rs m ust play in both contributing to and stim ulating regional integration. So fa r, man power inform ation and data have been produced by national m in istrie s but have not been c o o r dinated for region al an aly sis. It is su ggested that SIECA cre ate a Human R eso u rc es Office to stim ulate action and long-range coordination in manpower a n aly sis, planning, and utilization fo r the region. B a sic inform ation requ ired for manpower an aly sis com es from periodic c e n su se s which se rv e a s a b ase for interim su rv ey s. All Cen tra l A m erican countries have or are planning a cen su s, but they are lacking in m ost other in form ation so u rc e s. A study of the supply and demand for p ro fessio n al and m iddle-level tech nical manpower is being conducted by the Cen tra l A m e r i c a n Superior U niversity Council (CSUCA) to determ ine educational requirem ents for the projected labor fo rce . 1 / D isc u ssed are other curren t and proposed stu dies such a s studies of fam ily budgets, vocational training, m iddle-level manpower requ irem en ts. 92 The m ajor portion of the repo rt concerns region al manpower utilization. Manpower devel opment has not kept pace with the sw itchover from a rtisa n sk ills to highly technical sk ills required for the changing industrial clim ate. P a rt of the problem re su lts from tension that has developed between old and young work e r s and from antiquated methods of teaching. It is su ggested that m ore funds be devoted to technical education and that c lo se r tie s be e sta b lished between industry and vocational sch ools. A regional uniform apprentice training p rogram , including a sy stem of vocational guidance, is p ro posed. The variou s national training p ro g ram s a r e d iscu sse d to point up the div ersity of tra in ing sy ste m s. Coordination needed to stim ulate uniform ity may very well come through SIECA. To bring about ov erall manpower coordination, a Regional Manpower Planning and Development Conference to be held in the near future is r e c ommended. JL/ See O ferta y Demanda R ecu rsosH u m an os en C en tro am erica. 7 volum es, CSUCA, C osta R ica, 1966. A m erican R epublics Central A m erica A nalysis of Manpower S e rv ic e s in C entral A m erica (1966; 54pages) DO LIT AC ^1/ Staff P aper No. 14; Jennings L ee, Manpower Consultant, (Utah State Employment Service) D e sc rib e s available manpower se r v ic e s in Central A m er ic a and p ro p o ses a regional model of an employment organization. A com parative an aly sis of the v ariou s na tional employment se r v ic e s was made for the use of the O rganization of C entral A m erican States (ODECA) to encourage uniform regu la tion s, sy ste m s, and se r v ic e s fo r m eeting man power needs. Information w as obtained p rim arily from interview s with o ffic ials of government, educational institutions, and industry. E l Salvador has the m ost highly developed Employment Service in the region. It is a s e c tion organizationally subordinate to the National D epartm ent of A pprenticeships and has 41 p o si tions on its staff. The Employment Service in G uatem ala is the le a st developed and the le a st adequately staffed in Central A m erica; very few se r v ic e s are offered. Neither N icaragua nor Honduras has an Employment Serv ice of any con sequence. A detailed description of the types of se rv ic e s provided by an ideal Employment Serv ice Office is provided. To im plem ent these se r v ic e s, a r e gional model for a manpower se r v ic e s organ iza tion is presented. The model attem pts to coordi nate and recon cile the n a t i o n a l manpower se r v ic e s already in existen ce in E l Salvador, C osta R ica, and G uatem ala. In a few c a s e s , the prop osal m ay req u ire le g islativ e or ad m in istra tive action to get starte d at the national level. R egionally, the c o rrelativ e function would r e s t with ODECA. At som e la te r date, a Central Of fice fo r manpower se r v ic e s could be establish ed to interlock adm inistrative tie s. The fe asib ility of estab lish in g a pilot E m ployment Service Office in C osta R ica was in vestigated. The organization, functions, and p e r sonnel duties are d iscu sse d fo r setting up such an office coordinated with the ac tiv itie s of Na tional Institute of A pprenticeship (INA). Such an office could se rv e a s a regional center fo r tra in ing, experim ental work, and leadersh ip fo r other sim ila r offices in Central A m erica. (However, the consultant b elieves that E l Salvador is better equipped than C osta R ica since E l Salvador has developed m ost of the e ssen tial elem ents of a well-rounded Employment Service.) Among the recom m endations made were the following: 1. Manpower se r v ic e s in ROCAP should be strengthened and supportive se r v ic e s provided in each country. 2o F ull-tim e AID personnel should be a s signed to ODECA to a s s is t in its variou s func tion s. 3. L abor and manpower functions should r e s t with one person in country m issio n s. 4. Efficiency of DOLITAC team m em bers should be im proved by continuous language tra in ing, participation in United States manpower se m in a rs, and periodic sta ff m e e t i n g s of DOLITAC m em bers. 1/ U.S. D epartm ent of L abor International Technical A ssistan c e C orps. 93 A m erican R epublics C entral A m erica Improving Manpower S ta tistic s in Central A m erica (1967; 25 p ag es and 4 appendixes) DOLITAC Staff Paper No, 56; S h errill W. N eville, Lab or S ta tistic s A dv iser, (Utah State Employment Service) 1/ Manpower sta tistic s in the region are analyzed to aid the O rganization of C entral A m erican States (ODECA) draft plan s and p ro g ram s leading to im proved data. Population p rojectio n s indicate that the Cen tra l A m erican labor fo rce of 4 m illion in 1960 will double in siz e by 1930. The risin g tide of jo b se e k e rs p rese n ts an unprecedented challenge fo r private industry and government to find em ployment fo r t h e s e new w o rkers. Solutions to this problem of employment creation requ ire im proved sta tistic a l inform ation a s guidance. T h is rep o rt an alyzes available sta tistic s in each country (com parative data appear in appendix C) and su g g e sts im provem ents. Each country m ust plan for better population c e n su se s and interim sam ple su rvey s to provide curren t inform ation. Regional control and finan c ia l participation will a ssu re uniform tim elin ess and quality for the four sta tistic a l p rio ritie s of em ploym ent, unemployment, hours, and earn in gs. Only Panam a prov ides periodic inform ation on total employment and unemployment changes. C o sta R ica expects to publish these data soon. Honduras and E l Salvador need funds to effect uate p lan s. N icaragua has no inform ation on un employment. All countries have p artial inform a tion about w ages and sa la r ie s which should be m ade uniform and com plete. P resen t knowledge of unemployment conditions in Central A m erica i s weak. 94 A joint and cooperative regional effort and a centralized power of a fed eral type is needed to produce the requ ired employment and wage sta tis tic s . Only through cen tralized power will the Central A m erican countries arriv e at uni form definitions and methods, m eet tim e sched u le s, and dissem in ate the data. ODECA can ful fill the ro le of the fed eral counterpart to the six countries, but it needs finances, staff, and U.S. recognition. The money might come from a r e gional tax, foundation support, or other so u rc e s. In sum m ary, ODECA should be encouraged to serv e a s a central coordinating body to p ro mote and develop in each country a sta tistic a l program that is uniform , reliab le, and tim ely. The M in istries of L ab or should em ploy at le a st one high-level, competent e c o n o m ist-statisti cian to analyze all available data. Household and establishm ent sam ple su rvey s should be initiated and developed in each country, and 5-year popu lation c en su ses should be c a rrie d out to obtain com parative benchm ark data. 1 / U.S. Departm ent of Lab or International Technical A ssistan c e C orps. A m erican Republics Chile Some O bservations on the Chilean Education System and its Relation to Econom ic Growth (1963; 20 pages) P aper fo r the Conference on the Role of Education in E a rly Stages of Econom ic Development, at the U niversity of Chicago Rudolph C. B litz, Vanderbilt U niversity Some c h a r a c te r istic s of the educational sy stem in Chile, and the re aso n s why public education, with all it could mean for Chilean economic development, turned out to be a failu re. The Educational System 1. D ata on the school population from 19401957 showed that the relativ e proportion of s e c ondary and su perior education in creased sub stan tially in relation to p rim ary education, but that the proportion of su p erio r to secondary education dim inished, 2. The educational pyram id has an extrem ely narrow peak; i.e ., only 1.2 percent of those en tering p rim ary education enter the university, 3. A la rg e proportion of university entrants a re unprepared to study natural sc ien c es. Hence, the growth of enrollm ent in engineering and scien ce has narrow lim its. 4. The rate of school desertion , esp ecially at the e arly sta g e s of the educational ladder, is heavy despite the 40-y ear-o ld law of com pulsory p rim ary education and a tradition of free educa tion fo r m ore than a century. R eason s fo r the High D esertion Rate from the Education System 1. Income distribution is uneven and the ru ral a r e a s are iso lated in Chile. 2. Educational motivation m ay be weak be cau se of the com plete lack of a guild and appren ticeship tradition. 3. A country which has a high birth rate and a low life expectancy finds free gen eral educa tion a g re a te r burden than a country which has a low birth rate and a high life expectancy. Concluding O bservations 1. Chilean econom ic development has been impeded by feudal valu es and tradition s, e sp e cially in the agricu ltu ral sec to r. 2. The proportion of Chilean women in edu cation and the p ro fe ssio n s is high. T his m ay indicate a sta g e in development in which women are no longer d iscrim in ated again st and still have the advantage of cheap household help. A m erican R epublics Chile Manpower and Educational Planning in C hile—P relim in ary Study (1964; 62 pages) C h ile-C aliforn ia P ro g ram of Technical Cooperation, Stanford R ese arch Institute; W illiam J . P latt, A1 M. Loeb, and R u ssell G. D avis E valu ates existin g ac tiv itie s in manpower and educational planning, p ro je c ts supply and demand of manpower to 1970, and recom m ends a m ore efficient manpower plan ning organization. G eneral O bservations Educational institutions in Chile offer an im p r e ssiv e lis t of se m in a rs, c o u rse s, and work shops to develop m iddle- and high-level technical and m anagement manpower. Regional c o lleg es and other training institutions are expected to r e ta rd m igration to crowded urban a r e a s. Several organization s are assem b lin g m an power data that can form the b a s is fo r further stu d ies. F o r exam ple, INSORA (Institute of O r ganization and A dm inistration of the U niversity of Chile) is studying the supply and demand of grad u ates of p ro fessio n al, technical, and admin istra tiv e field s; and CORFO (National Develop ment Corporation) is studying manpower needs by in dustrial sec to r. Manpower Demand Supplementing INSORA and CORFO effo rts, a method of determ ining econom ic demand for educational output w as su ggested. D ata from the 1960 C ensus and e stim a te s of productivity trends w ere p rojected to 1970 to evaluate manpower requ irem en ts by m ajo r industry and occupation. 96 Educational Supply P rojectio n s of number of grad u ates at each level indicate a sh ortage of high-level manpower supply by 1970. Several recom m endations call for changes in the educational structu re; for e x am ple, 2 -y e ar co lleg es instead of 4 -y ear in sti tutions; red esign of co u rse content in secondary level to aid those term inating their education and training. Manpower Information and Employment Se rv ic es Recom m endations are outlined for providing an effective employment se rv ice exchange to match job opportunities with available sk illed manpower. O rganization for Manpower and Educational Planning Recom m endations and m ajor s t r u c t u r a l changes are proposed regard in g the organization and coordination of human re so u rc e s planning. A sp ecial unit to c a r ry out this function should be establish ed; an A dvisory B oard would r e p r e sent variou s public and private organization s a s coordinator of p o lic ie s, plan s, and p ro je cts. A m erican R epublics Chile T raining and Educational Needs in Chile’ s A gricu ltu ral Development (1965; 8S pages) C h ile-C aliforn ia P rogram , Stanford R ese arch Institute; W illiam J . P latt, Raymond A. San Giovanni, G. Allen Sherman, and Lloyd Dowler A study of the prob lem s of agricu ltu ral education a s they re late to requ irem en ts of the proposed ag rarian refo rm p rogram . Recom m endations a re made to aid in the p r e paration of an agricu ltu ral manpower development p ro gram . Data in th is rep o rt were gathered by con ducting perso n al interview s and by exam ining existin g sta tistic a l and planning rep o rts. The r e se a r c h team participated in m eetings of the A dvisory C om m ission on A gricultural Educa tion. Other organization s which w ere helpful were the Service of Technical Cooperation (SCT), the Institute of R ural Education (IE R), and the Foun dation of R ural L ife (a private secondary a g r i cultural school sy stem ). sem isk illed agricu ltu ral personnel. So fa r, the SCT has a p rogram in tra cto r operation and re p a ir. Its long-range plans c all for c o u rse s to train farm m an agers, ow ners, bu sinessm en , and w orkers. IER is qualified to a s s is t in ru ra l com munity development and sk ill training p ro je c ts. A lm ost every asp ect of ru ral life is embodied in IER p ro g ram s through 23 regional educational cen ters. F orm al Education Demand for A gricultural Personnel The Manpower Planning Office of the National Development C orporation (CORFO) estim ated the demand fo r 750,000 agricu ltu ral personnel in 1970 b ased on the assum ption that productivity would in cre ase 3.3 percen t p er year. In con trast, the r e se a r c h team estim ated productivity would in crease only 0.8 percent p er y ear. Thus, about one m illion agricu ltu ral personnel would be r e quired in 1970. A ccelerated Skill T raining This type of p ro g ram concentrates on the sh o rt-term objective of trainin g sk illed and The educational sy stem provides the founda tion for training by supplying teac h ers of train ing institutions. The technical educational level (US junior college level) su pplies the m iddlelevel manpower that is of c ritic a l im portance to achievement of Chile’ s agricu ltu ral go als. The secondary educational level (US high school level) su ffe rs low p re stig e in the ey es of the C hileans, and prov id es, in gen eral, poor quality preparation at a relativ ely high c o st p er pupil. Sections on adult education and on secondary and postsecon dary agricu ltu ral education are provided. Recom m endations cover all asp ects of training and education for the ru ral se c to r, in cluding adm inistration, fa c ilitie s and equipment, educational m a te ria ls, cu rricu la, and teach ers. 97 A m erican Republics Chile The Em igration of H igh-Level Manpower The C ase of Chile Pan A m erican Union: S.G. O livos (F o rm er Chilean A m bassador) and J.R . P erez (Specialist, L atin A m erican Human R eso u rces Planning Program ) R e su lts of a survey of Chilean p ro fessio n al manpower resid in g in the United S tates, The purpose of the su rvey of Chilean p r o fe s sional personnel resid in g in the United States is to provide data on em igration of high-level man power and, b ased on the r e su lts, to recom m end b a sic m e a su re s for the solution of the problem . The su rvey con sisted of a m ail questionnaire to a sam ple of the 2,320 u n iversity-level p ro fe ssio n a l Chilean em igran ts. Sum m ary of Findings 1. The g re a te st number of respondents is concentrated in C alifornia. 2. The la rg e st number is at the 27- to 37y ear age level. 3. M ost are m arried and have estab lish ed hom es in the United States. 4. Few er than 10 percent becom e naturalized U.S. citizen s. 5. Engineering and nursing account for 36 percen t of the total lo s s to Chile. Econ om ists a re next, and law yers are la st. 98 6. The v a st m ajo rity (80 percent) have p e r manent U.S. con tracts. 7. N early 40 percent of the p ro fessio n al em igran ts were u niversity p r o fe sso r s in Chile. 8. S a la r ie s to Chilean p ro fe ssio n a ls in the United States are high relativ e to those in Chile, but achievem ent of outstanding position s is the exception. 9. P rac tically all Chileans hope to return to Chile som e day. Recom m endations Sh ort-term : elim inate o b stac le s which im pede return of em igran ts; and e stab lish incen tives to facilitate return to Chile. L ong-term : define c le a rly the manpower policy in Chile; organize a central agency to develop human r e so u rc e s; e stab lish a cen tralized inform ation se rv ic e to r e g iste r all p ro fe ssio n als; in crease s a la r ie s to retain p ro fe ssio n a ls in Chile. A m erican Republics Colom bia Status of ICE T EX 1 / Survey of High Level Human R eso u rc es in Colom bia (1963; 17 pages) W illiam A. Langbehn, AID Manpower Consultant Review s p r o g r e ss made by IC E T EX in the manpower re so u r c e s survey and recom m ends guidelines to com plete the survey. The Survey Plan The p ro ject, an adaption of the r e se a rc h methodology utilized by the Institute Torcuato di T elia (Argentina), was divided into four b asic p h ases: (1) investigation of p reex istin g mate ria l; (2) supply; (3) demand; and (4) conclusions and an aly sis. The occupational coverage w as lim ited to high-level p ro fessio n al and adm inistrative personnel. On the supply sid e, the plan proposed to investigate the output of the educational sy stem at the 12th grade and above. On the demand side, all nonagricultural firm s who have 50 em ployees or m ore and all segm en ts of government em ploy ment w ere to be surveyed. In the data collection for both supply and demand p h ase s, the country was divided into six zones; each zone had a cen tra l re se a r c h group, generally a university, in charge of data collection. Sum m ary of the Status Work on the supply secto r w as well ad vanced; detailed planning for the an aly sis was com pleted. Work on the demand phase was on schedule; field work of data collection was to begin in August 1963. A nalysis of the economic development plan, a s the fir s t p art of the final stag e, h as been started . Completion was sched uled for m id -1964. Recom m endations 1. E a rly assu ran ce of adequate financing is e sse n tial. 2. Recruitm ent and training of the interview ing staff fo r the demand phase should be ex pedited. 3. A Human R eso u rc es Coordination Com m ittee should be form ed im m ediately. 4. The potential lack of cooperation by r e gional u n iv ersities m ust be anticipated and, if n e c e ssa ry , financial aid m ust be provided. 5. R ese arch m ust be integrated to include the census of population and work done by SENA (National Apprenticeship Service), the A sso c ia tion of Colombian U n iv ersities, a n d other agencies. 6. Im m ediate com m itm ents and d ecision s m ust be made to p r o c e ss the dem and-phase in form ation. 7. Plans for final an aly sis and for p rese n ta tion of the final rep o rt should be developed. 8. Followup by a sh o rt-term c o n s u l t a n t should be provided after the data-collection phase is com pleted. 1 / Instituto Colombiano de E sp ecializacio n T ecn ica en el E x te rio r (Colombian Institute fo r Advanced Training Abroad). 99 A m erican R epublics Colom bia IC ET EX J j Survey of H igh-Level Human R e so u rc e s in Colombia (1964; 12 pages) G abriel J . M olnar, AID Manpower Consulant Review s the p r o g r e ss of the IC E T EX survey, identifies the rem aining p ro b lem s, and provides an outline for the final repo rt. Inform ation on the educational output and the demand data w ere not ready fo r final an aly sis, although the education-output ph ase w as well advanced. The w eak n esses of the su rvey were a s follow s: (1) organization and coordination w ere lacking; (2) in many r e sp e c ts, the survey w as too inclusive for the amount of tim e, money, and personnel available; and (3) establish m en ts em ploying few er than 50 w orkers were not included. The prin cipal rem aining problem s hindering the an aly sis of the study concern e stim ate s of the following item s: 1. C urrent and future supply of and demand fo r occupations in the self-em ployed category. 2. C urrent (1963) u n iverse by industrial category. 3. Future r e q u i r e m e n t s of p rim ary and secondary school teach ers. 100 The consultant outlined the e sse n tia ls that the an aly sis of the su rvey should include and the form the final rep o rt should take. 2 / In addition, training se s sio n s fo r key o ffic ials of the Human R eso u rc es D ivision of IC ET EX w ere held on the techniques of making fo re c a sts from inform ation obtained from an establishm ent survey. 1 / Instituto Colombiano de E sp ecializacio n T ecnica en el E x te rio r (Colombian Institute for Advanced Training Abroad). See a lso , 1963 AID rep o rt by Langbehn. 2 / The final rep o rt w as entitled R e c u rso s y Requerim ientos de P erso n al de Alto Nivel, Colom bia 1964-1975, Im plications for Educa tional and Econom ic P o lic ies (246 p ag es), and published by IC ET EX , Departm ent of Human R e so u rc e s, in 1965. A 34-page sum m ary was p rep ared in English in 1966, under the title of R eso u rces and Requirem ents for Highly T rained P ersonnel. A m erican R epublics Colom bia A Com prehensive Manpower Planning P ro g ram fo r Colombia (1964; 31 pages) M. Vasudevan (India), ILO Expert Review s existin g manpower planning p ro g ram s, including the IC ET EX survey, and m akes prelim in ary observation s concerning the establishm ent of a com prehenisve human re so u r c e s program . Manpower planning in Colom bia re q u ire s action to develop w ell-train ed personnel and m easu re le v e ls of unemployment and underem ployment. The IC ET EX survey, when it is com pleted, will provide inform ation on the needs fo r high-level manpower and a s s is t in directin g educational p ro g ram s to sa tisfy these needs. An outline for planning an educational sy stem on the b a s is of manpower ob jectives i s sum m a rized in 14 step s. A d iscu ssio n on the value of the IC ET EX su r vey and its shortcom ings is presented. The m ost se rio u s lim itation is that the survey c o v ers only those estab lish m en ts employing 50 w orkers or m ore. Among the dozen or so recom m endations, one e m e rg e s a s being b a sic to any manpower development plan. It is recom m ended that the variou s official agen cies now active in human re so u r c e s coordinate their ac tiv itie s through a work group. IC ET EX should take the initiative to organize such a group. The agen cies involved include the M in istries of Education and L ab or, the Departm ent of Planning, IC E T EX , SENA, DANE, and the Colombian A sso ciation of Univer s itie s . F or further referen ce, see : Manpower P e rspective of Colom bia, by D ieter K. Zschork, Industrial Relations Section, Princeton Univer sity , 1967, 152 p ag es. 101 A m e r ic a n C o s t a R e p u b lic s R ic a O r g a n iz a tio n (In IL O O R e p o r t I T / T A P / C o s t a A n 1 9 4 9 , o f E m p lo y m e n t b u t IL O a n d w a s n o t C o n v e n tio n o p e r a t io n s d e c r e e . In p e r s o n n e l v ie w e r s , O ffic e 8 8 in a th e f o r o r r is o p e r a t io n s a n 3 0 e ffe c t iv e in r a t if ic a t io n J . N a tio n a l o f E m p lo y m e n t a s e c r e t a r y s tr e n g th e n e d c h ie f, in S a n b y S e r v ic e t h r e e in t e r J o s e ; t h e r e o f o f f ic e s in o th e r a r e a s . D u tie s a r e r e v ie w e d o ffic e in o f f ic e s jo b e x p e r t o f f e r s a n d r e v ie w e d a ll p la c e m e n t s o f th e S e r v ic e a n d r e c o m m e n d e d tio n a r y m e n ts in th e g e n e r a l. in g o f a H e S e r v ic e o f a s s u g g e s t e d n a tio n a l 1 0 2 a m a n p o w e r o ffic e a m a jo r a n d o f s t e p th e d e t e r o f te c h n iq u e s a n d a jo r w a s th e e s t a b lis h m e n t o f lo c a l e m p lo y m e n t p r o v id e d o c c u p a tio n s b a s e d P e r s o n n e l a ls o w e r e c e n t e r s . f o r p r e p a r in g o n IL O s e le c t io n a n d a d ic r e c o m t r a in in g p r e s c r ib e d . 1 ,0 0 0 e s t a b lis h m e n t s w e r e s u r v e y e d in o f J o s e to d e te r m in e p a s t , p r e s e n t , a n d p r o o n ly . E m e m p lo y m e n t, b y s e x a n d o c c u p a tio n . A s u r v e y w a s m a d e w ith s o m e m o d if ic a t io n s im p r o v e to w a r d f r o m c o n s is t th e th e m e th o d . th e e c o n o m y in r e o r g a n iz a t io n s e p a r a t e d m m e n d a tio n s. to d e v e lo p m e n t J o s e , s ix A s s is t a n c e s e c o n d p lo y m e n t to S t a t e s ) w e r e c o n s is t e d a s p e c t s S a n in je c t e d T h e R ic a ; (U n ite d o r g a n iz a tio n . S a n r e g is t e r in g C o s t a D o r a n O v e r n o S e r v ic e p a g e s ) G o v e r n m e n t M e s t a b lis h e d th e E m p lo y m e n t 1 9 6 1 ; 1 9 6 0 . I t s r e s p o n s ib ilit ie s f a r t h e r c o n s is t e d a n d u n til to S e r v ic e n e e d s w a s e ffe c t iv e w e r e 1 9 6 1 , th e th e R ic a / R .3 ; E m p lo y m e n t m in e o f S p a n is h ; lo c a l T h e d e t a ils e ffe c t iv e r e c o m m e n d a tio n s o f th e fu n c tio n s e m p lo y m e n t d e a lt a n d s e r v ic e p r im a r ily o p e r a t io n s o ffic e . w ith o f a n A m e r ic a n R e p u b lic s D o m in ic a n In te r im R e p o r t o n M a n p o w e r P la n n in g (1 9 6 3 ; A r n ie S o le m , R e c o m m e n d a tio n s p la n n in g a n d p lo y m e n t S e r v ic e , ta k e n H u m a n R e s o u r c e b y th e f o r f o r A ID th e a n d H u m a n in c lu d in g F i r s t th e m a n p o w e r T h e m a in o b s t a c le s d e te r m in in g s h o u ld a v a ila b le , d e v e lo p m e n t a n d m u c h a n d h a v e b e to g iv e n o f o n h u m a n th e tr a in e d n o t b e e n a n o v e r a ll r e s o u r c e s . p la n n in g a so u n d E m p lo y m e n t th e p o lic ie s T h e g e s t io n s r e s o u r c e p la n n in g . s t a t i s t ic a l d a ta p e r s o n n e l to c a r r y s e le c t e d . a r e s y s t e m 1 . 2 . n o t o u t t h is A b a s ic p r o g r a m e d u c a tio n a l p r io r it y E m p lo y m e n t c a n b e c o m e a n d fu tu r e h a v e b e e n a sh o u ld n u c le u s e x p a n s io n . o th e r a n d b a s ic s u b je c t s jo b m a r k e t w h ic h r e c o m m e n d a tio n s in fo r m a in c lu d e d w e r e s u g t r e a t e d in d e t a il: In fo r m a tio n n e e d e d f o r m a n p o w e r p la n O r g a n iz a tio n a n d p o lic ie s f o r m a n p o w e r d e v e lo p m e n t. to 3 . th e Im p r o v e m e n t E m p lo y m e n t a n d fu tu r e d e v e lo p m e n t o f S e r v ic e . . 4 . E m p lo y m e n t 5 . M a r k e t a n d u n e m p lo y m e n t. r e s e a r c h in to la b o r - in t e n s iv e c r o p s . S e r v ic e . p la n n e d n in g . 6. S e c o n d a n d fo llo w in g c o n s id e r a b le a n d S e r v ic e th e E m a r e h u m a n r e s o u r c e s r e q u ir e s g o o d m a n a g e a n d th e th a t e c o n o m ic p la n n in g e s t a b lis h in g o f to h u m a n e ffe c t iv e d ir e c t io n to c a r r y o r e o v e r , w o r k th e ta k e in s titu tio n s M s h o u ld d e v e lo p m e n t o f s p e c if ic p r o je c t s to b e u n d e r S e r v ic e . P la n n in g p r io r it y f o r o f h u m a n r e s o u r c e im p r o v e m e n t tio n . p la n D e v e lo p m e n t C o n s u lta n t in tr o d u c tio n a n d R e s o u r c e p a g e s ) M a n p o w e r e x p a n s io n E m p lo y m e n t 3 1 R e p u b lic to f o r b e A to a t e to c a p a b le e ffe c tiv e V is it s e s t im g iv e n fe w s t a ffin g p e o p le 7 . u r b a n f o r C o m m u n ity d e v e lo p m e n t a n d f a r m e x te n s e r v ic e s . le a d e r s h ip E m p lo y m e n t o b je c t iv e s f o r in d u s t r ia l a n d a r e a s , e n t s 8. U tiliz a tio n tr a in e d 9 . T r a in in g . e s t a b lis h m n e e d s io n o f s c a r c e m a n p o w e r . 1 0 3 A m e r ic a n R e p u b lic s D o m in ic a n R e p u b lic H u m a n R e s o u r c e s (1 9 6 5 ; A ID H u m a n R e s o u r c e s E v a lu a t e s D e v e lo p m e n t 4 0 D e v e lo p m e n t th e r e c o m m e n d s p r e s e n t a n R e p o r t p a g e s ) T e a m s t a t u s o f , E ld o n Y . e d u c a tio n a l e x te n d e d p r o g r a m S te w a r t, p r o je c t s T e a m L e a d e r a n d o f e d u c a tio n a l d e v e lo p m e n t. T h e A ID H u m a n T e a m v is it e d m e n t in s titu tio n s n a tio n a l m e n ts o th e r a n d c o lle c t e d in t e r v ie w s to T h e D e v e lo p m e n t b u s in e s s , a n d g o v e r n a n d a g e n c ie s , a n d R e s o u r c e s e d u c a tio n a l, n a tio n a l a n d th is d o c u r e p o r t . 1 . c o s t s t r a t e g y o f d e v e lo p in g h u m a n r e s o u r c e s S c h e d u le 2 . s u p p o r t U s e w ith a n d m a d e d e v e lo p m e n t 3 . in c o n ju n c tio n P u e r to e x p e r ie n c e , s e q u e n c e , in p r iv a t e N e w e x p lo r e d a n d in v o lv e d th e a n d to d e a l s w ith p r o g r a m a p p e a r in a d e q u a te . m In a i n t a i n e d h u m a n r e s o u r c e to a s s u r e c o o r d in a m e th o d s a n d in s titu tio n a l w h e n D e v e lo p in g m a t e r ia l o f e a c h p r o p o s a l, c o m p o n e n ts o f th e in p r o a p p r o a c h e s a n d o f th e t e a m e s b e fo r e . F o r b o o k th e e x a m p le , p u r c h a s e s , c o n s tr u c tio n . 1 0 4 r e s o u r c e s w a s o f e s t im th e p r o je c t a t e s a n d p r o p o s a ls s u p p o r tin g w ith in fo r d e v e lo p r a t h e r m a in th e 1 . R e o r g a n iz e 2 . D e v e l o p 3 . T r a in 4 . D e v e lo p a n d M fo r th e d e v e l c o v e r e d in is t r y n e w s a l a r y D e v e lo p C r e a t e o p m e n t 7 . (S e e a n d a d m a g r ic u lt u r a l S te w a r t 6. b e fo r e th e a t e a c h e r s 5 . b o o k s p r o p o s a ls r e s o u r c e s th e f o l o f E d u c a tio n . s c h e d u le f o r t e a c h e r s . th a n tr a in in g p r o je c t h u m a n p h ilo s o p h y t e a c h e r a n d o f lo w in g : c o n v e n tio n a l p r o c e d u r e s h u m a n r e s o u r c e s c o s t b r ie f , o p m e n t G a r c ia c la s s r o o m o r in c lu d in g $ 7 3 6 ,2 0 0 .) in s titu tio n s , p r o f e s s io n a ls . in R e p u b lic u n tr ie d m e n ta l c o m p h a s e s in itia tio n c o s t , e x e c u tio n D e s c r ip t io n d e t a ile d tio n . 4 . in p r o g r a m (T o ta l m a tio n . R ic a n e o m m u n ic a tio n a g e n c ie s d e v e lo p m e n t w ith in v o lv e m e n t. o f C o n tin u o u s a ll f o r D e ta ile d 3 . D e v e lo p m e n t s e c t o r s e c t io n s , p o s a l. in c lu d e s : 1 . o f th e r e p o r t i s d iv id e d in to b r e a k d o w n . 2 . T h e r e s t fo llo w s : in t e r d a ta f r o m p r e p a r e a s (S e e r e p o r t .) a d u lt a n d in is t r a t o r s . e d u c a t i o n . a n d s u p p o r t lit e r a c y e d u c a tio n . p o s t - g r a d u a t e d e v e l in s titu te . D e v e lo p G a r c ia a n d v o c a tio n a l J u s t i c e in d u s t r ia l r e p o r t .) e d u c a tio n . A m e r ic a n R e p u b lic s D o m in ic a n D e v e lo p m e n t o f V o c a tio n a l- I n d u s tr ia l (1 9 6 5 ; A ID H u m a n R e s o u r c e s T h is D e v e lo p m e n t r e p o r t c o v e r s ( r e f e r r e d o n e p r o je c t D e v e lo p m e n t T h e t e a m m a in w a s t r a d e s a n d g r o u p s , o b je c tiv e to a s s e s s in d u s tr y , a n d to o f th e to r o le T e a m ; E ld o n a s th e G a r c ia o f th e w a s to e x a m in e n e e d s in in t e r e s t o f lo c a l o f A ID . th e A 6- to 7 3 - y e a r e d u c a tio n S te w a r t, a n d J u s t ic e T e a m L e a d e r r e p o r t ) R e s o u r c e s l/2 - m o n t h c o u r s e c o u r s e w o u ld b e o r a m o r e g r a d u a te v a lu a b le fr o m a to in d u s t r y . s e c o n d a c tio n i s r e q u ir e d to im p r o v e s o c ia l v o c a t io n a l- in d u s a n d t r i a l Y . H u m a n U r g e n t o b je c tiv e T r a in in g p a g e s ) p r o p o s a l a n d J u s t ic e tr a in in g e v a lu a te d e te r m in e to a n d R e p o r t. G a r c ia p r io r it y 3 2 E d u c a tio n R e p u b lic a n d tr a in in g fie ld e c o n o m ic d e v e lo p m e n t o f th e c o u n tr y th ro u g h in th e D o m in ic a n w e ll p la n n e d a n d b a la n c e d s k ill m a n p o w e r t r a in R e p u b lic . in g T h e S k ille d M a n p o w e r D e v e lo p m e n t p r o g r a m t r a in i s o p e r a t e d y o u n g A d d itio n o f m e n w ith in c o u r s e s S e a b e e a u to o n a n d h o u s e p a r t ic ip a t io n d ie s e l w ir in g a n d r e f r ig e r a t in g a r e E v e n tu a lly , th e r e s p o n s ib ilit y o f s h o u ld L a b o r T h e o f to m in e M d a ta in is tr y to t r a in in g w e r e m e n d a tio n s t r a n s f e r r e d t r ie d t r a in in g s c h o o ls tiv e th e te a m e x is t in g fu tu r e b e a n d o n w e r e w h e th e r a a n d th e M g r a d u a t e sh o u ld b e s c h o o ls , O f to e v a lu a te a n d t e a m a to a n d r e c o m in d e t a il. N o c o m fr o m n e e d s a r e k n o w n , a a s t e r fo r m u la te d s k il l s to b e to d e te r m in e ta u g h t, o u ts id e lo c a tio n h e lp , a n d b u d g e ta r y r e q u ir e m p r o f e s e n t s . in is tr y p l o y e r s O b s e r v a t io n s th e o f r e c o m m e n d u tm o s t e x is t in g f o r n e e d s m m a n p o w e r p r o g r a m a v a ila b le m a n p o w e r W h en L a p r e s e n t e d A s k ill a i r - E d u c a tio n . s le v e l. s p e c if ic o f d ir e c t in g th e f r o m E m d e te r m in e m e c h a n ic s . a s s e s s th e q u a lity a n d ty p e s p r i o r i t ie s . v is it e d . a r e o f to a c tio n . s io n a l C e n te r n a tio n a l in d u s tr y w a s r e c o m m e n d e d f o r im m e d ia te o f e d . th e to p la n c o n d itio n in g a t C e n te r s u r v e y (S M D C ) s p a r a d e t e r c o n c e n tr a te d M a n p o w e r a n d m a n p o w e r E d u c a tio n b e im p o r ta n c e p o te n tia l tr a in in g . in th e s tr e n g th e n e d c o o p e r a tio n p a r t ie s i s D e v e lo p m e n t a t s h o u ld M a n d th e o r g a n iz a tio n o f to c o o r d in a te a c tio n p r o g r a m s o n s k ille d T h e B o a r d D iv is io n in is t r y o f o f V o c a tio n a l E d u c a tio n im p r o v e d . sh o u ld C o o r d in a tio n a n d a ll le v e ls a n d a m o n g a ll in t e r e s t e d b e e n c o u r a g e d a n d m a in ta in e d . 1 0 5 A m e r ic a n R e p u b lic s D o m in ic a n R e p u b lic D e v e lo p m e n t o f A g r ic u lt u r a l (1 9 6 5 ; A ID H u m a n R e s o u r c e s T h is r e p o r t c o v e r s o n e T h e a g r ic u lt u r a l R e p u b lic in c o m e , a n d a c c o u n ts e m p lo y s f u r n is h e s m e r c h a n d is e a n d in p r o d u c tio n o f a r e m e e t A g r ic u lt u r a l t h e s e a r e p r o b le m c o u p le d o f p r io r it y N a tio n a l E d u c a tio n 1 0 6 a n d i s n a tio n a l la b o r f o r c e , v a lu e T h u s , o f f o r o f th e Y . S te w a r t, a n d S te w a r t T e a m L e a d e r r e p o r t ) H u m a n R e s o u r c e s D e o f r a p id th e t r a in e d a a n d p r o g r a m e s s e n t ia l. t h r e e h ig h a n d N e w th e e d u c a tio n a l te a c h in g sh o u ld th e a f t e r b e th e r e b a s ic in s titu tio n s o f s y s t e m in s titu tio n s p r e s e n t , a b ilit y in s titu tio n s w ith d r a w n th e t r a in in g A t s c h o o ls a g r ic u lt u r e . t h e s e d e s p e c if ic a lly , a g r ic u lt u r a l r e o r ie n t e d . a g r ic u lt u r a l S o lu tio n s A d v is o r y b e i t s o p e d , e c o n o m ic s h o r t - t e r m a ll M o r e a n d in r e q u ir e a c tio n E ld o n to a s th e G a r c ia p r o p o s a l g r o w th i s n e e d s , w ill w ith p la n s a s th e th e th e r e q u ir e d . T e a m ; D o m in ic a n o f g r e a t . f i r s t T o th e P o p u la tio n h a v e n a tio n a l fo r m a tio n o f E d u c a tio n p a g e s ) R e p o r t. in d iv e r s ific a t io n a g r ic u lt u r a l r a n g e p e r c e n t n e e d s ( r e f e r r e d p e r c e n t p e r c e n t e x p o r t s . w o r k e r s a p p r o a c h , 4 a n d v e lo p m e n t. c u lt u r a l 5 5 9 0 n u tr itio n a l c r e a s e s e c t o r f o r D e v e lo p m e n t p r o je c t v e lo p m e n t 1 1 a n d sh o u ld o n ly te c h n ic a l b e R e p u b lic f o r e ig n sh o u ld a r e d e v e l to s u p p o r t a s s i s t a n c e i s c o n s id e r e d . a g r i to th e T h e r e s t o f b r o a d c o s t s a n d lo n g - t u r a l e d u c a tio n s . T h e B o a r d f o r e n t ir e th e s c h e d u le p r o g r a m $ 9 0 0 ,0 0 0 c u lt u r a l to r e p o r t p r o v id e s th e e s t im f o r p r o g r a m w o u ld c o n s t r u c t s c h o o ls . th e . b e t h r e e in itia tio n T h e t o ta l o f c o s t $ 1 ,6 7 5 ,0 0 0 , n e w a t e d a g r ic u l o f th e in c lu d in g v o c a tio n a l a g r i A m e r ic a n R e p u b lic s D o m in ic a n S u r v e y o f to N e e d s th e f o r a n d D o m in ic a n (1 9 6 6 ; 6 p a g e s D O L IT A C J o s h u a L e v in e P r e s e n t s w a g e A s a r e s u lt p r o g r a m t e r m w a s a d v is e r o f t h is m d e v e lo p e d in s k il l s is s io n , a d m in is t r a t io n ; 1 2 s ig n m e n t s ; p a r t ic ip a n t g r a m s a n d c o v e r e d a a n d s h o r t - t e r m th e a n d T h e 1 (E m p lo y m e n t p o w e r D o m in ic a n s k ill g o v e r n m e n t la b o r n a tio n a l a s p r o b u t g r a d in g p r o g r a m d e te r m in e in d u s tr y 1 9 6 5 n o s . (o n e o f H u m a n s k il l s a n d a r e a s o f A th e tr a in in g th e s k ill e n t s s k ill o th e r tr a in in g o r s u r v e y f o r i s s k ille d c o u ld s p r e a d b o a r d n e e d e d to w o r k e r s in D e v e lo p m e n t s h o u ld sh o u ld b e a ll o f d e v e lo p m e n t in th e T h e to a c c u m u la te a s s i s t o f M im p r o v e p r o d u c tiv ity . o p p o r tu n ity w a g e p r iv a t e b e o f i t s w a g e th e a n d s p e c ia liz e d a n a ly s is w a g e L a b o r A d m in is tr a tio n a w h ic h A w a g e e v e n tu a lly m a n a g e m e n t, L a b o r sh o u ld s t a r t o p e r a t io n s w a g e d a ta . S h o r t - t e r m in d e v e lo p s e c t o r . g o v e r n m e n t, r e v ie w to s y s t e m e s t a b lis h e d in is tr y tio n a l in s titu tio n s S h o r t s p e c ia liz e d p r o g r a m T h e th e T e a m ). p r o m o te d . a s s i s t to s h o u ld p a r t ic ip a t io n la b o r . sh o u ld a n d a n a n d te c h n ic ia n s a r e a s o f o c c u p a s t a t i s t ic s . s k ill- u p - r e c o m m e n d a tio n s o f M a n h a s g o v e r n m e n t- w id e im m e d ia te ly S k ille d tr a in in g c o o r d in a tio n t e c h n ic ia n s a g e A R e s o u r c e s t e r m W a n d a p p r e n tic e r e q u ir e m In te g r a tio n f o r C e n te r D e v e lo p m e n t s c h o o ls a a c q u is it io n , p o lic y w ith R e s o u r c e s ) h a s A d v is e r s in m a n p o w e r , T h e f ie ld s : R e p u b lic 1 7 ; v a te to T h e N o . M a n p o w e r a d m in is t r a t io n . a n d M a n p o w e r L a b o r a p p e n d ix ) P a p e r V ie , A s s is t a n c e o f lo n g te c h n ic ia n tr a in in g . fo llo w in g in in is tr y f o r te c h n ic a l a s s i s t a n c e la b o r o n e o n e T e c h n ic a l M a n d S ta ff E ld o n t w o - y e a r r e q u ir in g tr a in in g JL / a n d p r o p o s a ls p o lic y , P o te n tia l R e p u b lic R e p u b lic . i s o f s a f e t y p r im n ic ia n s , s a f e t y in a n d a r y h e a lth c o d e s p r o m o tin g w o r k e r s im p o r ta n c e . t h e r e f o r e , te c h n iq u e s o f f o r o f s h o u ld th e S h o r t - t e r m a d v is e in d u s tr y , s a f e t y o n in tr a in in g a n d e m p lo y e r i n t e r e s t in jo b te c h d e v e lo p in g in s p e c t o r s in s p e c tio n , a n d s a f e t y p r o g r a m s . P o lic y w a g e p o lic y d is t r ib u t io n , w ill in c r e a s e s e r v e to im p r o v e p u r c h a s in g in c o m e p o w e r , m o ti 1 / U .S . T e c h n ic a l D e p a r tm e n t A s s is t a n c e o f L a b o r In te r n a tio n a l C o r p s . 1 0 7 A m e r ic a n R e p u b lic s D o m in ic a n R e p u b lic F i r s t N a tio n a l C o n fe r e n c e M a n p o w e r in th e (1 9 6 6 ; JL / D O L IT A C R e p o r t o f th e M a n p o w e r T h e C o n fe r e n c e m e n d a tio n s d e n t o f th e w h ic h S ta ff D o m in ic a n D o m in ic a n 7 N o . 2 9 ; a n d A r c h ie tr a in in g to f o r th e P r e s i a d o p tio n a n d T h e tio n c o o r d in a tin g th e s o u r c e s in t a x w o u ld p la n 2 . th e C r e a t e f a c il it i e s , e d u c a tio n 3 . 4 . a n d c o m c o u r s e s , a n d s k ill a t r a in in g , m o d e r n iz e a n d s u p p o r t a P r o v id e tr a in in g a b e r e s p o n s ib le m th e h u m a n A n f o r to n e e d s o f th e p r e s e n t N a tio n f o r m e th o d f a c il it i e s c e n t e r s th e th e a d e q u a te s u r v e y o f s t a f f , s y s t e m w o r k e r s y s t e m o f v o c a s k il l s , a n d th e ty p e N a tio n a l . b e w e r e S e v e r a l m a d e . In a n d s u p A d m in is tr a tio n u p d a te d w ith s t a f f . m a n p o w e r p r o g r a m n e e d s i s tr a in in g a i s th e s u r v e y t o o ls , p r o g r a m in g e n e r a l, f i r s t r e q u ir e m f a c il it i e s , e q u i p m e n t , a g a in s t T h is th e s k ill im p o r ta n t in d u s t r ia l to a n d i t s o p e r a a d v is e r . c o m m e n ts n e e d s a n d la w th e D o m in ic a n m o n e y R e g a r d in g a b y a n d la w th e c o o r d in a te d c o o r d in a te d o f r e v ie w e d b y E q u a lly s u r v e y tr a in in g . u p g r a d e a s p e c t s r e c o m m e n d a tio n s r e in d u s tr y in s titu tio n . is s io n a n d o f R e p u b lic . a p p r e n tic e s h ip tr a in in g to d e v e lo p m e n t D o m in ic a n E s t a b lis h tio n a l in s titu te B e a u b ie n c u r r e n t a p p r e n t ic e s h ip w e r e e s s e n c e , a n o f R e p u b lic p o r t e d C r e a t e D e v e lo p m e n t p a g e s ) a p p r e n tic e s h ip im p le m e n ta tio n : 1 . a n d C o n fe r e n c e . p r e s e n t e d R e p u b lic T r a in in g P a p e r a d o p te d th e fo llo w in g r e c o m w e r e o n o f v o c a tio n a l in c lu d in g c o m p a r e a n d te a c h in g c u r r ic u la , w o u ld e n t . e t c . th e A n e e d s f a c il it i e s a n d a tte m p t to m e e t th e g a p . o f c o u ld w o r k M a n p o w e r b e d o n e b y th e n e w C o m m itte e . w h e r e b y th e e d u c a tio n a l a n d a r e c o u r s e s in th e s c h o o ls r e v ie w e d a n d u p d a te d p e r io d ic a lly . 5 . in g I m p r o v e r e la t e d to c o u n tr y . 1 0 8 e d u c a tio n , th e p u b lic tr a in in g , s e r v ic e a n d r e t r a in n e e d s o f th e 1 / U .S . T e c h n ic a l D e p a r tm e n t A s s is t a n c e o f L a b o r C o r p s . In te r n a tio n a l A m erican Republics Dominican Republic Survey of Skilled Manpower Needs (M ay-June 1967; 5 p ag es and 4 tables) DOLITAC 1 / Staff P ap e rs No. 51 (English) and No. 52 (Spanish); Howard Kumin, L abor Statistician D e sc rib e s the methods used and the r e su lts of the survey of skilled manpower needs. This su rvey was conducted a s a resu lt of recom m endations made by se v e ra l p re d e c e sso r AID consultants. B a sic data w ere needed for determ ining training needs in sp ecialized sk ills. Inform ation was collected from sam p les of estab lish m en ts employing 10 p e rso n s o r m ore in m anufacturing in d u stries and in construction, h o sp itals, electricity , and other in d u stries. The occupational distribution, level of training, r e placem ents, and estim ated needs were the p rim ary objectives of the survey. D ata from 186 establish m en ts employing n early 32,000 w orkers revealed the following: 1. N early three-fourth s of the w orkers were con sidered qualified for their jobs; the r e s t needed further training. 2. If b u sin e ss w ere to in crease 10 percent, very few additional w orkers would be required, according to em ployers. 3. Only 38 job vacan cies were reported. 4. T h ree-fifth s of the estab lish m en ts r e ported no difficulty in recru itin g w orkers they needed. 5. M ost estab lish m en ts upgrade their work e r s a s opportunities a r is e . 6. T hree-fourths of the establish m en ts felt their w orkers could benefit from additional training. 7. Tw o-thirds of the establishm en ts would give tim e off fo r additional training. 8. The difference between peak seaso n and sla c k seaso n employment averaged 38 percent fo r all in du stries and 66 percent fo r the food industry. F o reig n ers occupy m ost of the few highlysk illed position s which ex ist. M ost sem isk illed op eratives can be trained in a few w eeks or months. Upgrading w orkers already on the job m ay be the m ost prom isin g field fo r manpower training. 1 / U.S. Departm ent of L ab or International Technical A ssistan c e C orps. 109 A m erican R epublics Dominican Republic Prom oting Industry Involvement in T raining P ro g ra m s (A pril-A ugust 1967; 8 pages) DOLITAC 1 / Staff P aper No. 48; Eugene Hood, A pprenticeship ad v iser A review of the curren t situation in training for in dustrial job s. The ad v iser v isited in dustrial establish m en ts in Santo Domingo, lo cal vocational and com m eric ial sch o ols, and labor organizations and m ade the following observation s: 1. T rainin g in industry i s usually inform al and on-the-job. Many industry o ffic ials r e cognized the need for estab lish in g training p ro g ra m s fo r their presen t and future work fo rce. 2. All labo r groups were eag er to prom ote on-the-job and related training p ro g ram s with m anagem ent. 3. Government o ffic ials are not u su ally fam i lia r with the role that government play s in developing training p ro g ram s. 4. Vocational school o ffic ials seem ed eag er to im prove their presen t ac tiv itie s. antiquated equipment fo r jobs which are not av ailab le. Only about 20 percen t of grad uates are being placed in job s for which they received training. The v ario u s so cial and economic problem s a risin g from the poor orientation and coordina tion of the p resen t training sy stem are d is c u ssed . A lso liste d are b a sic b a r r ie r s to manpower training, including the lack of le a d e r ship to c a r ry out an effective, corrdinated trainin g program . Recom m endations concentrated on the e s tablishm ent and development of a training agency to coordinate the vario u s training institutions, p ro g ram s, in dustrial needs, and other related top ics. Specific su ggestio n s also were made fo r each of these topics. C urrent training p ro g ram s a re not meeting industry needs sin ce the vocational schools are not coordinated with each other o r with local industry needs. Students are being trained on 1 / U.S. Departm ent of Lab or International Technical A ssistan c e C orps. 1 1 0 A m erican Republics Dominican Republic Improvement of the Statistical P ro g ram in the S e cretariat of L ab or (1967; 17 pages) DOLITAC 1 / Staff P aper No. 58; Howard Kumin, S tatistical A dviser A description of the effo rts made to im prove the sta tistic a l program of the M inistry of L ab or; sp ecial referen ce is given to the labor fo rce survey and to the fam ily income and expenditure survey. The curren t role of the M inistry of Labor a s a collector of sta tistic s is reviewed. Labor sta tistic s are a by-product of the program fo r the enforcem ent of labo r law s. The sta tistic a l section has m aintained and sum m arized re c o rd s of a c c e ssio n s, sep aratio n s, and occupational changes of estab lish m en ts. Improving both the coverage of establish m en ts and the accu racy of the re p o rts were outside the term of referen ce of ad v iser. Improvement of the sta tistic a l p ro gram w as directed along two lin es: to mechanize the tabulation p r o c e ss e s and to design tabu lations to indicate the economic health of the country. The introduction of the repo rt (4 pages) and section I (4 pages) are devoted to this task . Section II (8 pages) d e sc rib e s the survey of the labor fo rce in Santo Domingo, 1967, and p re se n ts the findings. Q uestionnaires from out side Santo Domingo did not have enough labor fo rce data to make tabulation worthwhile, with the exception of Azua and Rio San Juan, an agricu ltu ral a re a . L ab or fo rce participation r a te s for Santo Domingo and for Azua were p rac tically the sam e: 28-29 percent; and for Rio San Juan: 23 percent. B ecau se of poor in stru ction s, enum erators neglected to a sk about the employment statu s for household m em b ers. A s a re su lt, unemployment r a te s a r e unreliable. Section III (1 page) su m m arize s the plan to su rvey incom es and expenditures of fa m ilie s in Santo Domingo in 1968. This work will continue through 1969. 1 / U.S. Department of L abor International Technical A ssistan ce C orps. Ill A m erican Republics Ecuador Manpower and L abor P ro g ram P ro p o sal fo r Ecuador (1963; 14 pages) P etro am e rica Pagan de Colon, AID Manpower Consultant P re se n ts labor fo rce data and d e sc rib e s the educational and training fa c ilitie s. P ro p o ses a Manpower and E m ployment Service in the M inistry of Social W elfare and L abor to coordinate the ac tiv itie s. Labor S ta tistic s Ecuador has a D irectorate G eneral of S ta tis tic s which, according to law, is resp o n sib le for cen tralizin g sta tistic s from all g o v e r n m e n t agen cies. However, its labor sta tistic s program i s fragm entary and out of date. It is hoped that adequate labo r force data will be available from the G eneral C ensus of November 1962. Educational System In 1959, 16 percent of the national budget was allocated to education. Technical schools p r e p are m iddle-level technicians fo r industry, but the number of students is low relativ e to the need. 112 A se rio u s lack in vocational guidance p erm its enrollm ent in field s which are already ov er staffed. Many foreign high-level adm inistrative and m an agerial personnel m ust be im ported b ecau se of lack of training for nationals. Recom m endations 1. E stab lish in the M inistry of Social W elfare and Lab or a manpower p rogram which has authority to plan and adm inister the development of human r e so u r c e s. 2. Coordinate activ ities of labor s ta tistic s, employment se rv ic e , and apprenticeship in the Manpower and Employment Service. A m erican Republics Ecuador Manpower and Educational Planning in the Socioeconom ic Development of Ecuador (1964; 91 pages) Stanford R ese arch Institute, Henry F. M cCusker, J r ; and Edward A. P odesta P reparatio n of a program of manpower planning and development for the national development plan for 1964-73. The Junta Nacional de Planificacion y Coordinacion Econom ica of the G o v e r n m e n t of Ecuador com m ission ed Stanford R ese arch In stitute to conduct a survey of the role that man power planning and education should play to achieve its socioeconom ic ob jectives. The r e se a r c h activ itie s con sisted of: L Evaluating and re v isin g projection s of p ro fe ssio n al and technical manpower requirem ents that already were p rep ared by the Planning O ffice. 2. P rep arin g e stim a te s of manpower r e quirem ents in econom ic se c to r s and for certain sk ills. 3. A ppraising gap between future req u ire m ents and anticipated supply. 4. A sse s sin g current education and training p ro g ram s outlining ways to im prove capability. 5. D eterm ining direction of long-term man power planning to coordinate manpower activ i tie s. 6. Identifying sp ecific problem a r e a s for further study. Findings 1. Quality and content of higher education p ro g ram s are not adequate to m eet needs. 2. L ittle em ph asis is placed on in -serv ic e training p ro g ram s for high-level, technical, and sk illed manpower. 3. Insufficient data are collected for an aly sis. 4. E stim ate s of demand for and supply of p ro fessio n al manpower in 1968 and 1973 indicate sh o rtages of p r o fe sso r s, en gin eers, adm in istra to r s, and p ro fessio n al agricu ltu ral w orkers. Suggestions for Action B ased upon the findings and an aly ses of altern atives, the following m ajor c ate g o rie s of m e a su re s and p o lic ies were proposed for con sideration by the Planning Office: 1. B etter integration of education and man power planning with socioeconom ic development planning. 2. Im provem ents in quality and relevan ce of education to m eet occupational requirem ents. 3. Alleviation of projected m a n p o w e r de m and-supply im balance. 4. Im provem ents in the efficiency of higher educational institutions. 113 A m erican R epublics E cuador Manpower Data in Ecuador An A p p raisal of Some of the Current D ata Sy stem s C rucial to Human R esou rce Development Planning (1965; 43 pages) Don H. Roney, AID Manpower A dviser E valu ates curren t so u rc e s of manpower data and plans fo r collecting additional data. The purpose of th is rep o rt is to evaluate curren t sta tistic a l data on which manpower planning m ust r e s t , ap p raise the technical and organizational c a p a b i l i t y to produce the req u ired data, and su gg est appropriate AID r e lationships to these p ro g ram s. The 1962 C ensus of Population did not provide enough detail relatin g to occupations, le v e ls of sk ill, in du strial attachm ents, etc ., that is needed to develop a m anpow er-educational plan. Other types of su rv ey s, such a s the household survey, occupational and industry su rv ey s, m ust be developed for manpower planning. adm inistration of the labor code. Total sta ff is 75, of whom 50 are labor in sp ecto rs. Within the Bureau, there are se v e ra l section s: 1. S tatistic s and Placem ent Section does som e job re g istratio n and placem ent but m ostly com piles data on minimum w ages, in dustrial acciden ts, etc. Some job m arket an aly sis work has been started . 2. The A rtesan Section le g a liz e s and in spects the training cen ters adm inistered by four m in is t r ie s under a p rogram to protect sk illed w orkers. Recom m endations Among the other sta tistic a l data o r p ro g ram s analyzed are the following: 1. Consum er p rice index, monthly for Quito and Guayaquil. 2. Index of employment and w ages in mining, quarrying, and m anufacturing. 3. National directory of estab lish m en ts, by province and by 3-digit industry code. The Bureau of L ab or, p art of the so c ia l secu rity office in the M inistry of Social Wel fa r e and L ab or, i s concerned p rim arily with 114 1. The D ivision of the C ensus should proceed with the household survey. 2. The Bureau of L ab o r’ s S ta tistic s and P la c e ment Section should be expanded so that adequate labor reporting and an aly sis sy ste m s can be developed. 3. Job m arket an aly sis should be assign ed to the agency developing the employment se rv ic e . 4. The initiation of a sy stem of public employment o ffices should be fo stered by AID through participan t training, technical a s s i s tance, and commodity support. A m erican Republics E l Salvador The L ab or Situation and the Work of the L ab or M inistry in E l Salvador, with Recommendation for ICA A ctivities (1961; 8 pages) C la ra M. B ey er, AID Consultant in L abor Law A dm inistration Review s variou s p ro je c ts fo r AID a ssista n c e in the labor program and recom m ends im provem ent in the work of the L ab or M inistry, The M inistry of L abor has done little so fa r to im prove working and living conditions of the la b o re rs. Its im m ediate plan w as to reorgan ize and expand the inspection departm ent to enforce the Sunday law (payment fo r Sunday work for agricu ltu ral la b o re rs) and other new regulation s. The M inistry also planned to sta r t work on an apprentice training pro g ram already approved for AID technical a ssista n c e . Dynamic p ro g ram s are needed to im prove the liv e s of w orkers and to bring them into active participation in variou s p ro g ram s. The in stability of the Government and its failu re to understand b a sic needs of the people po se a r e a l problem in the application of technical a ssista n c e p ro g ram s in the labor field. Num erous recom mendations are made fo r strengthening the M inistry and for protecting the secu rity of w orkers. P ro g ram recom m endations AID approved p ro je cts should include the a s signm ent of a statistic ian to help the M inistry of Labor in its employment sta tistic s s e r ie s , and the assignm ent of an apprenticeship expert to help sta r t a training program . Other p o ssib le AID p ro je c ts could include w orker’ s education, technical a ssista n c e of an Employment Service expert, training of women w o rk ers, loans to unions for self-h elp p ro je c ts, and aid in estab lish in g credit unions. A m erican R epublics E l Salvador Manpower S e rv ic e s for Human R eso u rce Development in E l Salvador and the Central A m erican Region (1963; 14 p ages and 8 appendixes) Robert J . Clay, AID Manpower Consultant A review of available manpower se r v ic e s in E l Salvador to form ulate a region al manpower development plan. The four key functions of government e s sential to the adm inistration of a manpower pro g ram are (1) a central manpower planning office, (2) collection and an aly sis of sta tistic a l data, (3) a public employment se rv ic e , and (4) a central training authority. E l Salvador i s one of three countries in the Central A m erican common m arket which m aintains a public em ployment se rv ic e . A lso located in the M inistry of L ab or is a labor sta tistic s section. Both of these se r v ic e s have received substantial U.S. technical a ssista n c e . An apprenticeship p ro g ram is currently being developed under the guidance of a U.S. technician. Thus, E l Salvador is well on its way to developing the b a sic s for a manpower development p rogram . However, at the p resen t tim e, a coordinating office of m an power r e so u r c e s and planning does not e x ist, much sta tistic a l data are lacking and the c u r rent employment se rv ic e pro g ram is weak. The consultant presented a country program plan for AID a ssista n c e , entitled Manpower Planning, Development, and Utilization. Its 116 purpose would be to a s s is t in identifying and utilizing manpower to provide maxim um p ro ductivity and to support key economic develop ment activ ities in the country. Specific ac tiv itie s to c a r ry out the develop ment of manpower program include the following: 1. Upgrade, develop, and expand manpower activ itie s of the employment se rv ic e . 2. Im prove, upgrade, and support labor s ta tis tic s functions in the M inistry. 3. R eorganize all manpower se r v ic e s to provide fo r a National Manpower Departm ent. 4. Develop within the National Council for Planning and Econom ic Coordination a human r e so u r c e s development com m ission which has represen tation from all the M in istries. The need fo r regional integration in planning and implementing technical labor p ro g ram s is d iscu ssed . Relevant p ap e rs by other consultants on this topic appear in the appendix. A m erican R epublics E l Salvador L abor S ta tistic s in E l Salvador (1964; 18 pages) John Fo C arru th ers, AID L abor S ta tistic s Technician D e sc rib e s labor sta tistic s p ro g ram s of the M inistry of L ab o r, The S ta tistic s Section of the M inistry of Labor is divided into four su b section s, each of which p erfo rm s sp ecialized sta tistic a l func tions: The C ost-o f-L iv in g Subsection conducts an irre g u la r and lim ited consum er p ric e index survey fo r Santa T ecla. Since the b ase year is outdated and no u se is made of the data, it is recom m ended that this work be discontinued. The Work Accident Subsection co llects r e p o rts on in ju ries and accidents from employing estab lish m en ts. Since identical inform ation is collected by the Social Security O ffice, it is recom m ended that th is subsection refrain from requ iring em ployers to subm it identical re p o rts. The Employment, H ours, and E arnings Sub section co llects these data by m ail from em ploying estab lish m en ts. No recom m endations a re made to change this activity. The Special Studies Subsection p re p a re s r e p o rts on the incidence and number of lab o rmanagement dispu tes. At one tim e, this sub section conducted labor force su rv ey s (1957-59). It is recom m ended that this work be reactivated. A detailed proposal is provided in the appendix. About seven sep arate stu dies have been made by consultants relatin g to the S tatistic s Section; six of them were made since 1961. Unfortunately, the M inistry of L abor h as not implem ented any of the recom m endations. Sum m a rie s of these stu dies are presented. Coordination of the vario u s sta tistic a l p ro g ra m s in the different m in istrie s is lacking. The Central Statistical Office in the M inistry of Economy does m ost of the Government’ s sta tistic a l work but it does not coordinate or plan for other sta tistic a l p ro g ram s. A strong sta tistic a l program to provide the n e c e ssa ry manpower data to c a r ry out the country’ s economic development plan is needed. 117 A m erican R epublics E l Salvador Construction Industry Training (1967; 19 pages) DOLITAC 1 / Staff P aper No. 34; M aurice C. Sandes, Manpower Development A dviser D e sc rib e s the curren t apprentice training organization and p ro g ra m s, and p rese n ts su ggestion s fo r expansion and im provem ent. The lack of sk illed construction w orkers se rio u sly ham pered rep airin g the badly dam aged capital city after the earthquake of 1965. A p ro p o sal w as p rep ared fo r an intensive program to train contruction forem en. It w as hoped that this pro g ram would continue after the em ergency and open the way for form al apprentice training in the construction industry. A p r o g r a m , con sistin g of a 50-hour co u rse on modern c o n s t r u c t i o n techniques and su p erv iso ry training, was devised to train 105 forem en. C la s s would be held 3 nights a week for 5 w eeks; a 5-hour followup se ssio n would be given 3 weeks la te r a s a re fre sh e r and evaluation. 1. An a sse ssm e n t of the national apprentice ship sy stem in E l Salvador. 2. Apprenticeship legislation a s it ap p e ars in the L ab or Code. 3. The organic law of the M inistry of Labor a s it se t up the National Departm ent of Ap prenticeship. 4. The general stan dards that regulate ap prenticeship in a r t s , c ra fts, and other occupa tion s, a s form ulated by the National A pprentice ship Council in 1964. Several attachm ents are appended to the rep o rt. They include: 1 / U.S. Departm ent of L abor International Technical A ssistan c e C orps. 118 A m erican Republics G uatem ala L ab or Sk ills and Aptitude T estin g F easib ility Study (1966; 17 pages) DO LIT AC lj Staff P aper No. 7; Robert Doig F easib ility of introducing and estab lish in g aptitude and sk ills testin g p rogram . G uatem ala has an abundant supply of unskilled and untrained manpower. Facin g an expanding Guatem alan in dustrial development, the Indus tria l D e v e l o p m e n t and Productivity Center (CDPI) requested a ssista n c e in identifying p ro spective tra in e es from this v a st pool of human r e so u r c e s. To analyze the fe asib ility of introducing aptitude te s t s , the statu s of the curren t situation had to be known. Through plant v isits and p e r sonal interview s with o ffic ials of government educational institutions, personnel m an agers, and oth ers, it w as determ ined that no aptitude t e s t s suitable fo r screen ing and selectin g work e r s were in existen ce. A lso, industry was ex periencing difficulty in selectin g w orkers fo r all c ate g o rie s of job s. a labor Guatemalan industry, using the Spanish Language V ersion of the G eneral Aptitude T e st B attery developed in Puerto R ico. 2. That CDPI introduce and maintain a cou rse on the Selection of P ersonnel a s one of its in dustry se rv ic e c o u rse s. 3. That CDPI cooperate with other competent authoritie s so that GATB might be made available for counseling and guidance. A su ggested operational plan for introducing aptitude testin g is describ ed ; staffin g and equip ment requirem ents and training of personnel are included. Recom m endations a 1 / U.S. Departm ent of Lab or International 1. That CDPI plan to introduce and maintain Technical A ssistan c e C orps. labor sk ills aptitude testin g se rv ice for 119 A m erican R epublics Guyana Employment, Unemployment, and Underemployment in the Colony in 1956 (1957; 43 pages) ILO R eport to the Government of B ritish Guiana; Edward M cGale (G reat Britain) R esu lts of a sam ple survey of the labor force and recom m endations fo r im provem ent in the collection of sta tistic a l data. R eliable and curren t data on employment and unemployment did not e x ist in Guyana at this tim e. The 1946 C ensus of Population w as the m ost recent data available. To conduct a su rvey of the labor fo rce , a random sam ple of v o te rs, represen tin g 4,600 households in the inhabited coastlan d s, was selected from the E lecto ral R e g iste r and enum erated at two different p erio d s. Supplementary data w ere obtained from a sam ple of 544 establish m en ts employing 66,000 w orkers. In addition, em igration retu rn s were exam ined to a s s e s s the influence of unemployment upon m igration from the Colony, and r e g is te r s of Employment Exchanges were analyzed fo r data about the unemployed. The r e su lts of the su rvey indicated that nearly 70 percent of the population w ere in the labor fo rce . Tw o-fifths of the labor force were in agricu ltu re and mining, and n early a fourth w ere in m anufacturing and construction. The su rvey revealed that, in m id-Ju ly 1956,18 percent of the labor fo rce w ere unemployed. The la rg e st unemployment rate appeared in Georgetown (22 percen t). A griculture had the m ost unemploy 120 ment of any industry (16 percent). A ccording to ILO’ s difinition fo r “v isib le underemployment” (persons employed few er than the norm al number of hours), about 15 percent of the total number employed w ere p erso n s who worked few er than 30 hours during the su rvey week. An in-depth an aly sis of these data indicated se rio u s prob lem s in two a r e a s: Heavy unemploy ment among sc h o o l-le av e rs, and su rplu s labor living on su gar e sta te s. To illu strate: 43 percent of the unemployed of whom n early tw o-thirds never had a job were p erso n s under 21 y e a rs of age. Recom m endations Recom m endations dealt with d etails of v a r i ous ways to im prove future employment su rv ey s: 1. The Government Statistical B ureau, when it is estab lish ed , should c a r r y out periodic employment su rv ey s by sam pling methods. 2. Additional su rv ey s should be conducted to throw light on sp ecific problem s. A m erican Republics Guyana An A ssessm en t of H igh-Level Manpower Requirem ents in Relation to B ritish Guiana’ s Need fo r Econom ic Development (1962; 21 p ag es and appendix tables) Robert L . Thom as, AID Manpower Consultant P re se n ts r e su lts of a manpower survey and projection s of manpower needs for 1967. The labor force is estim ated to grow 3 p e r cent p er year and will continue to do so fo r the next 5 y e a rs (1967). The unemployment rate of 18 percent, estab lish ed by the M cGale report, rem ain s the sam e. The goal fo r the next 5 y e ars m ust be to cre ate over 12,000 new jobs annually to take c a r e of those now unemployed and those who will be entering the labor fo rce . The existin g F iv e -Y ear P ro g ram , if fully implem ented, will cre ate only 2,500 new jobs annually, fallin g fa r short of the requ ired goal. To aid the government in its manpower planning, an a sse ssm e n t of high-level manpower w as undertaken. Information w as obtained from em ploy ers, government agen cies, and training institutions. About 95 percent of the high-level manpower r e so u r c e s w ere covered in the e sta b lishm en ts visited. Using th is inventory a s a b a se , 5-year e stim ate s of demand fo r each occupation w ere m ade by calculatin g withdrawals from the occupation in the next five y e a rs and carry in g forw ard curren t unmet demand (vacancies) plus e stim ate s of in crease over the next 5 y e a rs. T his demand inform ation was matched with e stim ates of su pplies so that significant sh o rtfalls may be identified. The r e su lts reveal that there is a general sh ortage of m ost types of high-level manpower and som e acute problem s are in pro sp ect. The educational b ase is insufficient from both a quantitative and qualitative standpoint. At each educational level, adequate teac h ers, fa c ilitie s, and books are lacking. The m ajo r portion of the rep o rt an alyzes the current situation and future p ro sp e c ts in each of the high-level occupations. Recom m endations Recom m endations appear throughout the text d isc u ssio n s. The m ajor ones are a s follow s: 1. E stab lish in the M inistry of Development and Planning a Manpower Planning O ffice. 2. E stab lish m eans to obtain b a sic job m arket inform ation. 3. Develop a program of vocational guidance and counseling, 4. Improve quality of technical and non technical sch ools, and strengthen the secondary school sy stem . 121 A m erican R epublics Guyana Report on a Survey of Manpower Requirem ents and the Labour F o rc e, B ritish Guiana, 1965 (1966; Four volum es) O. J . C. F ra n c is, UN Technical A ssistan c e E xpert fo r the Manpower Survey O ffice, M inistry of Labour and Social Security A com prehensive study of the demand for and supply of manpower in Guyana. Volume I—Surveys of private estab lish m en ts, m in istrie s, government d e p a r t m e n t s , public corp o ratio n s, statutory bodies, lo cal authorities, etc. (400 p ag es plu s appendix tab les.) E sse n tially an inventory of occupations by sec to r showing presen t and projected number of e m p l o y e e s . Contains detailed description of techniques used to m ake establishm ent su rv ey s. Volume II—Human re so u r c e s in Guyana. (216 p ag es plus appendixes.) R esu lts of the household su rvey on the labor fo rce . Includes inform ation 122 on the econom ic and so cial c h a ra c te ristic s of the employed and unemployed. Volume III—An inventory of occupations in p riv ate estab lish m en ts, with descrip tio n s. (188 p ag es.) An occupational c lassific atio n sy stem pertinent to Guyana’ s economy. Contains a s e c tion on the educational an d/or training re q u ire m ents fo r appointment. Volume V (No volume IV)—The volume and variety of qualified and trained personnel in the public sec to r. (434 p ages.) L is t s qualifications and study c o u rse s which o ffic ials have taken. A m erican Republics Mexico The P roblem of H igh-Level Manpower in Mexico (1960; 25 pages) Don Roney, AID Manpower Consultant An ov erall view of high-level manpower and som e prob le m s in developing adequate supply. Technical and management sk ills have not kept pace with the rapid growth of the industrial and com m ercial se c to r s in M exico. A piecem eal approach: to alleviate the lack of supply has been attem pted; but effo rts of the p ast should be r e placed by a broad, frontal attack. Underlying the whole problem is the b a sic issu e of adequacy of trainin g throughout the entire educational stru c ture. The g re a te st need ap p ears to be fo r tra in e rs who can teach oth ers how to train. At presen t, there is no focal point for man power development although se v e ra l agencies have splinter re sp o n sib ilitie s. The position of leadersh ip s e e m s to be held by the Bank of M exico a s a re su lt of its in terest in economic development. The m ost constructive and urgently needed step which the Government of M exico could take to solve its trained manpower needs would be to estab lish a Manpower Planning O ffice. Only by cen tralizin g manpower inform ation, planning, and action can a broad, coordinated manpower development plan be su c ce ssfu l. A detailed de scription of the variou s management and tech nical sk ill development p ro g ram s is presented. A com prehensive study of the needs for technicians in industry w as made by the Bank of M exico and is sum m arized in this report. U.S. technical aid p ro g ram s in M exico have a strong manpower focus. They a re well con ceived and operated and have received strong local support. Recom m endations fo r additional a ssista n c e e m p h a s i z e expanding participan t training and im proving labor sta tistic s and job m arket inform ation. 123 A m erican R epublics M exico Scientific, Engineering, and Technical Education in M exico, 1964 (1967; 35 p ag es and bibliography) Education and World A ffa irs, O ccasional R eport #3; R u sse ll G. D avis (H arvard University) T his paper is b ased on a repo rt subm itted by a sp ecial study group to the F ord Foundation in 1964. During the co u rse of the study, M exican educational institutions which were training en gin eers, sc ie n tists, and technicians were visited , a s w ere the M exican firm s which employed grad u ates from these sch ools. After a b rie f d iscu ssio n of existin g education al fa c ilitie s and conditions, the author outlines som e of the p rob lem s in making e stim ate s of scien tific and technical manpower requirem ents. C om parison s of available data from two previous stu d ies (1956 ± ] and 1962 2 / ) were difficult b ecau se of the absence of adequate data and b ecau se of contradictory definitions. T hese two stu dies indicate a su rp risin gly low ratio of p ro fessio n al to m iddle-level manpower. E m p lo y ers expected this ratio would p rev ail for se v e ra l y e a rs b ecau se the schools do not p ro duce enough m iddle-level technicians. M ost of the report c o v e rs the output of technical training fa c ilitie s at all le v e ls. A l though the data are not p r e c ise (because of poor s ta tistic s and conflicting definitions), the author fe e ls that M exican educational institutions have not adjusted to the needs of industry. The M exican sy stem e m p h a s i z e s p ro fessio n al-le v el p ro g ra m s at the expense of m iddle-level technical 124 p ro g ra m s, resu ltin g in p ro fe ssio n als having to do work norm ally assign ed to technicians. The d is p arity between upper-level and m iddle-level training is explained by problem s in the in du strial job m arket, inaction and insufficient funds in the education sy stem , and the nature of the so cial demand for education. Industry has rem ained productive because it has found other so u rc e s of manpower. U n less a m ajor effort is made to overcom e the main prob lem s curren tly besetting technical education, the stead ily in creasin g need for m iddle- and highlevel manpower will sh arply outstrip supply. X/ Banco de M exico, Departamento de Investigacio n es I n d u s t r ia ls , E l Em pleo de P e r sonal T e cn ic o e n la ln d u stria d e T ran sform acion , 1959. 2 J A sociacion Nacional de U n iversidades e Institutos de Ensenanza Superior, L aE n sen an ze de la Ingenieria en M exico, 1962. A m erican Republics N icaragua Manpower Development in N icaragu a’ s Socio-Econom ic Planning (1962; 25 pages) F ra n c is X. Gannon, AID Labor Sp ecialist Suggested p ro p o sals for labor adm inistration, training, and education. The N icaraguan Government, through its v a riious m in istries and agen cies, i s em barking upon p ro g ram s of in du strial incentives and ag rarian reform . The p ro p o sals of the expert are designed to contribute to the su c c e ss of these economic p ro g ram s. expanded to se rv e all the needs of w orkers and to coordinate with related activ ities of other agen c ie s. 3. The L ab or S ta tistic s Section of the M inis try of L abor should collect, com pile, and ana lyze a wide v ariety of manpower inform ation to 1. A National A pprenticeship P ro g ram should supply the Planning Office with curren t and r e li able data. be created to im prove job sk ills of w orkers and to provide job training opportunities to new labor fo rce entrants. All fo rm s of sk ill training activ i 4. The variou s cooperatives should coordi tie s would be included. nate their ac tiv itie s to avoid duplication and to sh are in the knowledge each has gained. A Na tional Cooperative Council should be created a s 2 0 The National Employment Serv ice should p art of the Office of National Social and Econom ic be strengthened and provided guidelines to a s s is t Planning and Coordination. w orkers in getting job s. Its se r v ic e s should be 125 A m erican R epublics N icaragu a Population Growth R ates and Econom ic Development in N icaragua (1967; 169 pages) P eter Newman and R. H. Allen, p rep ared for AID by R obert R. Nathan A sso c ia te s, Inc., Washington, D. C. A detailed and technical rep o rt using modern tech niques of dem ographic and econom ic a n aly sis to d is cover significant relation sh ips between r a te s of pop ulation growth and economic development. T his study p ro je c ts the m ajor c h a ra c te ristic s of the economy n early 50 y e a r s into the future and evalu ates the differen tial effects of a lte r native fe rtility r a te s on the variou s segm en ts of the economy. T hree alternative population projection s (designated high, medium, and low) by age and se x distribution, w ere made from 1963 to 2013. The m ajo r portion of the a n aly sis evalu ates the differen ces among the high, medium, and low population projection s in their im pact on National incom e, investm ent, and consumption over the 50-year span. An economic model was form u lated to take account of the effect on total p ro duction of variation s in siz e of the labor fo rce , 126 sim ultaneously with the effect on the av ail ability of capital fo r productive investm ent of varying num bers of con su m ers and their p ro pensity to sav e. The im plications of the a lte r native projection s also are exam ined fo r their effect on education, public health, housing, and foreign borrow ing and balance of paym ents. The m ost significant finding is that sub stan tial differen ces in production, investm ent, and consumption per equivalent adult consum er appear between the high and medium and between the medium and low fertility r a te s. The sm a lle r population in each c a se would fa re better in a m aterial se n se than the la rg e r population. The advantages of low fe rtility are d escrib ed . A m erican R epublics Panam a Some G uidelines fo r the P r o c e ss of Implementing the Activity T arg et fo r Manpower Development and Utilization for U SA ID /Panam a/ (1964; 8 p ag es and 5 appendixes) Robert J . Clay, AID Manpower A dviser (ROCAP) T h is is one of three recon n aissan ce stu dies on manpower requ irem en ts, re so u r c e s, and utilization fo r the urban se c to r in Panam a. The purpose of this rep o rt i s to propose a plan of action to fo ste r a dynamic strate gy for human r e so u r c e s development and utilization, and to a s s i s t the Government in estab lish in g a manpower se rv ice and in developing a p r o g r e s sive labor union movement. 2 0 C reate a human r e so u rc e s development and utilization center to provide broader em ploy ment se r v ic e s. 3. Provide a high-level adv iso ry and coo rd i nating body made up of rep resen tativ es from governm ent, industry, and labo r. USAID should be ready to offer a ssista n c e in any way a s the Government needs and req u ests it. 4. Adopt m e a su re s to encourage a strong labor movement. The A m erican Institute fo r F re e Labor Development (AIFLD) m ay provide Recom m endations training fo r labor le a d e rs in preparation for a national labor movement. The Government of Panam a should: 5. Adopt m e a su re s (e.g., labor-inten sive in 1. R atify ILO convention No. 88 (appendix D vestm ents) to utilize unemployed and underem ployed human capital and to im prove existin g in Spanish) relativ e to the organization of an em ployment se rv ice . sk ills to upgrade work fo rce. 127 A m erican R epublics Panam a Population, L abor F o rc e, and Employment in Panam a (1965; 66 pages) D r. Norman G. Pauling, AID Manpower Planning Consultant T his is one of three recon n aissan ce stu dies on manpower req u irem en ts, r e so u r c e s, and utilization for the urban se c to r in Panam a. Using cen su s data and other lim ited available inform ation, the rep o rt attem pts to identify the incidence and cau se of unemployment, the ch ar a c te r istic s of the unemployed, and the relation of unemployment to other m ajor s o c i a l and econom ic tren ds. D etailed s ta tistic s (1960 data) on population and labor force are provided. At the curren t growth rate of 2.9 percen t, the population will double in 25 y e a rs. Over 43 percent of the popu lation are under 15 y e a rs of age. N early 42 percent of the population are in the labor fo rce, and 11 percent of those in the labor fo rce are unemployed. The rep o rt also prov id es detailed sta tistic a l data on the c h a r a c te r istic s of the labor fo rce and on the unemployed. Population and labor force growth relativ e to econom ic growth are analyzed. Although GNP grew at an av erage annual rate of 5.85 percent, com pared with a population growth rate of 2.9 percen t, the resu ltin g p er cap ita gain does not give a c le a r picture of the actual situation. The av erage g r o s s product per capita is still very low. P e r capita fig u re s tend to be m isleading 128 b ecau se they fa il to re fle c t unequal participation of individuals and v ario u s economic groups in the benefits of economic growth. Taking into account all available data, a GNP annual growth ra te of 8.5 percent would be needed to ab so rb the anticipated in crease in the labor fo rce. Such a rate of growth im p lies a doubling of the economy every 8 1/2 y e a r s —an unlikely feat. Many recom m endations and su ggestion s are d isc u sse d in detail. Some of the m ost important are: 1. Panam anians m ust see k som e acceptable m eans to lim it the rapid rate of population growth. 2. Econom ic growth m ust be stim ulated. 3. An integrated manpower p rogram and coordinating agency m ust be developed. 4. Educational p ro g ram s of all kinds m ust be expanded. 5. A National Employment Serv ice m ust be introduced. 6. A stron g and stable labor movement m ust be encouraged. A m erican R epublics Panam a A Survey Report on Vacancy Training Needs in Selected Occupations in the Panam a City M etropolitan A rea (1966; 37 pages) DOLITAC J . / Staff P ap er No. 44; Allan Broehl, L ab or Analyst A nalysis of the r e su lts of the vacancy training needs survey. M ore training is requ ired, and a r e a s of potential employment are identified. The Education for Development Survey (va cancy training needs survey) w as c a rrie d out by the Institute for Development and the Center for Industrial Development and Productivity. It w as a sam ple survey of estab lish m en ts employing five b lu e-co llar w orkers or m ore in the Panam a City a re a. The purpose of the su rvey w as to identify training needs in private establish m en ts. T rain ing needs were divided into three groups: e x ist ing job v acan cies, projected employment needs, and presen tly employed w orkers needing addi tional on-the-job or w ork-related training. The an aly sis of the data from the survey c o v ers details of occupations fo r on-the-job and w ork-related training. Suggestions a re also p r e sented for expanding employment opportunities in the private secto r and for estab lish in g an E m ployment Serv ice. Methodology and coverage of the su rvey are d escrib ed . indicated by the lim ited number of unfilled jobs; and (b) the la rg e percentage of sk illed and se m i sk illed w orkers (15 percent) who need training. M arginal productivity of existin g w orkers is low. If productivity of existin g w orkers were ra ise d through training, em ployers probably would hire additional w orkers. 2. B ecau se the Pan-C anal Company is the m ost significant potential em ployer, training p ro g ram s should be coordinated with Canal Zone authorities. 3. Potential employment in the above a r e a s will not m eet all the needs fo r a higher level of employment. New so u rc e s of employment m ust be sought in manufacturing, construction, and agricu ltu re. 4. Attention should be given to expanding and updating; the vocational education sy stem to m eet the needs of the local community. Sum m ary and recom m endations 1. The two outstanding observation s w ere: 1 / U.S. Departm ent of L abor International (a) the very low level of friction al unemployment Technical A ssistan c e C orps. 129 A m e r ic a n R e p u b lic s P an am a T e stin g and C o u n s e l in g in P anam a (1 9 6 7 ; 9 p a g e s ) D O L IT A C 1 / S ta ff P a p e r N o. 50; H e n d r ic C. M u g a a s , T e s t i n g a n d C o u n s e l in g E x p e r t D e s c r i p t i o n o f o n e f a c e t o f A ID ’ S M a n p o w e r T r a i n i n g a n d U t il i z a t i o n P r o j e c t in P a n a m a . T h e p u r p o s e o f th e a s s i g n m e n t w a s to a s s i s t to g e t v a l i d n o r m s f o r u s e in P a n a m a . T h e v a r th e D i r e c t o r o f th e A ID P r o j e c t in th e f o llo w in g io u s t e s tin g d e v ic e s a r e d e s c r ib e d . M a n u a ls an d areas: g u i d e s in v a r i o u s a s p e c t s o f t e s t i n g a n d c o u n 1 . A n a ly sis o f th e te stin g a n d c o u n s e li n g n e e d s in th e c o u n t r y . s e lin g w e re p r e p a r e d and tr a n s la te d . IF A R H U i s b e s t s i t u a t e d f o r d e m o n s t r a t i n g 2 . E s t a b l i s h m e n t o f a t e s t i n g a n d c o u n s e li n g th e i m p o r t a n c e o f t e s t i n g a n d c o u n s e li n g a n d f o r u n it to s e r v e th e I n s t it u t e o f H u m a n R e s o u r c e s p r o v id in g D e v e lo p m e n t E m p lo y m e n t S e r v i c e p e r s o n n e l . (IF A R H U ) and th e M in is tr y of L ab or. 3 . T r a i n i n g o f p e r s o n n e l a s s i g n e d t o th e u n it. 4 . D e v e lo p m e n t o f a p r o g r a m a n d p r o c e d u r e s f o r th e u n it. IF A R H U w o rk ers e s tim a te s w ill be th at 1 5 ,0 0 0 skilled n e e d e d b y 1 9 7 0 ; th e p r e s e n t s c h o o l s y s t e m c a n p r o v i d e o n ly 3 ,0 0 0 a d e q u a t e ly tr a in e d w o rk ers. The v a rio u s p r o je c ts w h ic h rep o rt d e sc rib e s th e good tr a in in g e x p e r ie n c e fo r fu tu re IF A R H U c a n o b t a in p o p u la t io n d a t a o n w h ic h to e s t a b l i s h a n o c c u p a t io n a l d i s t r i b u t i o n o f w o r k e r s . B y a p p ly in g c e r t a i n t e c h n i q u e s ( s e e A1 C r u z r e p o r t to V e n e z u e la , 1 9 6 7 ), a s t a n d a r d i z a t i o n s t u d y b a s e d on th e w o r k in g p o p u la t io n o f P a n a m a C it y c a n b e d e s i g n e d . I f th e M an pow er T r a in in g and U t il i z a t i o n a r e d e s i g n e d to t r a i n P r o j e c t a c t i v i t i e s a n d t h o s e o f IF A R H U a r e m a in a d d it io n a l w o r k e r s e s p e c i a l l y in th e c o n s t r u c t i o n t a in e d , t e c h n i c i a n a s s i s t a n c e s h o u ld b e o b t a in e d t r a d e s , p r in t in g t r a d e s , a n d g a r m e n t a n d s h o e f o r th e t e s t d e v e lo p m e n t s t u d i e s a n d jo b a n a l y s i s w o rk . m a n u f a c t u r e . T e s t i n g a n d c o u n s e li n g s e r v i c e s w ill h a v e to b e d e v e lo p e d to s e l e c t t r a i n e e s f o r th e se jo b s . IF A R H U h a s p r o g r e s s e d in u s i n g t e s t i n g d e v i c e s , s u c h a s th e G . A . T . B . T h e e x p e r t a n a l y z e d th e t e s t d e v e lo p m e n t w o r k f r o m s e v e r a l c o u n t r i e s 130 1 / U .S . D e p a r t m e n t o f L a b o r I n t e r n a t io n a l T e c h n ic a l A s s i s t a n c e C o r p s . A m e r i c a n R e p u b l ic s P eru S o u t h e r n P e r u M a n p o w e r S tu d y (1 9 5 9 ; 2 7 p a g e s ) W illia m M a s o n , IL O M a n p o w e r A d v i s e r (U n ite d K in g d o m ) C u rren t s u p p ly o f a n d p o t e n t ia l d e m a n d f o r m a n p o w e r in th e c o m m e r c i a l a n d i n d u s t r i a l s e c t o r s a r e a n a l y z e d in t h i s r e p o r t . C o v e r in g 14 c i t i e s in S o u t h e r n P e r u , a s u r vey o f 1 ,6 0 0 e s t a b l i s h m e n t s e m p lo y in g 3 0 ,6 0 0 l a b o r f o r c e a r e w o m e n , m o s t l y in c o m m e r c i a l a c tiv itie s. The v o lu m e o f m i g r a t i o n to u r b a n w o r k e r s w a s co n d u cte d . C e r ta in h a n d ic a p s m a d e a r e a s i s h ig h , r e s u l t i n g in a s u r p l u s o f u n s k i l le d a n a l y s i s o f th e r e s u l t s o f th e s u r v e y d i f f ic u l t . l a b o r in t h e s e a r e a s . F o r e x a m p le , no p r e v io u s d a ta ( la s t c e n s u s w a s The su rv e y re v e a le d a la c k o f m an p o w er in 1 9 4 0 ) w e r e a v a i l a b l e to m a k e a t r e n d o r c o m t r a i n i n g a n d d e v e lo p m e n t p l a n s o r p r o g r a m s in p a r a t i v e a n a l y s i s . In a d d it io n , e m p l o y e r s d i s e s t a b lis h m e n t s . G e n e r a lly , r e sp o n d e n ts w e re n ot t r u s t e d th e p u r p o s e o f th e s u r v e y a n d fo u n d d i f c o n c e r n e d w ith l a b o r p r o b l e m s o r w ith f u t u r e f ic u l t y in v i s u a l i z i n g f u t u r e p r o s p e c t s . T i m e a n d n e e d s o f t h e i r e s t a b l i s h m e n t s . O n ly a f e w in d i m o n e y l i m i t a t i o n s , in a d d it io n to th e r a i n y s e a c a t e d th e y w e r e u n a b le to f i l l p o s i t i o n s b e c a u s e so n , o f la c k o f q u a lifie d p e r s o n n e l. A bou t 8 p e r c e n t d e la y e d th e w o rk o f th e stu d y g ro u p . A n a n a l y s i s o f th e s t u d y r e v e a l e d t h a t , s i n c e sh o w e d s o m e c o n c e r n o v e r f u t u r e n e e d s . a g r i c u l t u r e d o m i n a t e s th e e c o n o m y in th e s o u t h , I l l i t e r a c y (7 0 p e r c e n t ) a n d l a n g u a g e d i f f i c u l c it ie s s e r v e p r im a r ily a s m a r k e tin g c e n te r s fo r t i e s (o n ly 2 8 p e r c e n t s p e a k S p a n is h ) a r e th e m a a g r i c u l t u r a l o u tp u t. C o m m e r c i a l a c t i v i t i e s r e p j o r d e t e r r e n t s to a w e ll q u a l if i e d l a b o r f o r c e . r e s e n t n e a r ly tw o - th ird s o f to ta l a c t iv itie s ; and U n iv e rsity m a n u fa c tu rin g , n e a r ly o n e - th ir d . O v e r 70 p e r c e n t a rts, o f th e e s t a b l i s h m e n t s a r e f a m i l y o w n e d a n d o p sc a rce . R e c o m m e n d a t i o n s in c lu d e d (1) a c u r t a i l m e n t e r a t e d , o f w h ic h 61 p e r c e n t e m p lo y f e w e r th a n 5 workers. e d u c a t io n and te c h n ic a l i s l i m i t e d to th e l i b e r a l e d u c a t io n a t a l l l e v e l s i s o f o u t-m ig r a tio n o f w o r k e r s b y p r o v id in g e m T h e n o n fa rm la b o r fo r c e o f so u th e rn P e r u i s p lo y m e n t o p p o r t u n it i e s to r a i s e l i v i n g s t a n d a r d s ; n o t d i s t r i b u t e d in d i r e c t p r o p o r t io n to th e n u m b e r (2) d e v e lo p m e n t o f w o r k s k i l l s o f l a b o r f o r c e ; (3) o f e s ta b lis h m e n ts i n t e g r a t io n o f I n d ia n s in to s o c i o e c o n o m i c l i f e ; (4) M a n u f a c t u r in g and in each e c o n o m ic a c tiv ity . c o n str u c tio n each e m p lo y c o n tin u a tio n o f e s t a b l i s h m e n t s t u d y b y E m p l o y a b o u t 30 p e r c e n t o f th e l a b o r f o r c e ; a n d c o m m e n t S e r v i c e O f f ic e ; a n d (5) u s e o f 1 9 6 0 C e n s u s m e r c e , a b o u t 2 0 p e r c e n t . N e a r l y a f o u r t h o f th e o f P o p u la t io n a s a b a s i c s t a t i s t i c a l t o o l. 1 31 A m e r ic a n R e p u b lic s P eru L a b o r M a r k e t R e p o r t in g P r o g r a m o f S C E P (1 9 6 0 ; 7 p a g e s ) H o m e r J . F r e e m a n , A ID L a b o r M a r k e t C o n s u lt a n t D e s c r i b e s v a r i o u s jo b m a r k e t s u r v e y s a n d s u m m a r i z e s re c o m m e n d a tio n s ste m m in g fr o m th e se s u r v e y s . T h e m a j o r r e c u r r i n g s u r v e y s n ow b e i n g c o n d u c t e d b y e ig h t s t a f f m e m b e r s in th e I n v e s t i g a t i o n s a n d S t a t i s t i c s D iv is io n o f th e C o o p e r a t i v e E m p lo y m e n t S e r v i c e ( S C E P ) a r e : 1 . O b ta in e s t i m a t e s o f t o t a l n o n f a r m e m p l o y m ent fo r b en ch m ark p u rp o se s. 2 . M a k e e m p lo y m e n t d a t a c o m p a r a b l e f r o m one p e rio d 1 . Q u a r t e r l y s u r v e y s o f e m p lo y m e n t , h o u r s , e a r n i n g s , a n d jo b m a r k e t t u r n o v e r . 2 . Q u a r te r ly s u r v e y s o f la b o r d is p u te s . 3 . S p e c i a l s u r v e y o f m in in g in d u s t r y . S p e c i a l o n e - t im e s u r v e y s a v a i l a b l e f o r a n a a n o th e r b y u sin g lin k - r e la tiv e 3 . P u b l i s h f i n e r i n d u s t r i a l b r e a k d o w n s w h en ever sa m p le 4. M ake ly sis are : to m e th o d . is la r g e b e tte r e n o u g h to sh o w d e t a i l . u s e o f s t r a t ifie d sa m p lin g te c h n iq u e s. 5. Show m o re c o m p a r i s o n s o f th e c u r r e n t 1 . M a n p o w e r s t u d y o f S o u th e r n P e r u (1 9 5 9 ). p e r i o d w ith o t h e r p e r i o d s to sh o w t r e n d s in e m 2 . S p e c ia l p lo y m e n t . stu d y o n th e b a n k in g in d u str y (1 9 5 9 ). 6 . P rep are 3 . S tu d y 1959. o f n ew fir m s e s ta b lish e d d u rin g th e g o v e r n m e n t a g e n c i e s . 7. d a ta m o r e c o m p r e h e n s iv e a n a ly s is o f to e x p l a in b a sic r e a so n s fo r c h a n g e s. 4 . D i r e c t o r y o f l a b o r u n io n s . 5« N u m b e r o f p u b l ic e m p l o y e e s in e a c h o f 6 o S tu d y sta tistic a l of sa la rie s b y o c c u p a t io n (1 9 5 9 ). M a n p o w e r s t u d y o n N o r t h e r n P e r u (1 9 6 0 ). 7 . I n t r o d u c e b e t t e r m e t h o d s to c o m p u t e w a g e i n f o r m a t io n . 8 . P rep are tio n s . m o r e d e t a i l e d w r it t e n i n s t r u c 9 . C o n s i d e r i m p r o v i n g th e p r e s e n t s y s t e m o f m e n d a t io n s a r e p r o v i d e d , a lo n g w ith a t im e t a b l e r e l e a s i n g i n f o r m a t io n . 10. M ake b e tte r f o r t h e i r i n i t ia t i o n a n d c o m p le t io n : fr o m e s ta b lis h m e n ts . B a s e d o n th e r e s u l t s o f t h e s e s t u d i e s , r e c o m 132 u s e o f p a y r o l l i n f o r m a t io n A m e r i c a n R e p u b l ic s P eru M a n p o w e r I n f o r m a t io n P r o g r a m ( S C E P ) (In S p a n is h ; 1 9 6 1 ; 3 4 p a g e s ) IL O R e p o r t to th e G o v e r n m e n t o f th e R e p u b lic o f P e r u ; O I T / T A P / P e r u / R . 7 ; W illia m M a s o n , M a n p o w e r A d v i s e r ( G r e a t B r i t a i n ) A rep o rt on th e sta tu s o f th e fa c t-fin d in g and p u b l i s h i n g f u n c t io n s o f th e E m p lo y m e n t S e r v i c e . T h e C o o p e r a t i v e E m p lo y m e n t S e r v i c e (S C E P ) O n e o f th e t a s k s o f th e c o n s u l t a n t w a s to d e s t a r t e d in 1 9 5 1 u n d e r th e d i r e c t i o n o f th e M in v e lo p a t r a i n i n g p r o g r a m f o r th e p r o f e s s i o n a l i s t r y o f L a b o r . T h e D iv is io n o f I n v e s t i g a t i o n s e m p l o y e e s o f th e E m p lo y m e n t S e r v i c e . T o p i c s a n d S t a t i s t i c s (10 e m p l o y e e s ) c o n d u c t s s u r v e y s in c lu d e d th e fo llo w in g : t e c h n iq u e s f o r a n a l y z in g a n d o t h e r w i s e g a t h e r s s t a t i s t i c a l i n f o r m a t io n . jo b m a r k e t i n f o r m a t io n , a n a l y s i s a n d i n t e r p r e T h e D iv is io n o f T e c h n i c a l S e r v i c e s (8 e m p l o y e e s ) t a t io n o f m a n p o w e r i n f o r m a t io n , a n d t e c h n iq u e s s t u d i e s a n d a n a l y z e s t h e s e d a t a . In a d d it io n , t h e r e o f r e p o r t w r it in g . a r e s e v e r a l l o c a l p l a c e m e n t o f f i c e s in th e l a r g e r e m p lo y m e n t c e n t e r s . T h e v a r i o u s s u r v e y s c o n d u c t e d b y th e E m p lo y m e n t S e r v ic e a n d in f o r m a t io n f r o m o t h e r s o u r c e s a r e d i s c u s s e d f o r u t i l i z a t i o n in a m a n p o w e r d e v e lo p m e n t p r o g r a m . F o r e x a m p l e , d e m o g r a p h ic i n f o r m a t io n c a n b e u s e d to a n a l y z e a n d p r o j e c t th e s u p p ly o f m a n p o w e r ; i n d u s t r y an d o c c u p a t io n a l e m p lo y m e n t se rie s se rv e s as th e b a s i s f o r s t u d y in g th e d e m a n d f o r m a n p o w e r a t S e v e r a l r e c o m m e n d a t i o n s w e r e m a d e to i m p r o v e E m p lo y m e n t S e r v i c e a c t i v i t i e s , in c lu d in g d a ta - c o lle c tio n te c h n iq u e s, d a ta a n a ly s i s , c o o r d i n a t i o n ^ s u r v e y s to a v o id o v e r l a p p in g o r d u p l i c a t i o n , a n d p r e p a r a t i o n o f th e r e p o r t s o n m a n p o w e r . F u r t h e r r e c o m m e n d a t i o n s c o n c e r n e d th e u s e o f t h e s e d a t a a s a b a s i s f o r th e m a n p o w e r d e v e lo p m e n t a s p e c t o f th e c o u n t r y ’ s d e v e lo p m e n t p la n . e a c h l e v e l o f s k i l l . S u g g e s t i o n s a r e m a d e on h o w T h e a p p e n d ix p r o v i d e s s a m p l e q u e s t i o n n a i r e s o t h e r s o u r c e s o f d a t a r e l a t i n g to m a n p o w e r c a n o n jo b p l a c e m e n t , a n d u s e s o f L a b o r S t a t i s t i c a l B u l le t in . A n e x a m p l e o f a jo b m a r k e t r e p o r t a l s o b e i n c o r p o r a t e d in th e a n a l y s i s in o r d e r to u n d e r s t a n d th e s o c i a l a n d e c o n o m i c d e v e lo p m e n t in P eru . i s p ro v id e d . 133 A m e r ic a n R e p u b lic s P eru M i s s i o n to P e r u M an p o w er M em o N o. 2 ; G e n e ra l C o m m e n ts (1 9 6 3 ; D O L I T A C J l/ Eugene Im p r e ss io n s D. 22 p a g e s ) S ta ff P a p e r N o. 4 0 ; V in o g r a d o f f , M a n p o w e r A d v i s e r of P e ru ’ s m an po w er p ro b le m s are p re s e n t e d a n d a n o v e r a l l p r o g r a m i s o u t lin e d . D e s p i t e a r e l a t i v e l y h ig h r a t e o f e c o n o m ic g r o w t h in P e r u , u r b a n u n e m p lo y m e n t a n d u n d e r in c r e a s in g la b o r fo r c e . G o v ern m e n t and p r iv a te i n d u s t r y e x p a n s io n s h o u ld b e r e v i e w e d in t e r m s o f e m p lo y m e n t m a y i n c r e a s e b e c a u s e o f r a p i d l a b o r jo b s c r e a t e d p e r d o lla r in v e ste d . T h e c o n s tr u c f o r c e g ro w th an d h e a v y r u r a l im m ig r a tio n . A n tio n i n d u s t r y i s th e m o s t l i k e l y a r e a f o r jo b c r e a a c c e le r a t e d r a t e o f e c o n o m ic g ro w th h a s b e e n t io n a c t i v i t i e s in th e s h o r t t e r m f o r u n s k i l le d w o r k e r s . A b o u t 3 0 ,0 0 0 j o b s a r e n e e d e d a n n u a lly h am pered b ecau se of sh o rta g e s of skilled w o r k e r s ; i n a d e q u a t e b a s i c e d u c a t io n ; lo w p r o in r u r a l a r e a s . F u n d s a n d s t a f f s h o u ld b e p r o v i d e d d u c t iv it y , i n c o m e , a n d p u r c h a s i n g p o w e r ; r i g i d i to p r o m o t e m e a s u r e s f o r l a b o r - i n t e n s i v e a c t i v i t i e s in s o c i a l w e l f a r e p r o g r a m s ; a n d in a d e q u a t e t i e s a n d to d e c r e a s e m i g r a t i o n to u r b a n a r e a s . su p p o r tin g p r o g r a m s in h o u s in g , h e a lt h , a n d R e c o m m e n d a tio n s a ls o w e re m a d e r e g a r d in g c o m m u n it y f a c i l i t i e s . T h e s e a n d o t h e r p r o b l e m s so c ia l in b o th u r b a n a n d r u r a l a r e a s c r e a t e p r e s s u r e s stu d ie s , o n th e g o v e r n m e n t . L a b o r u n r e s t p l u s p o t e n t i a l ra isin g in s ta b ility in v o lv e d in p r o g r a m s a f f e c t i n g h u m a n r e s o u r c e s of th e go v ern m e n t m ay en dan ger d e m o c r a t i c i n s t i t u t i o n s . T h e o n ly s o lu t io n i s to w e lfa r e le g is la t io n , ty p e s o f m an p o w er im p r o v in g in c o m e sk ills le v e ls. in l a b o r f o r c e , a n d The s e v e r a l a g e n c ie s s h o u ld c o o r d in a t e t h e i r a c t i v i t i e s . a c c e l e r a t e a c t i v i t y in th e p u b lic s e c t o r (in t e r m s o f e m p lo y m e n t a n d s o c i a l r e f o r m ) a n d to s t i m u la te p r iv a te in itia tiv e . S p e c i f i c a l l y , 1 0 0 ,0 0 0 n ew j o b s a n n u a lly a r e n e e d e d in u r b a n a r e a s j u s t to t a k e c a r e o f th e 134 J J U .S . D e p a r t m e n t o f L a b o r I n t e r n a t io n a l T e c h n ic a l A s s i s t a n c e C o r p s . A m e r ic a n R e p u b lic s P eru M i s s i o n to P e r u M an p o w er M em o N o. 3: S p e c ific S u g g e s tio n s (1 9 6 3 ; 11 p a g e s ) E u g e n e D . V in o g r a d o f f , M a n p o w e r A d v i s e r S p e c ific ste p s t h a t th e h u m a n r e s o u r c e s g r o u p in th e M i n i s t r y o f L a b o r s h o u ld u n d e r t a k e to d e v e lo p a m a n pow er p ro gram . b a s e f o r th e m a n p o w e r d e v e lo p m e n t p r o g r a m . L a c k o f c l o s e c o o p e r a t io n a m o n g th e v a r i o u s a g e n c i e s in v o lv e d in m a n p o w e r a c t i v i t y p r e v e n t s O n c e p r o j e c t i o n s o f th e w h o le e c o n o m y a r e m a d e , e a s y c o lle c tio n an d a n a ly s is o f d a ta an d h in d e r s m a n p o w e r s u p p ly a n d d e m a n d d a t a th e n c a n b e th e r e l a t e d to th e e c o n o m ic d e v e lo p m e n t p la n . In th e T h e re fo re , T h e e c o n o m ic d e v e lo p m e n t p la n s e r v e s a s a o v e ra ll m an pow er d e v e lo p m e n t p r o g r a m . it w a s s u g g e s t e d th at a s t a t i s t ic a l a b s e n c e o f a n e c o n o m ic in v e s t m e n t p la n , a v a i l c o o r d in a t i n g c o m m i t t e e b e e s t a b l i s h e d a n d s t i m a b l e p r e l i m i n a r y m a n p o w e r d a t a s h o u ld b e c o l u la t e d in to a c t i o n . T h i s c o m m i t t e e w o u ld s e t th e le c te d an d a n a ly z e d . D e m a n d d a t a c a n b e o b t a in e d b y r e v i e w i n g c u r r e n t i n d u s t r y - o c c u p a t io n a l s t a f f i n g p a t t e r n s f o r p u b l ic a n d p r i v a t e s e c t o r s , a n a l y z in g t h e s e d a t a , a n d d e v e lo p in g p r o j e c t i o n s o f s t a f f i n g p a t t e r n s b a s e d o n e c o n o m ic p l a n s . S u p p ly d a t a c a n b e o b t a in e d b y r e v i e w i n g c u r r e n t l a b o r s u p p ly b a s e d o n e m p lo y m e n t s e r v i c e in f o r m a t io n a n d d e t e r m in i n g f u t u r e s u p p ly o f s t a n d a r d s a n d g u i d e p o s t s to p r o v i d e f a c t u a l d a t a n e e d e d f o r p la n n in g . S e v e r a l r e c o m m e n d a tio n s c o v e r e d d e t a ils o f s t a f f f u n c t io n s a n d m e c h a n i c s o f g e t t i n g m a t e r i a l s p u b l is h e d a n d in to th e h a n d s o f th e u s e r . A f t e r th e e c o n o m ic i n v e s t m e n t p la n h a s b e e n d e v e lo p e d , e s t i m a t e s o f m a n p o w e r r e q u i r e m e n t s c a n b e r e f i n e d . T h e s u p p ly a n d d e m a n d b a l a n c e s h e e t c a n b e d e v e lo p e d in g r e a t e r d e t a i l t h r o u g h s k i l l s fr o m e d u c a tio n a l an d tr a in in g in s titu tio n s. s u r v e y s o f e m p lo y e r s an d o f e d u c a tio n a l in s titu t i o n s . S u p p ly a n d d e m a n d r e p o r t s s h o u ld b e p r e B e n c h m a r k s t u d i e s a r e i m p o r t a n t to d e t e r p a r e d f o r e a c h m a j o r m e t r o p o l it a n a r e a . S u m m in e p o in t s o f d e p a r t u r e f o r p r o g r a m d e v e lo p m a r y r e p o r t s s h o u ld b e p r e p a r e d a n d d i s t r i b u t e d m e n t. C e n s u s d a ta an d la b o r f o r c e s u r v e y s c a n to u s e r s , a n d o c c u p a t io n a l g u id a n c e m a t e r i a l s p r o v i d e th e n e c e s s a r y b e n c h m a r k s f o r l a b o r s u p s h o u ld b e d i s t r i b u t e d to y o u n g p e o p l e . S e v e r a l p ly . R o u g h a p p r o x i m a t i o n s a r e a d e q u a t e f o r t h e s e o th e r r e p o r t s a ls o a r e su g g e ste d . f i r s t - t i m e a n a l y s e s . A n a n n u a l r e v i e w o f s u p p ly M e th o d s o f im p l e m e n t in g th e m a n p o w e r p r o a n d d e m a n d f o r c r i t i c a l l y s h o r t o c c u p a t io n s i s g r a m a r e d i s c u s s e d a n d s u m m a r i z e d a s a g u id e n e c e s s a r y to g u id e t r a i n i n g i n s t i t u t i o n s . f o r A ID ’ S r o l e in a s s i s t a n c e . 135 A m e r i c a n R e p u b l ic s P eru I m p r o v e m e n t o f th e in th e E m p lo y m e n t I n f o r m a t io n P r o g r a m E m p lo y m e n t a n d H um an (In S p a n i s h ; IL O R e p o r t to A r n o ld V. th e R e so u rces G o v ern m en t o f P e r u , T o ttle , S e r v ic e (S E R H ) 1963; 41 p a g e s) M an pow er A d v ise r O I T /T A P / P e r u /R .8 ; (G re a t B r ita in ) D e s c r i b e s th e o r g a n i z a t i o n o f th e E m p lo y m e n t a n d H u m a n R e s o u r c e s S e r v i c e a n d th e e m p lo y m e n t i n f o r m a tio n p r o g r a m a n d m a k e s r e c o m m e n d a t i o n s f o r t h e i r im p r o v e m e n t . U p to th e e n d o f 1 9 6 2 , th e C o o p e r a t i v e E m p lo y m e n t S e r v i c e in P e r u h ad b e e n o p e r a tin g o f e x c h a n g in g in f o r m a t io n w ith e d u c a t io n a n d t r a i n i n g c e n t e r s , e s p e c i a l l y w ith th e A p p r e n t ic e A t th a t tim e , s h ip S e r v i c e (S E N A T I) i s e m p h a s i z e d . T h e t y p e s i t s c o o p e r a tiv e a g r e e m e n t o f m a n p o w e r s t u d i e s th a t h a v e b e e n m a d e a r e w h ic h l e f t th e f in a n c in g o f th e S e r v i c e f a l l o n th e l i s t e d . M o s t o f t h e m c o v e r e d jo b m a r k e t a r e a G o v e r n m e n t o f P e r u . A n ew d e c r e e s u b s t i t u t e d s t u d i e s a n d e s t a b l i s h m e n t s u r v e y s . S o m e o f th e th e C o o p e r a t i v e E m p lo y m e n t S e r v i c e f o r a n ew p r o b le m s e n c o u n te re d a r e d e s c r ib e d an d s u g w ith th e a ss is ta n c e U S A ID r e t i r e d f r o m o f U S A ID . s e m i a u t o n o m u s o r g a n i z a t i o n c a l l e d th e E m p l o y g e s t i o n s a r e m a d e to o v e r c o m e t h e s e p r o b l e m s m e n t a n d H u m a n R e s o u r c e s S e r v i c e (S E R H ). T h e by o r g a n i z a t i o n a l c h a r t o f th e n e w S e r v i c e o th e r te c h n ic a l a d ju s tm e n ts . 1963) (a s of a p p e a r s on p a g e 38 , an d i t s co m p o n en t m em b ers appear 40. q u e s tio n n a ir e s o r m a k in g R e c o m m e n d a tio n s c o v e r e a c h p h a s e o f S E R H a c t i v i t i e s s u c h a s o r g a n i z a t i o n , p e r s o n n e l (in a d m i n i s t r a t i o n i s in d e p e n d e n t, S E R H i s r e s p o n s i b l e to th e M i n i s t e r o f L a b o r . A s h o r t d e s c r i p t i o n o f th e p r o g r a m o f h u m a n r e s o u r c e s i s c lu d in g d u t i e s ) , a r e a fu n c t io n a n d a c t i v i t i e s , a n d p rogram p r o v id e d . r e g a r d i n g n e w s u r v e y s a n d t y p e s o f i n f o r m a t io n T h e m a in p o r t io n o f th e r e p o r t d e a l s w ith th e i n f o r m a t io n p r o g r a m o f S E R H . T h e i m p o r t a n c e r e q u i r e d to a n a l y z e th e f u t u r e s u p p ly a n d d e m an d o f m an po w er. page th e A lth o u g h th e 136 on re d e sig n in g th e r o l e o f S E R H in th e e c o n o m ic d e v e lo p m e n t of P e r u . S u g g e s tio n s a ls o a r e m a d e A m erican Republics Surinam Recom m endations for the Development of Statistical S e rv ic es in Surinam Lloyd A. Prochnow, AID Statistical A dviser Outlines the prin cipal sta tistic a l s e r ie s which appear e sse n tia l fo r effective planning in Surinam , current availablity of sta tistic s, and recom m endations for their im provem ent and expansion. In 1953, the Government of Surinam initiated a com prehensive 10-year development program for the im provem ent of le v e ls of living fo r the populace. However, b ecau se of lack of current, reliab le factual inform ation, development p ro je c ts w ere difficult to plan, execute, and a s s e s s . At the p resen t tim e, Surinam has a larg e quantity of sta tistic a l data collected by the Gen e r a l Bureau of S ta tistic s; but there are gaps in cov erage and collection. C onsiderable work is needed on com piling and im proving data of im portance to planning o ffic ials. The consultant d e sc rib e s the u se s and meth ods of collection for each sta tistic a l study and the m e a su re s n e c e ssa ry fo r a program of economic and manpower development, d is c u ss e s the lim i tations of curren t available data fo r each s e r ie s , and outlines a program for im proving and ex panding curren t s e r ie s . M ajor sta tistic a l su r veys are liste d in ord er of p rio rity ; the recom mendation is made that they be initiated a s soon a s financial and technical re so u r c e s perm it. Appendix I d e sc rib e s in tabular form the so u rc e s of b a sic sta tistic a l data in Surinam . Ap pendix II lis t s in tabular form the b a sic s t a t is tical data and s e r ie s that are e sse n tial for a sound sta tistic a l program . The organizational and staffin g requirem ents of a sta tistic a l office are d escrib ed , and recom mendations are made fo r staff training and development. 137 A m erican R epublics Venezuela Lab or S ta tistic s in Venezuela; Findings, Recom m endations, and the A lliance for P r o g r e ss (1963; 14 p ag es and 3 appendix tables) Sh errill W, N eville, L abor S ta tistic s A dv iser, (Utah State Employment Service) Report d e sc rib e s and evalu ates the existin g so u rc e s of manpower data and m akes recom m endations fo r their im provem ent. A short section d e sc r ib e s the ro le of AID in im proving technical manpower se r v ic e s. The 1961 C ensus of Population shows evi dence of undercount by n early 6 percen t b ecau se of faulty birth reg istra tio n s and C ensus o m is sio n s, e sp ecially of children under 10 y e a rs of age. A s a re su lt, population and labor fo rce p rojectio n s made by v ariou s agen cies are not b ased on a true benchm ark. T h erefore, the F o u r-Y ear Plan (1963-1966) p r e p a r e d by CORDIPLAN un d erstates labor fo rce growth and school attendance. CORDIPLAN has not planned for these undercounted new entrants who will probably not get a job. However, unemployment r a te s can be held to a minimum if (1) labor force entry of students were p o st poned through additional schooling and (2) em ployment opportunities were expanded. Several agen cies produce sta tistic s which are needed for projection p u rp o ses: The M inistry of L ab o r’ s sta tistic a l office c o llec ts data each month on employment, hours, and earn ings from 14,000 establishm en ts covering 350,000 w orkers, about 35 percent of nonfarm w orkers. The Employment Serv ice p re p a re s a monthly rep o rt on job m arket inform ation. The M inistry of 138 Fomento (Industrial Development) conducted the 1961 C ensus of Population and curren tly su rv ey s m anufacturing firm s to estim ate p ro duction. Fom ento’ s O ffice of National Sam pling a lso conducted a fam ily income and expendi tu re su rvey in 1962 and expects to do another in 1963. Banco Central e stim ate s unemploy ment in C a ra c a s and publish es a co st-o f-liv in g index fo r the whole country. INCE published two su rvey s o f occupational employment in Venezuela. INCE also had surveyed apprentice ship needs in Valencia. The consultant enum er ate s the many other government and p riv ate agency stu dies on manpower. Recom m endations a re directed tow ard the action n e c e ssa ry fo r the Government of Vene zuela to develop a coordinated and reliab le manpower development p ro g ram . F u rth er r e c ommendations a re directed toward the role that AID should take to im prove their se r v ic e s to help Venezuela achieve its manpower devel opment goal. A listin g of p rop osed AID tech nical se r v ic e s fo r the 3 -year period 1963 to 1965 is provided. A m erican Republics Venezuela INCE— Techniques of Self-Instruction (1963; 5 p ag es plus attachment) Paul J . Grogan, AID Educational Consultant (U niversity of Wisconsin) The rep o rt d is c u ss e s the p o ssib ility of adapting U.S. self-teach in g techniques. Several documents were p rep ared for u se by the National Institute of Cooperative Education (INCE); only one is attached to this repo rt. This rep o rt i s a prop osal to set up internships for INCE personnel in tutorial methods through the u n iversity extension sy stem . INCE has a rem arkable opportunity to presen t fully developed national p ro g ram s in com m er c ia l, in du strial, and technical education. The spectrum of opportunity is so broad that a som e what narrow choice of the variou s methods should be made fo r expanding the work of INCE in te rm s of m eeting its training obligations. U niversity extension has g rea t potential fo r training in the v ario u s educational p ro g ram s. Followup Recommendations 1. E xperien ces in correspondence in stru c tion gained in the proposed training program at the U niversity of W isconsin should be adapted to the widest p o ssib le usuage within the operations of INCE. F or exam ple, all m a te ria ls and methods in a r e a s appropriate to the m ission of INCE should be review ed, and the content and meth odology should be adapted to the p artic u lar le v els and pu rp o ses of INCE. 2. A correspondence instruction m edia con sultant should return to Venezuela with the train e es to help them im plem ent their knowledge and sk ills. 139 A m erican R epublics Venezuela The Development of Human R eso u rc es in Venezuela An Overview (1964; 22 pages) D r. E li G inzberg, Columbia U niversity, at inviation of Instituto P a r a el D esarro llo Econom ico y Social (Institute for Econom ic and Social Development) An a sse ssm e n t of the range of actions that might be undertaken by nongovernment organization s to further develop and im prove the nation’ s human r e so u rc e s. The m ajo r portion of the rep o rt is devoted to ob servation s and im p re ssio n s on the p o litical, so c ia l, and econom ic development of Venezuela. T his country has grea t natural ric h e s and an active and ale rt population. Many advances have been made both p olitically and in du strially but its manpower development still fa c e s many handicaps, such a s the low level of education and the underdeveloped state of its agricu ltu re. Under the dictatorship of P erez Jim en ez, the government influenced the development of both natural re so u r c e s and construction activ i tie s. To c a r r y out construction ac tiv itie s, men with high-level sk ills were im ported, which undoubtedly retarded the development of sk ills of the lo cal population. C urrent manpower p ro g ram s should be developed to train local people in these sk ills. In the la st few y e a r s, Venezuela has shifted from a predom inantly agricu ltu ral society to an urbanized one. The c a u se s and devastating r e su lts of this ru ral-to -u rb an m igration are d isc u sse d at length. Although the development of industry is n e c e ssa ry to su rvive, ag raria n refo rm should not be neglected. There are 140 r e a l poten tialities fo r economic and so c ia l gain s in the agricu ltu ral sec to r. The fact that Vene zuela im ports food, that the av erage nutritional level is below a d esirab le norm , that the urban a r e a s have not been able to provide employment opportunities fo r in -m igran ts, all point to the need for im proving conditions of ru ra l life. The m ajo r challenge on the manpower front that Venezuela fa c e s in the sh ort run is to stim ulate the expansion of employment. Im provem ent of human r e so u rc e s over the long run re q u ire s a m arked expansion in the number and quality of sch o ols, additional health m ea su r e s, im proved housing, adequate nutritional le v e ls, and strengthened fam ily stru ctu re. How ev er, none of these gain s will be p o ssib le with out a rapid growth in economic development. Some actions that a nonprofit p riv ate o r ganization could initiate are : (1) collecting inform ation on unemployed youth and re aso n s fo r their unemployment, (2) developing guidance counseling p ro g ra m s, (3) prom oting im proved educational, health, and so cial se r v ic e s in slum ru ra l a r e a s. A m erican Republics Venezuela O rganization of the National Employment Service (In Spanish; 1965; 40 pages) M alcolm Kennedy, AID Manpower A dviser This rep o rt p rese n ts in detail the activ ities and r e sp o n sib ilities of the variou s o ffices and staff m em bers in the Venezuelan Employment Serv ice, In the projected organizational pattern, the D irecto r of the National Employment Serv ice will have an adm inistrative a ssista n t in charge of budget, finan ces, and personnel. Two divi sio n s, respo n sible to the D irecto r, will serv e a s the principal o ffices to plan and develop p ro g ra m s and operations of the Employment S e rv ice. E ach of these D ivisions will head se v e ral sp ecialized D epartm ents. the Employment Service and develop the methods of carry in g out these p ro g ram s. 2. The D ivision of O perations will coordinate and su p erv ise the activ ities of the regional and local o ffices in the national network. M ost of the rep o rt d e sc rib e s the resp o n sib il itie s of each D ivision and Department. D etailed job descrip tio n s, including statem en ts on knowl 1. The D ivision of P ro g ra m s and Methods edge and sk ills requ ired for the job, are provided will plan and coordinate the variou s p ro g ram s of fo r sta ff m em bers at all le v e ls. 141 A m erican R epublics Venezuela National Manpower Training and Development V alencia P ilot Office of the National Employment Service (1965; 46 pages) M o rris J . Doren, AID Manpower Consultant E xperien ces of settin g up a pilot lo cal employment se rv ic e office in Venezuela. Under AID au sp ic e s, a tw o-year plan w as developed to e stab lish a pilot local employment se rv ic e office in V alencia which would se t the pattern fo r a network of field offices of the National Em ployment Serv ice. The b a sic aim of the Venezuelan M inistry of L ab or w as to expand the p resen t Manpower D ivision into an effective National Employment Serv ice, 1 / in which the V alencia office would be a Demon stration and T raining Center to develop p e r sonnel fo r the National O ffice. V alencia was selected becau se it is the center of an im portant com m ercial and trading a r e a and the location of many la rg e employing estab lish m en ts (m ostly U.S. firm s). Valencia has a la rg e and trainable labo r fo rce which la c k s the n e c e ssa ry sk ills to m eet the expanding req u irem en ts of industry. There is also con sid erab le concern in the a r e a about high unem ploym ent, ru ral-to -u rb an m igration, and the high birth rate . The functions of the curren t local office, known a s the Placem ent Agency, were lim ited to the n arrow est concept of an employment s e r vice. The office review ed job o rd e rs from em 142 p lo y ers and job applicants w ere r e f e rre d to these em ploy ers fo r interview . There were no tech nical supporting se r v ic e s n e c e ssa ry fo r an effective placem ent pro g ram . The consultant recom m ended an appropriate co u rse of action in the following m ajo r a r e a s: 1. Improvement of the placem ent p r o c e ss in the V alencia office. 2. R eorganization of the em ployer visitin g p ro g ram in the V alencia office. 3. Improvement in the utilization and ap pearan ce of the p re m ise s of the V alencia office. 4. P reparatio n at the National Office and in V alencia for the inception of an employment counseling and occupational testin g p rogram . J / See M alcolm Kennedy rep o rt, June 1965, on organization of the National Employment Serv ice. A m erican Republics Venezuela A pprenticeship and Industrial Training Report (1965; 15 pages) John F . B a rre tt, AID A pprenticeship Consultant D isc u sse s the operations prenticeship development, operations with the labor challenge to INCE under train the “to tal* man. The consultant visited training cen ters in M aracaibo operated by National Institute for Co operative Education (INCE) and by private oil com panies, and observed that m em bers of their training sta ffs have never v isited each other. He arran ged a few m eetings and encouraged m ore exchange v isits. The consultant a lso a ss iste d in orgainizing trip artite trade advisory com m ittees in B a rquisim eto. Com m ittees w ere form ed in m ajor occupational a r e a s; they proved quite s u c c e s s ful. Other INCE d ire c to rs w ere encouraged to attend la te r m eetings to ob serv e the methods of establish in g INCE work at the com m ittee level. Although INCE has built up a significant re c o rd sin ce 1962, high turnover has occu rred at the directory and su p erv iso ry le v e ls. To hold a dedicated sta ff together, INCE should institute a p ro g ram of Personnel A dm inistration and C a re e r Development. Ideas and su ggestion s of the 15 previou s con sultants assign ed to INCE should be review ed and of INCE a s they affect ap the relatio n sh ips of these law s of Venezuela, and the its ch arter to develop and consolidated. Such a com pilation would stim ulate restudy and re-evaluation of the re p o rts and would serv e a s training and r e se a rc h m ate rials fo r INCE. Several recom m endations and com m ents are made on apprenticeship development. The decen tra lize d organization of INCE should prove ad vantageous in carry in g out its stated functions of total education of the w orker, com pared with the m ore institutionalized apprenticeship o rgan iza tions in other cou n tries. So fa r, trade unions have not participated in INCE’ s p ro g ram s, except for som e of the building tra d e s. Several reco m mendations are made to encourage their p a r tic i pation. Other su ggestion s cover im portation of sk illed w orkers, prov isio n s in INCE law, and de velopment of sk ills in ru ral a r e a s through use of m obile training units. Finally, it is recom m ended that two AID ap prenticeship a d v ise rs be assign ed to INCE fo r a minimum of 2 y e a rs. The duties of the a d v ise rs a re outlined. 143 A m e r ic a n R e p u b lic s V e n e z u e la IN C E T w o L a t in a n d A m e r ic a n (1 9 6 6 ; 1 1 p a g e s D O L IT A C E u g e n e P r o v id e s T h e tio n N a tio n a l (IN C E ) w h ic h s h ip in p r o v id e s f o r th e a u to n o m o u s i s o f f o r C o o p e r a tiv e a d m in is t e r s a n d u n e m p lo y e d . th e M b y o f th e N a tio n a l in c lu d e s a n d a g o v e r n m e n t fin a n c ia l T h e in g 2 0 to la w w o r k e r s b e tw e e n o n c la s s r o o m r e p o r t la b o r . p lo y e r s e m p lo y e d . tr a in in g c o m b in in g e m l i s t s th e f r o m A t a x 1 4 to e x te n d t r a in a n d P r o g r a m 1 8 s f o r e v e r y r a n g e fr o m stu d y a n d w o r k e x p e r ie n c e . d u tie s a n d g o a ls o f IN C E . A d e t a ile d B a s e d 2 1 d e s c r ip t io n A p p r e n tic e s h ip o n a in d u s t r ia l e s t a b lis h m n a tio n a l a n d e n t s t r a in in g p r o g r a m m o r e th a n 1 0 th e w e r e m N a tio n a l P r o g r a m m a n p o w e r c o m e r c ia l s e le c t e d a ll i s th e o r g a n iz a tio n in s titu tio n s in a n d L a t in a n d a ll s u r v e y f o r b a n k s to a n d p r o v id e in s u r a n c e tr a in in g c o m p a n ie s f o r s e le c t e d a r e y o u n g w o r k e r s . A o n s u m m a r y ( s e e o n IN C E T h e r e p o r t a n d b y Jo h n F O R , IL O , w a s th e e ste r n W i s m e m b e r a r ie s h e a d q u a r t e r e d in H e m is p h e r e th r o u g h c o m p o s e d c o u n t r ie s p r e p a r e d t h r e e c r it i c a l V o c a tio n a l D o c u m e n ta tio n o r g a n iz e d fu n c tio n s w h ic h B a r r e t t T r a in in g ” c o m o p e r a t io n s . a n d g u a y , F . I n d u s tr ia l I n t e r - A m e r ic a n R e s e a r c h , m th e s u m m a r y e ls e w h e r e ) p r o v id e s m e n t It o f “ A p p r e n tic e s h ip a o f in m e e tin g s th e a r e C IN T E R M o n te v id e o , 1 9 6 2 a n d n a tio n s l i s t s a s T e c h n ic a l m o n c e U .S . U r u m o s t e m o f b e r s . C o m m itte e , r e p r e s e n t a t iv e s m e e tin g b y T r a in in g , C e n te r a y e a r . d e le g a t e s f r o m S u m to th e r e p r o d u c e d . (C o m p r e s e n t e d . in o c c u p a tio n s s . A ll e s t a b lis h m p e r s o n s , 1 4 4 o f 8 ; C o n s u lta n t o n o b lig e d f i r s t p u ls o r y ) N o . tr a in in g o n p r o v id e v a r io u s m a c h in e s to th o s e v a r io u s P a p e r a n r e s o u r c e s . w o r k e r o n - th e - jo b T h e f r o m r e q u ir e s o n e la w A d m in is t r a t iv e r e p r e s e n t a t iv e s m a n a g e m e n t, th e E d u c a th e IN C E g o v e r n m e n t, g r a n t I n s titu tio n s a tta c h m e n t) in fo r m a tio n s k ill in is t r y o f E d u c a tio n , p a y r o lls a n d S ta ff s k ill tr a in in g a n d a p p r e n t ic e e m p lo y e d w h ic h tw o T r a in in g 1 e r ic a . b r a n c h d ir e c t e d C o u n c il I n s titu te V e n e z u e la o f S k ill a n d A p p r e n tic e s h ip b a c k g r o u n d fu n c tio n s A m 1 / H o o d , C IN T E R F O R 1 9 6 1 , in 5 9 e x p e r im e n ta l e n t s e m p lo y in g g o v e r n m e n t a g e n c ie s , \ J U .S . T e c h n ic a l D e p a r tm e n t A s s is t a n c e o f L a b o r C o r p s . I n te r n a tio n a l A m e r ic a n R e p u b lic s V e n e z u e la E m p lo y m e n t P r o je c t io n s , (1 9 6 6 ; A 0 A s t a f f w o r k in g e m p lo y m e n t T h e d e la l a t e s t r e v is io n N a c io n , 1 9 6 6 ) m e n t p r o je c t io n s F o u r m a jo r th e w h ic h th e th is r e g a r d in g V o g t, p a p e r b y M a n p o w e r 1 9 7 5 2 . E m p lo y m e n t b a s e d . f o r p r o je c t io n s a r e s e c t o r s C o m m u n ic a tio n s , th a n to th e S ta g in g 4 0 a o f a n d th e C u id a d a n d h a s a c c o u n t m a tio n 1 9 6 6 to th e in m o d e r n iz in g u r b a n a n d 2 2 5 ,0 0 0 in th e sh o u ld O th e r S e r v in a s s ig n e d o th e r S t a t e s , sh o w n f o r c it ie s a n d th a t th e b o th in th e in f r a T h is it e m 3 w ill h a s a n d w ill c o n tin u e to h a v e p u te r l e a s e s b e w ill p r o g r a m “ f in a l" fig u r e S tu d y p r e v io u s to 4 0 0 ,0 0 0 r e c e n t in f o r p o p u la tio n f o r o f g ro w th f ig u r e s C u id a d s m o s t o f a n d th e b y e c o r e p o r t . t o t a ls th e a r e s e c t o r a l p o p u la tio n G u a y a n a a r e p r o v id e d . m o d ifie d th e f o r p r o je c t io n s o f b y d a ta b e p r o j (ite m s 1 a n d 2 , a b o v e ), e m p lo y m e n t u s e d a s r e a l i s t i c e m p lo y m e n t p r o je c t io n s . s e c t o r s f o r 2 2 2 ,0 0 0 a p p e a r s e m p lo y m e n t T h e s e th e y M o r e a n d r e v is e d f o r m S e c t o r a l s in c e e c o n o m y . o n s e c t o r s S e c tio n . a s s u m b a s i s f o r s e c t io n 4 . 1 9 7 5 . T h e S ta g in g th e p r o c e d u r e s e d sh o u ld 1 9 7 5 . B a s e d n o m ic b y in 3 0 0 ,0 0 0 p o p u la tio n p r o b a b ly w ill n o t e x c e e d in f r a s t r u c t u r e b e It m o r e th e b y in 3 . a n d b e u s e d b e tw e e n im m ig r a t io n th a t e c t e d b y p r o je c t io n s r a n g e d G u a y a n a o n th a n 3 5 p e r e m p lo y m e n t. G u a y a n a s h a r e U n ite d i t s e lf , s e c t o r s to ta l lo w e r E x p e r ie n c e C a r o n i s t r u c t u r e h a v e C u id a d ( C o m m e r c e , T r a n s p o r t a n d G o v e r n m e n t, s o m e w h a t D is t r it o th a t b e tw e e n p e r c e n t o f to ta l e m p lo y m e n t r a t h e r S tu d y . V e n e z u e la c e n t p r o je c t io n s f o r C u id a d G u a y a n a s h o u ld a llo c a t e 3 5 P o p u la tio n s t u d ie s in d ic a t e s f r a s t r u c t u r e ic e s ) te c h n iq u e s o f p r o je c t in g (P la n d e v e lo p e d : 1. C o n s u lta n t a c tiv ity . e m p lo y i s C a r o n il9 7 5 p a g e s ) d e s c r ib in g S tu d y b a s ic p a p e r th e A ID e c o n o m ic S ta g in g p r o v id e s o n p o in ts o f Jo h n 1 8 D is t r it o n o t a s p r o d u c e d H u m a n fin a l, s o o n b y R e s o u r c e s a s E c o n o m ic s e m p lo y m e n t h o w e v e r , th e c o m S e c tio n r e p r o je c t io n t o t a ls . 145 A m e r ic a n R e p u b lic s V e n e z u e la IN C E — S p e c ia l (1 9 6 6 ; D O L IT A C A r c h ie F u n c tio n s a n d C o o p e r a tiv e s p e c ia l A o n e - p a g e p r e s e n t e d P r o g r a m o n , 1 9 6 1 - 6 5 . fo r m a tio n a in w a s p r e c e d in g a d d e d . It t r a in in g t i e s e n r o lle e s h o u r g r a m in c o m e w e r e f o r a s in f o r a s D u r in g p r o g r a m to th e s a m E u g e n e e in H o o d $ 2 2 .5 fie ld th e 3 4 s n e a r ly r a n g in g s u p e r v is o r s to 7 2 ,0 0 0 fr o m 1 - y e a r 1 0 - a th e c o o r d in a t o r s im p r o v e th e c o n s tr u c tio n (te c h n ic a l s t a ff) o f o n 2 . L o w 3 . 1. A s t r u c t io n a n d d is t in c t b e tw e e n 2 . IN C E 3 . lin e A a n d s t a f f a n d p e r s o n n e l A n i s o u tlin e (lin e ) s t a f f 1 4 6 th e d e v e lo p m e n t p r o g r a m in a r e : o f a h e a v y la b o r in d u s tr y b o y s . p r o v is io n s r e lu c t a n c e a s T h e G e n e r a l 1 . o n c o m p u ls o r y a p 2 . q u o ta fu n c tio n s . 3 . s p e c ia liz e d d u r e s o f m a n y y o u th to e n te r c o n a p p r e n t ic e s b e c a u s e lo w la c k o f in a p p r e n t ic e s h ip o r g a n iz e d s u g g e s t e d p la n o r g a n iz a t io n a l w o rk e x p e r ie n c e a n d la b o r . lim it a t io n s p e r c e n t) E f f o r t s a n d f o r r e o r g a n iz in g c h a r t a r e p r o v id e d IN C E in a t 1 . T h e (5 o f th e h a r d p a y . o b s e r v a t io n s A a n sh o u ld a n d c h a n g e in jo b t i t le s o f c e r t a in p e r s o n n e l c o n ta c t c la r if ic a t io n r a t io tr a d it io n r e la t io n s h ip r e v a m p in g o f IN C E ’ s o r g a n iz a t io n r e lu c t a n c e r e la t iv e ly 4 . a n d a in d u s tr y im m a tu r e T h e ta c h m e n t sh o w h in d e r in g a p p r e n tic e s h ip p r e n t ic e s h ip . in c lu d e d : T h e ta k e p r o w o r k d if f ic u lt ie s c o m p r e h e n s iv e 1 . to fo r a n d c o n s tr u c tio n . S o m e o f c r a f t to In s titu te a p p r e n tic e s h ip o th e r tr a in in g f a c il i 1 9 6 5 , 1 8 ; C o n s u lta n t c o o r d in a t o r s , m illio n a n d o p e r a t e d N o . N a tio n a l fie ld in s t a t i s t ic a l d a t a w e r e U .S . P a p e r i s D e v e lo p m e n t a p p r e n t ic e s . R e c o m m e n d a tio n s I N C E ’ s b y t o ta le d w e ll u n its ). c o u r s e s s E s s e n t ia lly S t a ff o f r e p o r t s p a g e s ) A p p r e n tic e s h ip (IN C E ) r e la t e d in fo r m a tio n p r o v id e d c e n t e r s s M a n p o w e r e m p lo y e d 2 ,0 0 0 p e o p le (m o b ile t r a in in g E d u c a tio n p r o b le m s u m m a r y ; s o m e IN C E ’ s 1 9 6 5 . g e n e r a l IN C E ’ s JL / B e a u b ie n , P r o b le m 1 7 to o n sh o u ld sh o u ld r e d u c e b e a g e b e (1 4 - 1 8 ) a n d o n r a t io r e v is e d . m a d e p a p e r to s im p lify p r o c e w o r k . s u g g e s t e d . f o r i s th e tr a in in g p r e s e n t e d . o f in d u s tr y \ J U .S . T e c h n ic a l D e p a r tm e n t A s s is t a n c e o f L a b o r C o r p s . In te r n a tio n a l A m e r ic a n R e p u b lic s V e n e z u e la P r o c e d u r e f o r (1 9 6 6 ; W ilfr e d V . M e m o r a n d u m P r e s e n t a t io n 8 L a b o r p a g e s J o n e s , to o f a M M a r k e t a n d A ID a lc o lm A n a ly s is 2 2 - p a g e o f a n A r e a a p p e n d ix ) M a n p o w e r C o n s u lta n t; K e n n e d y , p r o c e d u r e f o r U S A ID /V e n e z u e la a n a ly z in g a jo b m a r k e t a r e a . T h e p r o c e d u r a l m a r k e t 1 . M a r e a s t e p s f o r a n a ly z in g a e a s u r in g a n d d e fin in g th e jo b A jo b in c lu d e : d e ta ile d a n d c a lc u la t in g S e v e r a l w o r k s h e e ts a r e p r e s e n t e d S a m p le a L is t in g s a m p le d a ta . a f t e r f o r m a t s th e a ls o P u e r to a r e R ic a n a r e sh o w n e x p e r ie n c e . to illu s t r a t e u n iv e r s e . h o w 3 . th e w h ic h m a r k e t a r e a . E s t a b lis h in g c o v e r s th e s t e p s in c o l o r g a n iz in g , p a tt e r n e d 2 . d is c u s s io n le c t in g , e m p lo y e r s a n d th e in fo r m a tio n c a n b e d is t r ib u t e d to th e e m p lo y p u b lic . m e n t. 1 4 7 A m e r ic a n R e p u b lic s V e n e z u e la T e c h n ic a l A s s is t a n c e to S e r v ic e (O c to b e r 1 9 6 5 D O L IT A C M A c o lle c tio n r e g a r d in g v ic e 1 . to A d e t a ile d im p r o v e E m p lo y m e n t 2 . a n d la y o u t a t S e r v ic e o f m a d e to D e t a ils th e th e r e m o d e le d (1 7 o f e ig h t C a r a c a s i s a n d th a t o f th e s e th e s ix e ir , o ffic e th e (3 th e p a g e s ) o ffic e w e r e w a s b e in g o ffic e S u g g e s tio n s o p e r a t io n s a r e o f o r g a n iz a tio n lo c a l lo c a l a ls o o f th e w e r e o ffic e . p r e s e n t e d a lo n g o r g a n iz a t io n a l, fu n c tio n a l, a n d la y o u t c h a r t s . p a g e s .) 3 . th ir d a n d l a r g e s t p e a r e d o f lo c a tio n c ity ) c r e a t e d S t r e e t T h e y c o m p le te S e v e r a l m e th o d s 4 . A c u r r e n t o f a r e e x c e p t a a p p e a r e d w e r e to b e a p p r o p r ia t e o p e r a tio n o f 1 4 8 f o r f a c il it i e s r e p o r t s “ M a n u a l b y th a t h a n d ic a p o p e r a t io n s e t o (V e n e z u e la ’ s a r e th e th ir d e ffe c t iv e flo o r o p e r a a n d ta b u p r e s e n t e d d e t a ile d f o r a p s u g g e s t e d . a n a ly z e d w e ll a m o u n t o ffic e w e r e o ffe r e d . N a tio n a l N o . m a d e th e 2 1 ; A d v is e r b y lo c a l p a g e s ) th e c o n s u lta n t e m p lo y m e n t s e r S e r v ic e . th a t a n d w o u ld S e v e r a l a n d a r e p o r t r e s u lt T o th e a je c t iv e s T h e o f t r a in in g a fin a l a s s ig n m e n t . g r a m to s . m a jo r o f d is c u s s io n E m p lo y m e n t g r o w th th e th e th e m s e r v ic e a n d sh o u ld s k il l s o u tlin e s th e th e (5 r e f e r s th e la c k a ll to S e r v ic e p r o p r in c ip a l s m w o rk s u p e r v is io n E m p lo y m e n t o f 9 - m o n th r e c o m m e n d a tio n o n th e (8 p a g e s .) c o n s u lta n t’ s in c lu d e s i t s o b o r g a n iz a tio n a r iz e s fo llo w u p o f s p e c if ic d is c u s s e d . r e la t iv e ly S e r v ic e . o ffe r e d (6 p a g e s .) S e r v ic e T h e s u m th e c o n tin u a tio n a n d i s m a n u a l. e ffic ie n t p r o g r a m a ls o o f A l i s t s r e p o r t d u r in g A a n d c o n d u c t. n e c e s s it y c o n tin u e d S e r v ic e to a a r e p r e s e n t e d . im p r o v e r e p o r t tr a in in g a c c o m p lis h e d in s u r e to a d v a n ta g e s s u c h E m p lo y m e n t p r o g r a m T h e th e m a n y o f i s e ffe c t iv e th e o f tr a in in g 6. th e u s e o u tlin e p r o g r a m e m p lo y e e s . to f r o m r e n d e r p u b lic , d e v e lo p ty p e s l i s t s g u id e lin e s f o r i t s p r e p a r a t io n t h r e e - p a g e 5 . to T h e o b s t a c le s o f s iz e a C iv il o f th e p a g e s .) in fo r m a tio n . im p r o v in g O p e r a t io n s ” in T h e th e th e 4 9 M a n p o w e r E m p lo y m e n t r e v ie w e d . r e c o m m e n d a tio n s o f lo c a l o c c u p ie d le v e l w ith th e B a r q u is im s p a c e o p e r a tin g la t e d . in a d e q u a te t io n s . T h e o p e r a t io n s o ffic e k in d in 1 9 6 6 ; P a p e r a T h e S e r v ic e J u ly r e p o r t s r e c o m m e n d a tio n s f o r s u g g e s t io n s W E m p lo y m e n t V e n e z u e la . p r e s e n t e d . e n la r g e d . im p r o v e o f in lo c a l C a r a c a s t im e E . N a tio n a l O ffic e S t a ff j im p r o v e m e n ts o f fic e s R e c o m m e n d a tio n s m a d e w ith l i s t th e e r r ill J to th e (1 0 i s th e p a g e s .) n e e d e d f o r E m p lo y m e n t 1 / U .S . T e c h n ic a l D e p a r tm e n t A s s is t a n c e o f L a b o r C o r p s . In te r n a tio n a l A m e r ic a n R e p u b lic s V e n e z u e la A R e p o r t th e M o f U S A ID /V e n e z u e la in is t r y o f L a b o r a n d (1 9 6 6 ; M A a lc o lm r e v ie w o f d e v e lo p m e n t A s h o r t h is t o r y V e n e z u e la a n d d e s c r ib e d . V e n e z u e la to in d e v e lo p p r im a r y p e r io d r e s u l t s th e 1 9 6 1 , i t s h u m a n w e r e (a ) to p la n n in g h a s w o r k e d IN C E , a n d th e L a b o r . M o s t e ffe c t iv e M e ffo r t a n d v a r io u s o f a r e o f tio n , f o r m a n p o w e r in c lu d in g O th e r N a tio n a l th e C O R D IP L A N . a n d o f to w a r d d e v e lo p fie ld o f f ic e s , w a s o r g a n iz e d . w e r e la b o r s t a t i s t ic s , a n d th e c o o p e r a t iv e s ig n e d c a r r y o u t th e s e c o m p e te n t te c h n ic a l a s s i s t a n c e la b o r w a s in s p e c t o r m o v e m e n t. a s s i s t a n c e f o r s t a f f p a r t ic ip a t e to tr a in in g a s s ig n e d m a r iz e s B y 1 9 6 3 - 6 5 tr a in in g m e m p r o g r a m to a n d o th e r t a r g e t s , A ID m a n p o w e r r a n g e d o r g a n iz a fu n c tio n s . S e r v ic e lo c a l a r e a s f o r w h ic h s u b s t a n t iv e T o M a n p o w e r E d u c a tio n s e r v ic e E m p lo y m e n t 1 9 6 2 - 6 6 C o n su lta n t s s e r v ic e , w ith C O R D IP L A N , w a s d ir e c t e d p e r io d in T h e s tr e n g th e n in p r o g r a m g o a l h a s b e e n A ID ’ S to th e M a n p o w e r p r o v id e d a n e ffe c t iv e (b ) f o r S e r v ic e t a b le s ) U S A ID / o f d u r in g th e f iv e - y e a r a r ily in is t r ie s s e r v ic e s d e v e lo p m e n t. s e r v ic e s p r im e m p lo y m e n t N a tio n a l A ID a n d T e c h n ic a l V e n e z u e la . e n t p r io r it y e s t a b lis h S e r v ic e A ID a to p t a r g e t s m a n p o w e r 1 9 6 4 , e s t a b lis h m S e r v ic e s p r o g r a m E m p lo y m e n t in g o f t h e s e r e s o u r c e s a c tiv ity T e c h n ic a l p a g e s o f A ID ’ S te c h n ic a l s e r v ic e s to th e S in c e C O R D IP A L N 2 2 K e n n e d y , A ID ’ S in M a n p o w e r in b e r s in s . A a d v is e r s v a r io u s o f th e a r e a s V e n z u e la n S t a t e s id e c o s t V e n e z u e la p r o p o s e d e s t im a n d a r te c h n ic a l a n d P u e r to R ic a n l i s t o f c o n s u lta n ts w h o w e r e d u r in g t h is p e r io d th e ir a c t iv it ie s a n d p r o g r a m a n d a s to p r o v id e 1 9 6 7 a t e s a n d a ls o 1 9 6 8 a r e s u m s . C o m p le te p a r t ic ip a n t s u m m a r iz e d . 1 4 9 A m e r ic a n R e p u b lic s V e n e z u e la M is s io n to V e n e z u e la : (1 9 6 7 ; D O L IT A C E u g e n e E v a lu a t e s th e s u g g e s t io n s T h e N a tio n a l u c a tio n o f (IN C E ) 1 9 6 6 w a s t a b lis h m e n t m o r e 9 0 th a n 2 2 ,0 0 0 p e r c e n t o n in th e a C o o p e r a tiv e R e s e a r c h h a d a c o v e r e d o f m o r e d a t a s u r v e y s th a n o f T h e a s A la b o r p r o v id e r e s e a r c h th e o r tw o o f 1 . u s e fu l 2 . 3 . s h o u ld b e s e t u p fo llo w in g : 4 . a n d r e a d y 2 . m e n t L a b o r d a ta s im i l a r to th a t a l L a b o r a n d s u p p ly d a ta , e s p e c ia lly u n d e r e m p lo y m e n t, s a m p le c a r r i e d b y h o u s e h o ld o u t b y u n e m p lo y c o lle c t e d s u r v e y , s u c h C O R D IP L A N a n d b y a s a th a t It m a k e s d e m a n d s h o u ld o n It a s h o u ld fo r It s tu d y s h o u ld s h o u ld b e c a r r i e d r e g u la r ly e v e r y y e a r b a s is . d r a w o n a ll e x p e r t a g e n c y r e im p r o v e m e n t. b e m o r e h ig h ly p u b lic iz e d to s u p p o r t. s h o u ld b e to a r e a , r e g io n a l, s h o u ld b e f o r a c c u r a c y m a d e in t e r v ie w s . P r o je c t io n s m a tc h r e s p o n s iv e n e e d s . C h e c k s e x p e r ie n c e p lo y e r r e p e a t e d p le sh o u ld fu ll It b e s a m s u b s a m p le 6. g a th e r e d . n a tio n a l b e in g d e m a n d la b o r in d u s t r ia l 5 . 1. a n d fo llo w s : s o u r c e s IN C E . p r o je c t r e p o r t e s s e c u r e to 3 2 ; C o n s u lta n t m a n p o w e r . o u t 3 2 1 ,4 0 0 b e N o . d e m a n d E d P r o je c t u n iv e r s e s h o u ld P a p e r M a n p o w e r m a n p o w e r fu tu r e p lo y e r s . R e s p o n s e w a s o v e r ta b u la te d w o rk IN C E f o r p a g e s ) S t a ff / V in o g r a d o ff, n o n a g r ie u ltu r a l w h ic h e m a n d T h e f o r D e m a n d b a s e d s u r v e y w o r k e r s . g u id in g I n s titu te L a b o r 1 5 IN C E s a m o f e m fo r p le o n e y e a r t r e n d s b a s e d p lo y e r s , r a t h e r a n d b e y o n d o n a c tu a l p a s t th a n o n e m g u e s s e s . o th e r a g e n c ie s . 3 . F o llo w u p d e te r m in e 4 . th e S p e c ia l t r a in in g s t u d ie s s c h o o l 1 5 0 s t u d ie s o f IN C E e f fe c t iv e n e s s o n o f g r a d u a t e s th e ir c h a r a c t e r i s t i c s g r a d u a t e s , s u c h a s o n to t r a in in g . o f tu r n o v e r . 1 / U .S . T e c h n ic a l D e p a r tm e n t A s s is t a n c e o f L a b o r C o r p s . In te r n a tio n a l A m erican R epublics Venezuela Guayana P ro ject (1967; 8 pages) DOLITAC 1/ Staff P aper No. 33; Eugene D. Vinogradoff, Manpower Consultant This memorandum to the USAID M ission is a respon se to a s e r ie s of questions by the Educational Consultant to Corporacion Benezolana de Guayana (CVG). INCE requested an in crease from B s 600,000 to B s 1,000,000 p er y ear from CVG for training p u rp o ses. To be su re that training would be given in sh ortage occupations, CVG r a ise d se v e ral questions M ost of the questions deal with (a) agen cies involved in manpower stu d ies, (b) types of inform ation av ailab le, liste d by agency in charge, (c) types of su rvey s and methods being conducted, and (d) an aly sis of quality of re su its of su rv ey s. T hese questions were answ ered in detail. Several questions related to agency re sp o n si bility and capability to gather data. Job m arket inform ation is the resp o n sib ility of the National Em ployment Service o ffices. Household sam p les of the labo r fo rce come under the ae g is of the of the Statistical Office of the M inistry of Fom ento. INCE, through the chief statistic ian at the M inistry of L ab o r, gath ers labor demand in form ation. There ap p ears to be duplication and overlap of som e sta tistic a l gathering functions, but CVG is in a unique position to a s s is t in im proving coordination and cooperation, since it will control finances in the Guayana a re a . Recom m endations were made fo r the a ssig n ment of a manpower consultant in Guayana to im prove employment se rv ice functions in the Guayana a r e a and to develop detailed procedural techniques of gathering data. JL/ U.S. D epartm ent of L ab or International Technical A ssistan c e C orps. 151 A m erican Republics Venezuela Development of Occupational T e st R ese arch P ro g ram in Venezuela’ s National Employment Serv ice (1967; 4 p ag es and 10-page attachment) D O LITA C_l/ Staff Paper No. 42; A lbert R. Cruz, Counseling and T estin g A dviser Report d e sc rib e s the p r o g r e ss of the counseling and testing program of the National Employment Service and the procedure fo r developing an occupational te st r e se a r c h p rogram . The counseling and testin g program began in Jan u ary 1966 a s p art of the D ivision of P ro g ra m s and Methods under the Venezuelan National E m ployment Serv ice. The te st r e se a r c h p r o g r a m is developing in three ste p s, a s follow s: 1. United States GATB te st m ate rials are being tran slated and adapted to the needs of the local population. 2. The Puerto Rican norm s ( c o n v e r s i o n tab les) are being u sed but Venezuela should develop its own standardization. The consultant spent considerable tim e developing a sam ple that would be represen tative of the Venezuelan labor fo rce. A 10-page attachment d e sc rib e s the methodology for the study and the design for developing conversion tab les applicable to Vene zuela. 152 3. B ased on the r e su lts of the standardization study, the National Employment Serv ice will try to initiate te st development stu dies to estab lish aptitude te st n orm s locally. The consultant su g g e sts that consultants who speak Spanish should furnish further technical a ssista n c e on this topic. In addition, the p ro g ram of te st r e se a r c h should be review ed after the collection of the data and before the an aly sis of these data. 1 / U.S. D epartm ent of Lab or International Technical A ssistan c e C orps. A m erican R epublics West In dies/G en eral Manpower Information T raining C ourse (1960; 3 4 pages) ILO Report to the Government of the West Indies; IL O /T A P /W est In d ies/R .5; M iss J . Pettijohn (Manpower D ivision, ILO) and F.W. M ahler (A ustralia) Sum m ary of a co u rse fo r Government o ffic ials on the role of manpower in economic development. The Manpower Inform ation T raining C ourse w as conducted by the ILO at the U niversity Col lege of the West Indies. P articip an ts w ere of fic ia ls from the labor adm inistration in the Unit Government of the Federation of the West Indies. The co u rse was designed to provide a general appreciation of the manpower factor in economic planning and development, and to give sp ecific instruction in the methods and techniques of co l lecting, analyzing, and reportin g inform ation about the manpower situation. V arious a sp e cts of a manpower inform ation pro g ram w ere d iscu ssed : 1. A vailability of and need fo r manpower in form ation. 2. M easurem ent and an aly sis of the man power supply/dem and situation. 3. P reparation of general and sp ecial rep o rts on the manpower situation. 4. A dm inistrative organization of the man power inform ation program . The situation of each of the Unit Governments w as analyzed and certain broad conclusions were reached: 1. Information on presen t and future man power supply and demand is lacking in all a r e a s except Ja m a ic a , and Trinidad and Tobago. 2. Each Unit Government needs a continuing p ro g ram which should be coordinated with each other, using ILO stan dards fo r com parability. 3. G eneral re p o rts on the manpower situation should be prep ared annually and supplemented with ad hoc re p o rts. Recom m endations were made concerning the ro le that the F ed eral M inistry of Labour and Social A ffairs should play in coordinating and guiding the effo rts of the Unit Governm ents to im plem ent a West Indies manpower inform ation p rogram . 153 A m erican R epublics West In d ie s/Ja m a ic a P ro p o sal and Recom m endations on Manpower T raining and Development in Ja m a ic a (1966; 38 pages) DOLITAC 1/ Staff P ap er No. 12; Vincent R. F au ld s, Manpower T raining A dviser D escription of existin g training p ro g ram s and a prop osal to coordinate and develop manpower training ac tiv itie s. High unemployment r a te s and sh ortages of trained personnel are se rio u sly handicapping development of production and se rv ice indus t r ie s . Current educational and training institu tions are geared to manpower requ irem ents existin g in an a g raria n economy. Several new training plan s, such a s the apprenticeship se r v ice and youth cam p s, have been introduced to c o rre c t th is situation. However, p r o g r e ss has been retard ed becau se of a sh ortage of technical and p ro fessio n al leadersh ip and the absence of technical se r v ic e s. B a sed on inform ation obtained from o b se rv a tion v isits and interview ing with rep resen tativ es from governm ent, lab o r, and m anagem ent, a p ro p o sal w as p rep ared to cre ate a National Com m issio n on Manpower Training and Development to guide and coordinate all trainin g activ ities a s follow s: 3. Technical and p ro fessio n al sta ff should be employed to im plem ent the p o lic ies of the Com m ission . 4. A greem ents with foreign agen cies should be negotiated to cooperate and a s s is t in man power training and development. The m ajo r portion of the repo rt d ea ls with d etails of the sp ecific recom m endations of the p rop osal. O bservations a lso are made of the existin g trainin g institutions and of the role the M inistry of L ab o r p lay s. This M inistry is cog nizant of the requirem ents for an effective man power development p ro g ram . O rganizationally, there are a Manpower R ese arch Unit, an E m ployment Serv ice, and an Apprenticeship Se rv ice; but lack of funds and personnel ham pers operation s. The 12-page supplem ent (labeled appendix II) contains check lis t s on the institutional stru ctu re 1. The C om m ission should be attached to the and on the training p r o c e ss . Office of the P rim e M inister and should be com posed of m em bership from all public and private agen cies concerned with training and develop ment. 2* A sp e cia l fund, provided by a payroll tax, should be estab lish ed to finance the n e c e ssa ry prom otion and development of the national man J J U .S. D epartm ent of L ab or International power train in g sy ste m . Technical A ssistan c e C o rp s* 154 A m erican Republics West In d ies/St. L u cia Development in the E aste rn C arribean Islan d s S e rie s 4: Manpower Surveys: St. L u cia (1967; 71pages) U niversity of West Indies, Institute of Social and Econom ic R esearch ; A lice W. Shurcliff (ILO) and J .F . W ellemeyer (Ford Foundation) A sse ssm e n t of manpower supply and demand in St. L u cia. The purpose of this rep o rt is to provide the Government of St. L u cia and the p riv ate secto r with inform ation on manpower requ irem ents for their development plans. Information w as ob tained from o fficials of Government, industry, and trade unions and from the 1960 Census of Population. TheUoS. Government provided infor mation on the employment of West Indians in the U.S. Virgin Islan d s and other im m igration data. T hese variou s so u rc e s, combined with opinions of knowledgeable people, provided the b a se s for estim atin g future effective demand fo r labor. A ccording to the 1960 Census of Population, there were over 86,000 people in St. L u cia, an in crease of 16,000 sin ce 1946. D espite the popu lation in cre ase , the siz e of the labor fo rce de c re a se d becau se of heavy em igration among people of working age and the withdrawal of women from the labor fo rce. A s a resu lt, the in c re a se d demand for labor during the e a rly 1960’ s w as the m ajo r reaso n fo r the decline in underem ployment and unemployment. However, a r e v e rsa l in this trend is expected between 1965 and 1975 when the supply of labor is no longer held constant by em igration. At the presen t tim e, em ployers rep o rt sh ort ag e s of sk illed w o rkers, esp ecially m echanics and repairm en , ele c tric ia n s, plum b ers, c le rk s, te ac h e rs, m edical personn el, and m an agers. B ecau se of inadequate training fa c ilitie s, these sh o rtages are expected to p e r s is t during the com ing y e a rs. The education sy stem does not have the required output. Thus a se rio u s bottle neck is created in upgrading human re so u rc e s to the degree n e c e ssa ry to m eet the req u ire m ents of the economy. E m ployers in the agricu ltu ral sec to r com plain of low level of effort put forth by work e r s . The lack of incentive to work m ore than a few days a week or to m aintain other work stand a rd s should be the subject of a se rio u s study by an in terd isciplin ary team since re p o rts are con trad icto ry on re aso n s for this low level of effort and on the actual effect of fa rm productivity. St. L u cia likely has built up a set of mutually rein forcin g fa c to rs leading to u n satisfactory w orker output, such a s poor health, poor land tenure sy stem , lim ited education and a s p ir a tion s, low so cial statu s of farm w orkers. 155 A m erican R epublics West In dies/St. Vincent Development in the E aste rn Caribbean Islan d s S e rie s 4: Manpower Surveys: St. Vincent (1967; 51 p ages) U niversity of West Indies, Institute of Social and Econom ic R esearch ; A lice W. Shurcliff (ILO) and J . F . W ellemeyer (Ford Foundation) A ssessm en t of manpower supply and demand in St. Vincent. The purpose of this rep o rt is to provide the Government of St. Vincent and the private s e c to r with inform ation on manpower requirem ents fo r their development plans. Information w as ob tained from o ffic ials of Government, industry, and trade unions and from the 1960 C ensus of Population. The U.S. Government provided infor m ation on the employment of West Indians in the U.S. Virgin Islan d s and other im m igration data. T hese v ariou s so u rc e s, combined with opinions of knowledgeable people, provided the b a se s for estim atin g future effective demand fo r labor. A ccording to the 1960 C ensus of Population, n early 80,000 people lived in St. Vincent; the labo r force con sisted of n early 25,000 of whom 3,363 (13.5 percent) w ere unemployed. The pop ulation is weighted heavily with young people; the proportion below age 15 w as 51 percent in 1965. Skilled w orkers and secondary school g ra d u ates are in short supply. The F iv e -Y ear De velopment Plan re g a rd s tou rism a s the m ost p rom isin g industry fo r development. In view of this p o ssib ility , barm en, m aid s, cooks, and recep tion ists m ust be trained. Skilled c r a ft s men are needed for the construction industry 156 which is expected to expand rapidly. The in crease in population and economic activity will stim ulate demand fo r p ro fessio n al w orkers, e sp ecially ph ysician s and n u rse s. The Government secto r will req u ire auditors and ad m in istrato rs. Growing unemployment p o se s a se rio u s prob lem over the fo re c a st period. The clo sin g of the su gar factory and discontinuance of the growing su garcan e contributed to the high level of unem ployment. Cane c u tters a re able to get seaso n al employment in other islan d s, but new w orkers are flooding the job m arket. The policy of the Government is not only to provide job s outside the home m arket, but also to widen the opportun itie s within the islan d itself. P r e s s u r e s of population growth and high un employment r a te s n ece ssitate that the Govern ment fo ste r em igration. T his policy, however, en cou rages people with initiative and sk ills to leave the island, thus reducing sc a r c e sk ills m ore sev erely . The problem may be overcom e by training a g re a te r number of people and by opening outlets for unskilled p e rso n s. The r e s t of the study d is c u ss e s supply of and demand for labor in each of the economic se c to r s. A m erican Republics West In dies/T rin idad and Tobago Establish m en t of a Manpower Information P rogram m e (1960; 32 pages) ILO Report to the Government of T rinidad and Tobago; IL O /T A P /W est In d ie s/R .l; F.W. M ahler (A ustralia) D esc rib e s existin g manpower se r v ic e s and the state of manpower inform ation. E xistin g Manpower S e rv ic e s 1. E m p l o y m e n t Serv ice ac tiv itie s were lim ited to placem ents in unskilled and dom estic occupations. 2. V o c a t i o n a l training ac tiv itie s con siste d of re g iste rin g 700 appren tices in m etal, e le c tric a l, and printing tra d e s. State of Manpower Information C onsiderable data w ere available on siz e and stru ctu re of the population and labor fo rce and on employment in establish m en ts. Educational and training sta tistic s and data on o v e r se a s m ig ra tion a lso were available. However, no m easu re m ents have been made on manpower req u ire ments or on training outside of form al appren tices. Although available to Government authorities, these data have not been used a s extensively a s might be becau se available in for mation had wide gaps and is scatte re d among many documents. A dm inistrative M achinery To c a r r y out a manpower inform ation p ro gram , the expert a ss iste d in developing admin istrativ e m achinery. He estab lish ed a Manpower Technical A dvisory Committee and a ss iste d in the establishm ent of a Manpower R ese arch Sec tion in the M inistry of Labour. Within the Man power R ese arch Section, special em ph asis was placed on developing standard c lassific atio n sy ste m s, conducting establishm ent su rvey s and labor fo rce su rv ey s, analyzing data, and p r e parin g re p o rts. D etails of each task are de scrib ed and recom m endations are provided for continuing the work of both the Com m ittee and the R esearch Section to develop a continuing program of manpower inform ation. 157 A m erican R epublics West In dies/T rin idad and Tobago O rganization and Operation of the Employment Service (1964; 21 pages) ILO R eport to the Government of Trinidad and Tobago; IL O /T A P /T rin id a d /R .5; V.G. Munns (UnitedKingdom) An exam ination of the organization and operation of the Employment Service and recom m endations for its expansion and im provem ent. E x istin g Employment Service Situation The work of the Service h as con sisted p r i m arily of re g iste rin g w orkers and recordin g v acan cies, p rim arily for la b o re rs and dom estic personn el. Techniques used fo r this purpose were rudim entary; no written instruction s were a v ail able on policy or procedure. Both w orkers and em ployers were d issa tisfie d with se r v ic e s p r o vided by the Employment Exchange. 4. P rep arin g establishm en t c a r d s containing employment and occupational inform ation. Conclusions and Recom m endations Several broad conclusions w ere drawn about the need for an Employment Serv ice. T hese are explained by describ in g the contribution that an Employment Serv ice m akes to im prove the eco nomic and so cial development of the country. Action Taken B a se d on h is review of the Employment E x change, the expert outlined the changes in organ ization needed to develop the Serv ice into an e f fective organization. T his repo rt w as subm itted to the Government fo r d iscu ssio n . A ctions to im prove curren t operations included: 1. P rep arin g a manual of instruction s to guide c le rk s in perform ing their d u tie s._ 2. T raining in techniques of employment in terview ing. 3. V isiting em ployers to acquaint sta ff on operation s in each occupation in the variou s in d u stries. 158 The following recom m endations are proposed to implement and im prove the variou s functions and organization: 1. A branch office and additional sta ff should be added. 2. O perations of the Employment Service should be developed on the b a sis of the previous ILO rep o rt on the E stablishm ent of a Manpower Information P ro g ram (1960). 3. Cooperation should be developed with vo cational schools to p rep are the ground fo r se t ting up a vocational guidance se rv ic e for young w orkers. E a st A sia and P acific Regional H igh-Level Manpower for Development (P re-P u blication E xcerpts) (1964; 66 p ages) UNESCO-LAU R ese arch P ro g ram on Higher Education in Relation to Development in Southeast A sia; Guy Hunter P robable high-level manpower requirem ents in selected Southeast A sian C ountries. 1/ In every country in the region, between 60 to 80 percent of the population is engaged in a g r i culture. C om m ercial life is centered on th eim p o rt/ex p o rt trade and is therefore concentrated in the m ain p o rts. E very country has a sm all nucleus of m odern industry b ased on Government o r expatriate investm ent. Many countries have a lim ited capacity to ab so rb high-level manpower. T h erefore, unre stric te d educational expansion m ay re su lt in the creation of unemployment among grad uates at a g re a t financial co st. The consultant w arns again st attem pts to expand higher education be yond em ployment opportunities. The techniques u sed to make projection s w ere b ased on certain assum ptions that applied to the a r e a a s a whole: sic ia n s, high-level requirem ents could be met if w astage were reduced and if grad u ates were better p repared . 2. W astage in secondary education is high. P o st-seco n d ary vocational training should be in troduced. 3. U n iversity-trained teach ers are needed throughout the region. Law facu lties are o v er developed. 4. E very effort m ust be made to encourage a flow of trained manpower into ru ra l a r e a s. 1. H igh-level manpower will grow at a rate fa ste r than National Income, w hereas the total labor fo rce will grow at a slow er rate . 2. The tech n ician -to-profession al ratio will in cre ase from 3:1 to 5:1. 3. W astage in origin al stock over a 10-year period will be about 40 percent. 1. G eneral economic situation and power stru ctu re. 2. Key educational s ta tistic s. 3. A n alysis of four a r e a s of manpower r e quirem ents: agricu ltu re, scien ce, m edicine, and education. 4. A sse ssm e n t of curren t stock and p ro je c tions to 1970 and 1975. The m ajo r portion of the rep o rt is devoted to stu dies of the individual coun tries and p re sentation of available data on manpower and ed ucation. Each study c o v ers the following e le m ents: G eneral is s u e s which apply to m ost coun tries surveyed include: 1. T otal enrollm ents in u n iv ersities a re high 1 / B u rm a, Thailand, M alay sia, Indonesia, but output is low. Except for te ac h e rs and phy Philippines, South Vietnam and Cam bodia. 159 E a s t A sia and P acific Burm a The Establish m en t of a Manpower Information P ro g ram (1964; 18 pages) ILO Report to the Government of the Union of B urm a; IL O /T A P /B u rm a/R .2 9; M, M. Mehta (India) O rganization and development of a continuing manpower inform ation p ro g ram , including sta ff training and s t a tistic a l techniques. A survey of existin g so u rc e s of manpower inform ation showed that they were inadequate for the a sse ssm e n t of the curren t and future manpower situation. The la s t com plete cen su s was conducted in 1931; the 1941 cen sus w as lo st; and the planned m id -fifties cen su s never w as com pleted. M easurem ents of labor force activ i tie s w ere inadequate. The lack of manpower data se rio u sly ham pered the preparation and fu lfill ment of the Second F o u r-Y ear Plan. No depart ment or m in istry had resp o n sib ility for man power planning work. The Government created two units to operate a continuing manpower inform ation p rogram : 1. Manpower Information A dvisory Com m ittee—to d irect, su p erv ise, and guide the program . 2. Manpower Information Unit in the D ire c torate of Labour A ffa ir s—to provide the tech nical know-how in collecting inform ation and p rep arin g re p o rts. To achieve the broad ob jectives of a man power inform ation pro g ram , the following p ro je c ts w ere initiated: 1. A sse ssm e n t of manpower requirem ents of the F o u r-Y ear Development Plan. 2. D etailed plan for the organization of an em ployment m arket inform ation p rogram . 160 3. Development of a B urm a standard c la s sification of occupations. 4. Survey of training fa c ilitie s. 5. Survey of employment statu s of university grad u ates. 6. Survey of urban unemployment. 7. E mployment opportunitie s in urban a r e a s . 8. National r e g iste r of scien tific and tech nical personnel. 9. Manpower requ irem ents in public and private industrial se c to r s, by detailed occupa tion. B a sed on the inform ation obtained from these p ro je cts and from other available so u rc e s, a com prehensive manpower rep o rt was prep ared a s a supplement to this repo rt. (See following sum m ary.) Recom m endations 1. The manpower inform ation pro g ram that now has been estab lish ed should be continued and developed. 2. The p rogram should be directed toward providing inform ation fo r the operation of E m ployment Serv ice o ffices and fo r the evaluation of the manpower situation. 3. The sta tistic a l sy ste m s should be im proved and periodic re p o rts p rep ared . E a st A sia and P acific Burm a Report on the Manpower Situation in B urm a (1964; 90 p ag es and sta tistic a l appendixes) ILO Report to the Government of the Union of Burm a IL O /T A P /B u rm a/R .2 9 (Supplement); M0 M. Mehta (India) Com prehensive manpower repo rt p rep ared from in form a tion collected from su rv ey s and other stu d ies. The sc a rc ity of reliab le sta tistic a l in form a tion concerning B u rm a’ s econom ic and human r e so u r c e s se rio u sly handicaps e ffo rts to achieve a com plete and accu rate manpower a sse ssm e n t and m akes the findings of this rep o rt tentative and assum ptive. The m ost reliab le e stim ate s place B u rm a’ s population figure curren tly between 22 m illion and 24 m illion; these fig u res include a labor fo rce estim ated at approxim ately 9.8 m illion. B u rm a is a predom inantly agricu ltu ral economy; approxim ately 85 percent of the labor fo rce a re in ag ricu ltu ral occupations. Though the labor force ap p ears to be expanding rapidly, opportunities fo r employment are lagging fa r behind. In fact, employment le v e ls have declined in recent y e a rs in the m odern se c to r and substantial underem ployment is evidenced in the very low produc tivity fig u res in both industry and agricu ltu re. In drawing up future econom ic development p lan s, consideration should be given to the p o s sib ility of in creasin g investm ent le v e ls, p ro moting labor-inten sive in du stries and technolo g ie s, and prom oting ru ra l employment which,in B u rm a with its rich land and natural re so u r c e s, a p p ears to offer an esp ecially attractive oppor tunity for creatin g la rg e num bers of new jobs in a relativ ely sh ort period of tim e and with com p arativ ely sm all investm ent requ irem en ts. In the longer view, curren t and planned train ing fa c ilitie s will be inadequate to m eet the ex pected demand fo r w orkers in alm ost all the oc cupations requiring vocational training. This in adequacy will be all the m ore m arked in the event of an attem pt to provide m ore jobs through a c c elerated econom ic development. T raining and educational fa c ilitie s will have to be expanded greatly to turn out the personnel qualified to occupy the position s that will be req u ired by an o v erall program of economic development in B u rm a. The extent and rate of expansion m ust be coordinated carefu lly with such a program . In p artic u lar, fa c ilitie s will be req u ired fo r train ing sk illed w orkers of all types, including tech n ician s, p ro fessio n al p e rso n s, and teach ers. 161 E a st A sia and P acific Republic of China The Role of Educational Planning in the Econom ic Development of the Republic of China (1962; Vol. I, 63 p ag es; VoL II, 159 pages) Henry F. M cC usker, J r . , and H arry J . Robinson; Stanford R ese arch Institute. A study of the ways by which the Republic of China’ s educational sy stem can contribute m ore effectively to the achievem ent of national econom ic g o als. The Third F o u r-Y ear Econom ic Develop ment Plan of the Republic of China c o v ers the period from 1961 through 1964. L ittle em p h a sis, however, has been placed on planning for manpower needed to reach the g o als of the P lan . The pu rp o ses of the p ro je ct were to e x am ine the educational sy stem , a s s e s s curren t le v e ls of sk illed manpower re so u r c e s, estim ate needs im plicit in the Plan, determ ine d is cre p an c ie s in supply and demand, and find m eans to re so lv e these d iscre p a n c ie s. Findings 1. E nrollm ents a s a percen tage of the pop ulation a re la rg e com pared with other develop ing cou n tries. 2. The economy is not absorbin g students a s fa st a s they graduate. 3. Education is not coordinated with man power requ irem en ts; a s a re su lt, an o v er supply of certain grad u ates and sh o rtages of oth ers ex ist. 162 4. L ittle attention is devoted to on-the-job training for m iddle-level and sk illed w orkers. 5. Wage and s a la r y differentiation at variou s sk ill le v e ls is not broad enough to attract qualified people. 6. C ourse content and exam ination sy ste m s tend to re ta rd the ro le of education in support of economic development. Recom m endations 1. The M inistry of Education should co operate with other agen cies to plan manpower requirem ents fo r fulfillm ent of development g o a ls. 2. The Government should take step s to upgrade the quality and in cre ase the number of sk illed and technical manpower. 3. Since student enrollm ents are likely to in cre ase rapidly, c are should be e x e rc ise d to prevent a low ering of quality and to achieve a g re a te r relevan ce of educational p ro g ram s to econom ic development. E a st A sia and P acific Republic of China Manpower P rob lem s and P ro g ra m s in Taiwan (1963; 19 pages) DOLITAC 1/ Staff P aper No. 46; H arry W eiss, Manpower A dviser A su rvey of the m ajor manpower problem s and the p ro g ram s designed to meet these p rob lem s. Population on the island is growing at the rapid rate of 3 percent a y ear. A ccording to a g r i cultural e x p erts, the growing population cannot be supported through agricu ltu re. Since there a re no significant opportunities for the in c r e a s ing population in ag ricu ltu re, e x c e ss farm popu lation should be moved to industry. Industry, in turn, should be expanded to reach la r g e - sc a le proportion s with adequate capital and modern production methods in o rd er to com pete with Japan . The Government needs a manpower planning organization. Currently, it does not know its manpower re so u r c e s or requirem ents fo r the next 5 or 10 y e a r s. The b e st location for a man power planning unit would be in the newly e stab lish ed Council fo r International Econom ic Co operation and Development. T his unit should coordinate the work of the variou s agencies to develop an ov erall manpower p rogram for achieving the needs of the economic development plan. The Stanford R ese arch study of manpower requ irem en ts should be continued to make p ro jection s of requ irem ents by occupation. If Taiwan is to becom e a modern industrial society , an effective Employment Service m ust be estab lish ed . Only through this organization can a balance between manpower supply and manpower demand be met. Approxim ately 85 percent of the students sent to the United States for graduate work do not return. The c a u se s and effect of this se rio u s lo s s to the country are d iscu sse d . The en tire educational sy stem should be re ap p raise d . The w eakest link in the training sy stem ap p e ars to be the lack of an apprenticeship program . To develop a c o rp s of sk illed w orkers needed in a modern in du strialized economy, a w ellorganized apprenticeship pro g ram should be estab lish ed . 1 / U.S. D epartm ent of L ab or International Technical A ssistan c e C orps. 163 E a st A sia and the P acific Republic of China Manpower A sse ssm e n t and Planning (1965; 42 pages) ILO R eport to the Government of the Republic of China; IL O /T A P /C h in a/R .8; A lice W. Sh urcliff (United States) The development of a manpower a sse ssm e n t program and the im provem ent of manpower sta tistic s. The f i r s t manpower study had been done by the Council for International Econom ic Co operation and Development (CIECD) in 1962. In 1964, se v e ra l Government agen cies prep ared p artial manpower a sse ssm e n ts. The form ation of an in term in isterial Manpower R e so u rc e s Com m ittee had stim ulated con siderable in terest in having manpower a ss e ssm e n ts prep ared on the b a s is of the Econom ic Development Plan. The consultant p repared a s e r ie s of 33 tab les which showed labor force by occupation and industry in 1965 and the distribution to be expected in 1970 according to the growth fa c to rs contained in the Econom ic Development Plan. The v ariou s sta tistic a l so u rc e s for this an aly sis are d escrib ed and com m ents made for their im provem ent. The Republic of China has im proved the quality of its manpower r e so u r c e s by an ex pansion of school fa c ilitie s and by agricu ltu ral extension work among fa r m e r s. The supply of sk illed manpower has in creased a s fa st a s effective demand, and unemployment has been held down to a 4-percen t level. Season al unem 164 ployment and underemployment have been l e s sened in agricu ltu re by expansion of modern techniques (irrigation , crop d iv ersificatio n ). Recom m endations 1. Manpower projection s should be made fo r long-term ob jectives in the next 10 to 15 y e a rs. 2. Lon g-term projection s should be made by using high, medium, and low r a te s of in d ustrialization . 3. A publicity program should be developed to inform the public of changes in the supply of and demand for labor in v ariou s occupations. 4. All agen cies in a r e a s that have vocational trainin g p ro g ram s should rep o rt perio dically to one agency about the output of their p ro g ra m s and the quality of training given. 5. Public employment o ffices should under take a continuing p ro g ram of collecting in form ation on curren t and future labor re q u ire m ents of the in d u stries and plants in the a re a which they se rv e . E a s t A sia and P acific Republic of China A Survey of Employment and Manpower in the Republic of China (1966; 2 0 p ages) F.W. M ahler, ILO A sian Regional Manpower A dviser An a sse ssm e n t of curren t and projected manpower supply and demand. All available data from re p o rts prep ared by v ario u s agen cies of the Government of the R e public of China and by international organizations form ed the b a sis on which this report is p r e pared . T opics covered include employment, labor force tren ds, employment projectio n s, supply of qualified manpower, and anticipated sh ortages in certain occupations. At the tim e of this repo rt, virtu ally no plan ning regard in g the manpower sk ill requirem ents of em ployers had taken p lace. The rapid expan sion of education in recent y e a rs has been un dertaken with only a gen eral referen ce to man power requ irem en ts. Elem entary education has been planned to provide u n iv ersal education for all children between the ag e s of 6 and 12 y e a rs. N early 97 percent of children in th is age group a re enrolled in school. P lan s are being m ade to provide u n iv ersal education beyond 12 y e a rs of age to include secondary and vocational school le v e ls. Recently, there have been significant develop m ents in the establishm en t of an organization for manpower planning. A Manpower R eso u rces Committe has been set up in the Council for International Econom ic Cooperation and De velopment. In addition, seven working groups have been estab lish ed to deal with v ario u s a s p ects of manpower planning: education, training, recruitm en t, distribution, m otivation, u tiliza tion, and stabilization . There is also a com m ittee to coordinate manpower s ta tistic s. 165 E a st A sia and the P acific Republic of China F in al Report on the L ab o r F o rc e Survey in the Republic of China (1967; 15 p ages) DOLITAC 1 / Staff P aper No. 39; M atilda Sugg, Statistical Consultant D escription of m e a su re s to im prove u sefu ln ess and accu racy of data in labor fo rce su rv ey s. Q uarterly su rv ey s of the labo r fo rce in the Republic of China a r e conducted by the L abor F o rce Survey R ese arch Institute of the De partm ent of Social A ffa irs. The S e c re ta ria t of the Manpower R e so u rc e s Com m ittee of the Council fo r International Econom ic Cooperation and Development (CIECD) req u ested an evalua tion of the su rvey techniques. The aim w as to recom m end m e a su re s which might be introduced to im prove the u sefu ln ess and accu racy of the data. F ro m the point of view of en d -u sers of labor fo rce data, d esired im provem ents are su m m arized a s follow s: 1. The re su lts of the su rv ey s should be issu e d m ore prom ptly after the date of refe ren c e. 2. M ore interpretation and an aly sis of the findings should be included in the re p o rts. 3. Explanations of e r r a tic fluctuations should be contained in the an aly sis. 4. D ata on the employment s e r ie s should be sep ara te d into (a) agricu ltu re, hunting, fo r e s try , and fishing, and (b) nonagricultural indus t r ie s . 166 Recom m endations are intended to effect im provem ents liste d above. They constitute a longrange pro g ram for im proving the su rvey and cover the following topics: 1. C larify concepts and definitions. 2. R ev ise questionnaire. 3. Sim plify tabular presentation in q u arterly repo rt. 4. Im prove accu racy of e stim a te s. 5. P r o c e ss and publish data rapidly. 6. Obtain regional e stim ate s. 7. Introduce one-tim e supplem entary q u es tions on survey. 8. Improve s a la r y schedule of su rvey staff. 9. T rain su rvey staff. 10. E stab lish a R ese arch and A n alysis Unit to in terpret findings. 1 / U.S. D epartm ent of L ab or International Technical A ssistan c e C orps. E a st A sia and P acific Republic of China T erm inal Report to the Republic of China (1964 to 1967; 17 pages) DOLITAC 1 / Staff P aper No. 45; C hester W. H epler, Manpower A dviser Report of a 3-y ear tour of duty in Taiwan a s ad v iser to the Manpower Development Com m ittee. A S e cretariat was organized in 1964 to a s s is t the Manpower Development Committee in the r e se a rc h and study of manpower p rob lem s. Seven Working Groups were estab lish ed to study these p rob lem s and make policy recom m endations. B a se d on their re p o rts, a Manpower Plan was subm itted to and approved by the Executive Yuan in 1966. V arious ste p s were taken to implement the plan. Four Working Groups w ere estab lish ed to keep the manpower program under review and evaluate p r o g r e ss. T hese groups w ere a s fo l low s: (a) Em ployment Security, including sub groups on employment se rv ic e , vocational train ing, labor stan d ard s, and u n e m p l o y m e n t com pensation, (b) Education, (c) Manpower Uti lization , and (d) Manpower S ta tistic s. D etails of the work of these groups a re d iscu ssed . The rem ain der of the rep o rt d e sc rib e s the work that should be given m ore attention by the Manpower Development Committee and by the agen cies resp o n sib le fo r implementing the p ro gram . M ost of the com m ents are directed toward im proved coordination and cooperation among the agen cies with the recognition that the Man power Development Committee is the central coordinator. E m ph asis is placed on granting m ore authority to the Committee. Note: During the consultant’ s tour of duty, he prepared p ap e rs for le c tu re s, m agazin es, m em oranda to Government o ffic ials, etc. T hese p ap e rs were collected and published by the Council fo r International Econom ic Cooperation and Development (CIECD) a s follow s: Manpower Planning fo r P ro sp erity , 1964-1967, The Repub lic of China, by C hester W. H epler, 201 p ag es. JL/ U.S. Departm ent of L abor International Technical A ssistan ce C orps. 167 E a s t A sia and P acific Indonesia H igh-Level Manpower fo r Econom ic Development The Indonesian Experience (1965; 29 pages) B ru ce G lassb u rn er (U niversity of C aliforn ia). A rticle in Manpower and Education, Country Studies in Econom ic Development, F re d eric k H arbison and C h arles A. M yers, ed ito rs (New York, M cGraw-Hill Book Company, 1965) p ag es 173-201. A h isto ric al review of the educational sy stem in In donesia and an a sse ssm e n t of the magnitude of highlevel manpower p rob lem s. Education under the Dutch Colonial Govern ment and the Jap an e se occupation is d iscu sse d . A fter independence in 1945, the Government of the Republic of Indonesia expanded the ed ucational sy stem at all le v e ls and encouraged enrollm ent. Medicine and law rem ain the two m ost p re stig io u s d e g re e s in Indonesia, followed c lo se ly by econom ics and sociology. Indonesia has not developed a sy stem atic program fo r the development of human r e so u rc e s. The two m ajo r economic development p lan s—the F ive Y ear Plan for 1956 to 1960 and the long-range plan, 1961 to 1969— are e sse n tia lly lis t s of p ro je cts allocatin g planned le v e ls of investm ent. No ov erall plan fo r man power development to fulfill these go als was included in the p ro g ram s. Specific inform ation concerning high-level m a n p o w e r needs are treated independently in each se c to r; this p ro cedure m akes it alm o st im possib le to see the 168 broad im plications in ov erall manpower r e quirem ents. Indonesia should give se rio u s consideration to generating the n e c e ssa ry inform ation fo r the development of a c le a r manpower r e so u r c e s and requ irem en ts relationship with the econom ic development plan. Current labor fo rce stu dies should be refined and extended to provide a s e r ie s of manpower data. These data should be u sed a s a b a s is fo r linking with the anticipated growth in variou s section s of the economy. Government policy should continue to en courage expansion of enrollm ent at the m axi mum rate that r e so u r c e s will allow. Such expansion should be rapid enough not only to in crease the absolute num bers of p erso n s in the high-level category but also to r a is e the ratio of such p erso n s to the labor force and to the population. E a st A sia and P acific Indonesia Manpower in Indonesia (1961; 11 pages) E . L . Nelson, AID Manpower A dviser An an aly sis of Indonesia’ s manpower situation. The E igh t-Y ear Econom ic Development Plan has a la rg e number of p ro je cts that will require a v ast in cre ase in trained manpower. However, the Plan m akes no prov isio n s fo r providing the human re so u r c e s needed to c a r r y out these p ro je c ts. S ta tistic s are sketchy and b ased on obsolete data; but it is assum ed that 40 percent of the population are in the labor fo rce , m ostly in a g r i culture. Manpower needs of Indonesia include occupa tions which require extensive education or m an ual sk ill. The variou s training fa c ilitie s for de veloping trained manpower are d escrib ed * A m ajo r need is for vocational and occupational guidance p ro g ram s to guide young people en ter ing po st-seco n d ary sch ools. C urrent plans are to produce, over the 8y ear period, m ore than 400,000 trained w orkers. Skilled w orkers are needed urgently in the con struction, transportation, com m unications, and re p a ir se rv ic e in d u stries. T h erefore, training should be em phasized in sk illed occupations in building construction, metalworking, ele c tric a l tra d e s, and automotive maintenance re p a ir. Indonesia’ s D epartm ent of labor has a v al uable but underutilized re so u rc e in the Em ploy ment Serv ice. This organization is national in scope and o p erate s through a structu re of r e gional o ffices and 82 local o ffic es. It has a staff of 1,500, nearly 40 percent of total employment in the Departm ent of L ab o r. Its m ajor work is p ro c e ssin g la rg e num bers of unskilled applicants fo r job s a s la b o re rs, w hereas Indonesia’ s re a l need is to place w orkers who have sk ills. B e cau se qualified Indonesian citizen s could not be recru ited to fill job o r d e rs, the Employment Serv ice had to issu e work p erm its for over 127,000 foreign w orkers in 1960. M ost of the consultant’ s recom m endations were directed toward ways of im proving the E m ployment Serv ice. Technical a ssista n c e should be provided to aid in training sk illed w o rkers, to strengthen Employment Serv ice functions, and to train Employment Service o ffic ials in U.S. De partm ent of L ab or participan t-train in g fa c ilitie s. 169 E a st A sia and P acific Indonesia The O rganization of the National Employment Service (1961; 32 pages) ILO Report to the Government of Indonesia; IL O /T A P /In d on esia/R .16; T. J . Simond (A ustralia) Steps taken to im prove the organization and functions of the Employment Serv ice. F ro m its beginning in 1945, the Indonesian Employment Service w as concerned p rim arily with attem pts to find work fo r job se e k e rs. L a te r, it began to collect data from local o ffic e s—the beginning of a sta tistic a l section. An occupational re se a r c h p ro g ram , a voca tional guidance p rogram , and registratio n of foreign w orkers were additional resp o n sib ilities assign ed to the Service. The Employment Serv ice is one of two departm ents within the Manpower D irectorate; it has a head office in D jakarta, 5 regional inspection o ffic es, and 37 lo cal o ffic es. Attached to these lo cal o ffic e s a r e 47 branch o ffices. The consultant visited se v e ra l lo cal o ffices to observe the operation s. T hese v isits con firm ed the im p ressio n that the Service w as concentrating on the placem ent function and that these effo rts were m eeting with l e s s than m oderate su c c e ss. F o r exam ple, about 150,000 job se e k e r s r e g iste r annually and of these only 15,000 to 20,000 a re placed each y ear in employment. 170 A pilot office in Bandung w as estab lish ed to se rv e a s a model and a s a training ground fo r Employment Serv ice personnel. B a sed on the experien ces of th is pilot office, a manual of operations was p rep ared for u se of all o ffic es. It covered step -b y -step proced u res of applicant registratio n , v a can c ies, sp e cia l placem en ts, vo cational guidance, foreign employment, adm inis tration, and employment m arket inform ation. Information on curren t and prospective man power supply and demand has been collected by the lo cal o ffices of the Employment Serv ice. A survey of establish m en ts that employed 51 w orkers or m ore w as conducted in 1957 and w as repeated in 1958, at which tim e the firm s were asked to fo re c a st their employment le v e ls. Many em ployers proved unable or unwilling to make a fo re c a st, but it w as c le a r that in dustrial activ itie s w ere declining. Recom m endations included advice on such topics a s the occupational c la ssific a tio n sy stem , vocational guidance p ro g ram s, sta ff training, inspection, and the operations manual. E a st A sia and P acific Indonesia A n alysis of the Vocational T raining P ro g ram of the Republic of Indonesia (1962; 12 pages) S. M. Ju stic e , AID T raining Consultant A review of the variou s vocational training p ro g ram s adm inistered by Indonesia’ s D epartm ent of L ab or. The organizational chart of the Vocational T rainin g D ivision m ak es provision fo r substan tially all types of vocational training. In p r a c tic e, however, som e activ itie s are fa r better developed than o th ers. F o r exam ple, 9 of 13 planned vocational training c en ters are in full operation. Recom m endations are made fo r the establishm en t of the four additional vocational training cen ters. An attem pt also should be made to define the relativ e r o le s of the Departm ent of L ab or and the Departm ent of B a sic Education in the general field of vocational training. The V o c a t i o n a l T raining D ivision o ffers c o u rse s at the vocational training cen ters for su p e rv iso rs. The Productivity Institute of the D epartm ent of L ab or is resp o n sib le also fo r the adm inistration of a form al training-w ithinindustry p rogram . It is recom m ended that USAID continue to support the la tter program , but that the r o le s of the Vocational Training D ivision and the Productivity Institute be c larified . The Department of L ab or has recently be come in terested in the establishm ent of mobile training units, equipped with tru ck s and portable sh elter, to provide training sk ills in rem ote a r e a s . USAID w as asked to help fund one such pilot unit. In sum m ary, very little p r o g r e ss has been made in developing a coordinated apprenticeship p ro g ram . Staff personnel have had to devote their tim e to mobile unit planning and to su p erv iso ry training. A sound apprenticeship sy stem should be developed a s soon a s p o ssib le . All sk ills training p ro g ram s should be coordinated clo sely with other p h ases of the Departm ent of L ab o r’ s manpower ac tiv itie s. 171 E a s t A sia and P acific Indonesia A nalysis of L abor M arket Information and Employment Service in the Republic of Indonesia with referen ce to the Development of a Manpower P ro g ra m fo r Economic Development (1962; 20 pages) Jo e White, AID Manpower A dviser A description of the prob lem s that m ust be reso lv ed before an effective manpower program can becom e operational. Manpower Planning—A com m ittee com posed of o ffic ia ls of the Manpower D irectorate and the Employment Service of the Departm ent of L ab or refined the draft manpower plan to p rese n t to the National Planning Council. T his plan provides a f r a m e w o r k fo r a p rogram directed toward the manpower needs im plicit in the 8 -y ear plan. Included in the draft were plans for a National Manpower Council, which would have the resp o n sib ility for manpower plan ning. Manpower sem in ars w ere planned for key Government o ffic ials and private businessm en . L ab or M arket Information—Heavy reliance h as been placed on the Employment Service to a ss u r e efficient use of trained w o rkers. Man 172 power data should be collected and analyzed to provide the Serv ice with im portant inform ation on manpower re so u r c e s and requirem ents. In form ation on occupational supply and demand is e sp ecially needed fo r guiding and training young people. Employment S e rv ic e—The curren t organ ization and operation of the Employment Serv ice are b ased on techniques used in the United States. E ach p ro g ram is analyzed in relation to the con ditions existin g in the country. The manual p rep ared by a previou s ILO consultant w as used a s a b a s is fo r reaching conclusions and making recom m endations. E a st A sia and P acific Indonesia Manpower Information and Planning (1963; 16 pages) ILO Report to the Government of the Republic of Indonesia; IL O /T A P /Indon esia /R .1 9 ; M ichail Y. Opanasenko, Manpower A dviser (USSR) A review of the manpower situation, manpower data, and the manpower inform ation p rogram . Indonesia’ s m ajor manpower problem are (a) the curren t need for qualified w o rkers, (b) in surance that trained w orkers will be available when needed, and (c) creation of sufficient job opportunities to reliev e chronic unemployment. Some p relim in ary m e a su re s have been taken to tackle these prob lem s. The four main so u rc e s of manpower infor mation are (a) the Central Statistical B ureau, (b) the Bureau of Planning, R ese arch , and S ta tistic s in the Departm ent of L ab o r, (c) the sta tistic a l division s of other D epartm ents, and (d) the E m ployment Serv ice. The types of data available from these so u rc e s a re describ ed . In gen eral, these data are insufficient and lack com parabil ity for an effective manpower inform ation p ro gram . The m ost se rio u s problem appeared to be the lack of coordination among the organizations collecting the data. The p resen t manpower situation in Indonesia is ch aracterized by la r g e - sc a le unemployment and underemployment, chronic sh o rtages of high- level manpower, inadequate fa c ilitie s fo r educa tion and vocational training, and m aldistribution of population in geographic a r e a s. Recom m endations 1. The principle should be accepted that man power planning is a p art of the broad fram e work of economic and so cial d e v e l o p m e n t plan ning. 2. An appropriate adm inistrative organ iza tion should be estab lish ed for realizatio n of the gen eral aim s of manpower planning. 3. The statistic s-g a th erin g functions of all agen cies should be coordinated and the organ i zation of the Central Statistical Bureau should be strengthened. 4. A w idespread inform ation pro g ram should be initiated to acquaint the public at la rg e with the prin cip les of planning p ro g ram s and their overall ob jectives of ra isin g living stan dards, and to em ph asize the resp o n sib ilities of the variou s agen c ie s in re g a rd to the supply of information. 173 E a s t A sia and P acific Indonesia Human R esou rce Development in Indonesia P rob lem s, P o lic ie s, P ro g ra m s (1964; 15 pages) Don Roney, Employment and Manpower A d v iser, L ab or D ivision, U SA ID /D jakarta O bservations on manpower development ac tiv itie s.JL / Indonesia’ s m a n p o w e r situation should be review ed carefu lly before USAID in vests in a manpower p ro g ram . Too am bitious a p ro g ra m might doom the undertaking to failu re. T h is rep o rt attem pts to identify se c to r s in which c ritic a l bottlenecks a re likely to develop. The m ajo r prob lem s encountered are the lack of adequate manpower data, the relativ ely low educational level of the work fo rce , the un balanced institutional capability, and the lack of a cen tral organization fo r manpower planning. Some of the b a sic manpower ta sk s that the Government of Indonesia can undertake a re a s follow s: 1. Expand enrollm ents and school fa c ilitie s at the sen ior technical high sch o ols. 2. Develop a network of schools to train technicians. 3. Double the faculty in the ph ysical scien c es at the State u n iv ersities. 4. Integrate management training fa c ilitie s and p ro g ra m s. 5. Develop sk illed manpower for maintaining and rep airin g capital equipment. 174 6. Develop a vocational guidance p ro g ram at the junior high school level. 7. C reate a central organization for man power planning and training. 8. Develop Employment Service functions, e sp ecially the manpower inform ation p rogram . B efore USAID continues to in vest in p ro g ra m s in Indonesia, the field of human r e so u rce development m ust be viewed again st c e r tain fundamental questions: What are the n eeds? What kind of p ro g ram is appropriate to m eet th ese n eeds? To what extent can or should U.S. aid be appropriately provided? A long-range p ro g ram may be im p ractical if no reason ab le assu ra n c e is given that USAID presen ce and support will be continuing and constant. 1 / Consultant’ s note: T h is rep o rt i s a f r a m e of referen ce for USAID fo r d iscu ssio n and further pro g ram decision s; it is not a sta te ment of USAID policy. E a st A sia and P acific K orea H igh-Level Manpower in K orea (1960; 11 pages) J . L . Thurston, AID Manpower Consultant A general statem ent of manpower development and inform ation p ro g ram s a s background for describ in g K o rea’ s manpower prob lem s. The ro le of manpower, e sp ecially high-level manpower, in a developing country is d iscu sse d . Manpower planning is a com plex concept sin ce it involves many periph eral con sideration s, such a s the educational sy stem , econom ic growth, population sh ifts, in du strial pattern s, so cial attitudes, political view s, etc. All these se c to r s have to coordinate and cooperate their effo rts to develop a sk illed work fo rce capable of carry in g out the g o als of the o v erall econom ic development plan. B a sic questions regard in g the su c c e ss of a manpower pro g ram req u ire prop er tools of m easurem ent. Lab or fo rce stu dies a re e sse n tial to uncover job inform ation and perso n al ch ar a c te r istic s of the labo r fo rce . Other b a sic sta tistic a l stu dies include su rv ey s of estab lish m en ts and of educational institutions. Recom m endations 1. A single unit of Government should be charged with the respo n sibility fo r planning in the manpower field. This should be the Econo m ic Development Council. 2. A cabinet-level manpower coordinating com m ittee should be appointed by the P resid en t. 3. A manpower adv iso ry com m ittee should be appointed; it should be made up of r e p re se n tativ es from education, lab o r, b u sin e ss, etc. 4. The National O fficials T raining Institute should be expanded to include m anagement c o u rse s. 175 E a st A sia and P acific K orea Manpower Development and Utilization in K orea (1965; 31 pages) DOLITAC 1 / Staff P aper No. 47; Edgar C. McVoy, Manpower A dviser A review of the manpower situation in K orea. In the field of education, K orea ran k s with som e sem iadvanced cou n tries. However, there is an e x c e ss of college and high school grad u ates relativ e to curren t employment opportunities. Sh ortages of m iddle-level manpower appear among technicians, su p e rv iso rs, and c r a ft s men. Industry has very little sy stem atic inse rv ic e training to p rep are people who have education but not the right sk ills fo r job s. M easu res are being taken to estab lish ap prentice training for industrial needs, but they a re not yet in effect. Full u se has not been made of available manpower data. F or exam ple, the 1960 C ensus of Population has useful inform ation with re sp e c t to employment by occupation and industry. P rojectio n s of the population have been m ade, but none fo r the labor fo rce , although the n e c e ssa ry data are av ailab le. The annual su rvey of education also provides useful data for plan ning. T hese data should be integrated with manpower requ irem en ts, when and if pro jection s are made. A p ro g ram fo r the development of manpower policy, coordination, and adm inistration is de 176 scrib ed and recom m ended fo r implementation by the Government of K orea. In planning education and training p ro g ram s to provide manpower for development, m ore attention should be given to quality and content of such training to in su re that it actually corresp o n d s to the needs of the economy. The c o st of education should be given carefu l con sid eration to determ ine on which le v e ls of ed ucation to concentrate. About 10 recom m enda tions are provided fo r guidance in types and le v e ls of education. In the p ro c e ss of moving into a modern in d u strial economy, K o rea m ust give m ore atten tion to the Employment Service fo r manpower distribution and utilization. C onsiderably m ore budget and technical development are needed to bring the sm all and weak lo cal o ffic e s into an effective national sy stem . R elated to this is the need to expand and im prove vocational guidance and counseling se r v ic e s. 1/ U.S. Departm ent of L abor International Technical A ssistan c e C orps. E a st A sia and P acific K orea The Role of Manpower in K orean Econom ic Development (1966; 85 pages) Edw ard D. H ollander, AID Manpower Consultant An exam ination of manpower re so u r c e s, requ irem en ts, and institutions in K orea, p articu larly in referen ce to the Second F iv e -Y e ar Plan (1966-71). N early tw o-thirds of the. employed labo r fo rce is engaged in ag ricu ltu re, fo re stry , hunting, and fish e r ie s. The lite ra c y rate is over 80 percent. B e cau se of the relativ ely highly developed edu cational sy stem , the proportions of p ro fessio n al, technical, and w h ite-collar w orkers a re high. F a r from being confronted with a general manpower sh ortage, K orea is faced with the problem of finding productive employment in o rd er to achieve effective utilization of its skilled labor fo rce. Some sh o rtages m ay occur among m an agers and technical manpower, but these sh o rtages can be avoided if the Government carefu lly estim ates needs and supply and takes the req u isite step s to meet the deficiency. The consultant e stim a te s that the total num b er of additional jobs created under the plan will be significantly le s s than that projected by the Econom ic Planning B oard. An an aly sis of the p rojectio n s is provided. Recom m endations concerning organizations and institutions required fo r manpower planning and program m ing: 1. An Office of Manpower should be created in the Econom ic Planning B oard to se rv e a s the fo cal point for all manpower planning. 2. The Government should estab lish a cabinet-level M inistry of L ab o r. L ab o r m atters a r e now under the ju risdiction of the Office of L ab or A ffairs in the M inistry of Health and W elfare. 3. An Employment Service Office should be developed within the M inistry of L ab or and should include employment m arket inform ation and occupational r e se a r c h functions. 177 E a s t A sia and P acific M alaya Manpower Information (1962; 21 pages) ILO Report to the Government of the Federation of M alaya; IL O /T A P /M alay a/R .16; R ichard R. Zoeckler (United States) A review of available The Second F iv e -Y ear Plan (1961-65) of M alaya anticipated that the 15-percent in crease in the population of working age would generate the need fo r 340,000 additional jobs during the period if the development ta rg e ts could be attained. B ecau se the F ir s t F iv e -Y ear Plan (1956-60) of M alaya did not ab so rb all the in c re a se in the labor fo rce during that period, the Government felt it w as n e c e ssa ry to refine th eir data in ord er to anticipate prob lem s in the curren t Plan. So u rces of manpower data 1. 1957 C ensus of Population. 2. 1960 C ensus of M anufacturing In dustries. 3. Annual Employment and Wage S ta tistic s. 4. 1959 Unemployment Survey. 5. 1962 Survey of Employment and Unem ployment. 6. Monthly R eport of the M inistry of Labour. 7. 1960 Report of the Education Review Com m ittee. 178 manpower data in M alay sia. D ata from these so u rc e s w ere analyzed, and concepts and definitions w ere checked for com parability. It w as not p o ssib le to draw up a sta tistic a l an aly sis of the curren t manpower supply- demand situation from the inform ation available. A few gen eral ob servation s w ere made about the need fo r training teach ers to in cre ase the educational and sk ill le v e ls of the population. Recom m endations 1. Develop the E m p l o y m e n t and Wage S ta tistic s R eports into a periodic employment inform ation s e r ie s . 2. Im prove the reliab ility of the Em ploy ment Exchange r e p o rts. 3. Form ulate uniform standard definitions and c lassific atio n c r ite r ia for occupations, in d u strie s, and employment statu s. 4. Develop annual benchm ark tabulations on total employment from the Em ployees’ P ro v i dent Fund B oard re p o rts. 5. C reate a new position of Coordinator of Specialized Manpower in either the M inistry of Labour or the Econom ic Planning Unit. E a st A sia and P acific M alaya Manpower Survey 1965: States of M alaya Technical Report (1966; 246 pages) N.S. Choudhry, ILN. Sam pling E xpert; and David C hristian, F ord Foundation Manpower A dviser R esu lts of the fir s t com prehensive manpower survey in M alaysia. The Econom ic Planning Unit requ ired an a s sessm en t of manpower a s a p art of the form u lation of the F ir s t M alayasian Plan (1966-70). The su rvey w as planned to provide data on em ployment in all se c to r s of the economy a s a b a s is for analyzing manpower s k ills, sh o rtages, requ irem en ts, and the industry-occupational m atrix. The D epartm ent of S ta tistic s and the M in istries of L ab or and Education cooperated in carry in g out the survey. The sam ple covered about 60 percent of the total number of em ployees in the States of M alaya. M ost w orkers with sk ills are likely to be em ployed in government or m anufacturing. Govern ment se r v ic e s, including education, cover 35 percent of all available job s, and account fo r 52 percen t of the p ro fessio n al and m an agerial job s, 89 percent of the su b profession al job s, 49 p e r cent of the c le r ic a l job s, and 50 percent of the sk illed job s. Mining and m anufacturing, which cover 15 percent of the total available job s, em ploy 25 percent of the sk illed job s. In con tr a st, the e sta te s se c to r of agricu ltu re em ploys 40 percen t of the total available jobs of which nearly tw o-thirds are se m i- or unskilled job s. Out of the 3,400 foreign w orkers employed in the States of M alaya, over 95 percent were occupying p ro fessio n al and sub profession al po sitio n s. M ost of these are in the nongovernment se c to r. At the tim e of the survey, there w as a sh ort age of 18,000 qualified w o rk ers, m ostly in the government se c to r. At the profession al level, the vacancy rate was about 20 percent. Vacancy r a te s a lso were se rio u s in other occupations requiring education and sk ill. Acute sh o rtages were in oc cupations in education, m edicine, engineering, adm inistration, and management. Recom m endations Training in nongovernment establish m en ts should be stepped up to m eet existin g sh o rtages and needs for replacem ent and expansion in the next 5 y e a rs. Government should expand inse rv ic e training and send m ore people abroad fo r training. Foreign sp e c ia lists should be r e cruited on a tem porary b a s is to m eet som e of these needs. 179 E a st A sia and P acific Thailand P roposed Sample D esign fo r a L ab or F orce Survey Report to the C entral Statistic al Office of Thailand (June 1962; 21 p ages) D r. M argaret Gurney, AID Statistical Sampling A dviser, U. S. Departm ent of Com m erce, Bureau of the C ensus. An abbreviated outline of the fir s t step s in the de sign of a sam ple fo r m easurin g the c h a ra c te ristic s of the labor fo rce in Thailand. It is proposed to sta r t the pro g ram m odestly with a sam ple of municipal a r e a s. The p rogram la te r would expand the sam ple to cover the b al ance of the country. A s experience is gained and funds becom e av ailab le, it is hoped that the sam ple eventually will provide sep arate r e gional e stim a te s, on a monthly or quarterly b a sis. The 1960 cen sus of population contains the b a sic data needed to draw a sam ple for the survey of the labor fo rce . F o r the initial p rogram covering municipal a r e a s only, a sam ple of 5,000 households containing 30,000 p erso n s is proposed. B a sed on p resen t population e stim ate s, this number rep re se n ts a sam ple of about 1 in 120. Out of 120 municipal a r e a s in Thailand, 93 will be covered in the fir s t round. All 180 la rg e municipal a r e a s will be included and m ost sm all ones; probability of inclusion will be proportionate to siz e . Within the municipal a r e a s , at le a st three cen sus enumeration d is tr ic ts will be included, from which five to s ix households will be selected. A pproxim ately 150 in terview ers will requ ired, each of whom will interview from 15 to 40 households. F or the rem aining 3.6 m illion households outside municipal a r e a s , a sam ple of 10,000 households m ay be sufficient; that is , a ratio of 1 in 400. A sta ff of 160 in terview ers will be needed; each interview er will cover 60 house holds. The rep o rt also co v ers such topics a s r e liability, estim ation p roced u res, estim ation of v a ria n c e s, quality of survey, c o sts and tim ing of the survey, and rotation of sam ple. E a st A sia and P acific Thailand Report on the Manpower Situation in Thailand (1962; 7 pages) Jo e White, AID Manpower A dviser * D esc rib e s the presen t manpower situation and future outlook, identifies p rob lem s, and recom m ends p o ssib le lin es of action of a com prehensive manpower program . Thailand has made only a beginning toward the development of a full-fledged manpower p ro gram . A National Econom ic Development Plan w as prepared ; but, with few exceptions, the im plications of the plan for manpower sk ill needs have not been exam ined. A National Manpower Board was created in 1961 under the chairm anship of the M inister of the In terior. The B oard is respo n sible for r e c ommending manpower policy to the Government. However, a s of the date of this repo rt, the B oard had met only at its organizational meeting. A National Employment Service has been in operation fo r som e tim e. Since its operations are confined la rg ely to Bangkok, the Service is not a national organization in scope o r ch aracter. Its ability to contribute to a national manpower pro g ram or to cope with problem s and respon sib ilitie s is lim ited. On the positive sid e, the recent 1960 census is expected to yield inform ation that will be v al uable in analyzing the manpower situation. A periodic sam ple labor fo rce su rvey is expected to provide detailed occupational inform ation which is lacking in the cen su s. (See preceding sum m ary.) T hese so u rc e s will provide labor supply inform ation. Im m ediate attention is needed on labor de mand. Sh ort-range e stim ate s of future req u ire m ents are obtained sem iannually from employ e r s . T hese data, however, are not sufficient to determ ine whether current educational and train ing e ffo rts will m eet future requirem ents. Recommendations 1. The National Econom ic Development Plan should be analyzed to determ ine manpower r e quirem ents by occupational sk ill level, location, and y ear of need. 2. The adm inistrative m achinery fo r man power planning and operations should be strengthened. 3. The p ro g ram s and sta ff of the National Employment Service should be expanded and im proved. 4. A central training authority should be estab lish ed and made respo n sible for planning and coordinating educational and training p ro g ra m s. 181 E a st A sia and P acific Thailand Development of a Manpower A sse ssm e n t P ro g ram (1963; 59 p ages) A j O Report to the Government of Thailand; IL O /T A P /T h ailan d /R .23; A. G. Read (G reat Britain) P re se n ts recom m endations for the organization and adm inistration of the National Manpower Board and for the im provem ent and expansion of manpower sta tistic a l p ro g ram s. In 1961, the Government of Thailand r e quested ILO a ssista n c e in gathering and ap p ra isin g manpower data fo r the development of manpower p o lic ies consistent with the economic development plan. The existin g organization fo r the development of manpower r e so u rc e s w as the National Manpower B oard, which w as created in 1961, under the guidance of the Man power Executive Com m ittee. The L ab or D ivision of the Departm ent of Public W elfare, M inistry of the In terior, was expected to provide tech nical and adm inistrative support. However, b ecau se of lack of funds and staffin g r e so u r c e s, the L ab o r D ivision w as not able to assu m e such respo n sibility. The inability of the National Manpower B o ard to function a s planned is explored in M r. R ead’ s report. In late 1962, he w as r e quested to advise the Secretary G eneral of the National Economic Development B oard on the b a sic prin cip les concerning the organization and conduct of a manpower a sse ssm e n t program suitable to the needs of Thailand. A s a guide for understanding these p rin cip les, a s e r ie s of de tailed m em orandum s was prep ared outlining the 182 organizational a sp e c ts, step s and methods in volved, and type of data used fo r analyzing manpower supply and demand. A ssistan c e also w as provided in drafting the fir s t rep o rt on the manpower situation in Thailand. E x istin g manpower se r v ic e s in the L ab or D ivision included an employment se r v ic e , em ployment inform ation pro g ram , occupational in form ation, and vocational training. T hese p ro g ra m s were not very effective, however, becau se of lack of staff, coordination, authority, and other hindrances. R elatively few data were available to evaluate, and the re su lts of the 1960 cen sus of population w ere not p ro c e sse d com pletely. Semiannual data on employment in estab lish m en ts that had 10 w orkers or m ore in the Bangkok-Thonburi a re a were available. Some sta tistic s on student education and training were available from the M inistry of Education. Recom m endations were made to im prove the quality of existin g manpower se r v ic e s and to prom ote the collection and an aly sis of additional manpower inform ation n e c e ssa ry fo r the a s s e s s ment of human re so u r c e s. E a s t A sia and P acific Thailand P relim in ary A ssessm en t of Education and Human R eso u rc es in Thailand (Revised edition, October 1963; Volume I : p ag es 1-85; Volume II : p ag es 89-456) Joint Thai/USOM T ask F o rce on Human R eso u rc es Development in Thailand; AID consultants: Eugene W. B u rg e ss, Cole S. Brem beck, and W illiam J . P latt A nalyzes and p ro je cts manpower for educational plan ning. The report is b a sic to many subsequent stu dies. This repo rt is the outgrowth of a recom m en dation made by A.G. Read, ILO ad v iser to the National Econom ic Development B oard in 1962; the recom m endation concerned the organization and conduct of a manpower asse ssm e n tp ro g ra m suitable to the needs of Thailand. (See preceding sum m ary.) Since M r. R ead’ s study, manpower re sp o n sib ilitie s were tra n sfe rre d from the Min istr y of Interior to the National Economic D evel opment B oard. In 1963, the B oard, in cooperation with the M inistry of Education, created a ta sk fo rce to c a r ry out a p relim in ary a sse ssm e n t of man power. The ob jectives of the p ro ject w ere to (1) a s s e s s Thailand’ s human re so u rc e req u ire m ents fo r national development, (2) identify ed ucational p r io ritie s, and (3) undertake educa tional planning fo r the m ost effective development of human r e so u r c e s. The AID contracted with Michigan State Uni v e rsity fo r three d irect-h ire technicians to se rv e on the ta sk fo rce to com plete the fir s t two p h ases of th ese ob jectives. T h is rep o rt re p re se n ts their activ itie s during the 2-month study. Volume I of the rep o rt d e sc rib e s the m ajor findings of the task fo rce and p re se n ts recom m endations. Volume II is a detailed account of the so u rc e s and methods used to a rriv e at the conclusions. M ajor Findings Manpower projection s to 1980 indicate that a high incidence of secondary school graduates (m iddle-level manpower) will be requ ired if all manpower ta rg e ts are to be met. Under the p r e sent educational stru ctu re, however, the output of secondary school graduates will not be su f ficient to m eet the demand. M ajor Recommendations 1. The National E c o n o m i c Development Board should continue manpower projection e f fo rts begun by the task fo rce. 2. An an aly sis of the secondary educational sy stem should be made with the a ssista n c e of a task force of U.S. consultants. No long-range commitment of funds should be made until this step is done. 3. Manpower and Education Planning O ffices should be estab lish ed to a s s is t their resp ectiv e M in istries. (A Manpower Planning Office and an Education Planning Office were la te r estab lished.) 4. The L ab or D ivision in the Departm ent of Public W elfare should be elevated to D epart mental level. (This was accom plished in October 1965.) 183 E a st A sia and P acific Thailand Educational Planning in Thailand P aper presented to Sum m er Conference on Educational Planning, Syracu se U niversity (July 1964; 30 pages) Cole S. B rem beck, Michigan State U niversity Institute fo r International Studies in Education A companion—piece to D r. P latt’ s Manpower Planning in Thailand. M ajor findings and recom m endations con cerning education, which w ere subm itted by the Joint Thai/USOM T ask F o rce on Education and Human R e so u rc e s in Thailand (to which the author was assign ed ), are supported by a detailed an aly sis of the available data. In sum m ary, the Joint T ask F o rce Study reem p h asizes the need for education at all le v e ls. At this stage in Thailand’ s development, however, secondary education is of c ritic a l value fo r the development of m iddle-level m an pow er. Such people are needed in trad e, se r v ic e s, m anagem ent, su pervision, and other te rtia ry s e c to r s of the economy. The T ask F o rce Study recom m ends redesign ing the vocational, tech nical and other secondary school p ro g ram s to m eet th ese needs. The m ajo r portion of the rep o rt a s s e s s e s the structu re and capacity of the educational sy stem in Thailand. It analyzes current and p rojected (1970) demand for and supply of grad u ates at each educational level to d eter mine the estim ated sh ortfall. The m ost se rio u s deficit ap p ears in the secondary education group. 184 To produce the number of secondary gradu a te s needed to m eet the economic development requ irem ents fo r 1970, the number of grad uates would have to be quadrupled. There are potenti ally enough students to fill this demand, but many of them are enrolled in academ ic c o u rse s in preparation for college. However, fig u re s show that only one in four of the academ ic school grad uates enter c o l l e g e ; thus, the m ajo rity of the grad uates are unprepared for the world of work. It was recom m ended that, in addition to the academ ic and vocational school sy ste m s alread y in existen ce, a third sy stem be initiated. T his sy stem would cover general su b jects that p rep are young people fo r se m i sk illed job s in trad e, se r v ic e s, and other w h ite-collar jo b s. The source of students fo r th is “g en eral” co u rse would come from the overflow of the academ ic and vocational school sy ste m s. E a st A sia and P acific Thailand Manpower Planning in Thailand P ap er presen ted to Sum m er Conference on Education Planning, Sy racu se U niversity (July 1964; 37 pages) W illiam J . Platt, Stanford R ese arch Institute A com panion-piece to D r. B rem beck’ s Educational Plan ning in Thailand. It develops the method of projectin g manpower demand to 1980, a s presen ted by the Joint Thai/USOM T ask F orce on Education and Human R eso u rc e s in Thailand to which the author was assign ed . Lacking the lead tim e to wait fo r r e su lts from new su rv ey s, the Join t T ask F o rce analyzed ex istin g data. The m ost im portant so u rc e s were an econom ic development p lan fo r 1960-66, the 1960 cen su s, a dem ographic projection to 1980, and sem iannual job m arket su rv ey s of e stab lish m ents in the Bangkok-Thonburi a re a . The y e a rs of 1966 and 1980 were selected a s targ et y e ars fo r planning. A nalyses of the educational attainment by o c cupation and economic se c to r fo r 1960 were p r e pared . The number of people expected in each occupation o r se c to r w as extended by the appro p riate educational attainment coefficient to gen erate a requ ired future stock or inventory of manpower needed fo r the specified economic output. The difference between future and presen t stock, in addition to allowance for outflows, re p resen t the demand placed on the educational sy stem , C ertain refinem ents were made with re g a rd to the changing educational attainment coefficien ts over the projected period. F o r 1966, output e stim a te s by economic se c to r w ere available from the econom ic devel opment plan in m onetary te rm s. Using 1960 out put and employment a s a b a se , the T ask F orce made assum ptions a s to changes in productivity in each sec to r between 1960 and 1966. Shortrun projection s of manpower stock in 1966 were made to determ ine whether curren t trends in output of grad uates w ere keeping pace with the economy. Lon g-ran ge estim ates to 1980 requ ired a v ariety of projection s b ased on different a s sum ptions and a study of the pattern s of demand generated by such variation s. L ab or fo rce and i n d u s t r y / o c c u p a t i o n a l stru c tu re s were p ro jected. A com parison of changing international trends was m ade to refine the projection s. The rep o rt concludes with a d iscu ssio n of the m achinery fo r carry in g out the functions of man power planning and utilization. Specific reco m mendations for the new Manpower Planning Office w ere m ade; they pertained to its functions, re sp o n sib ilitie s, and role in relation to other agen cies. 185 E a st A sia and P acific Thailand Manpower A sse ssm e n t and Planning (1965; 22 pages) ILO Report to the Government of Thailand; IL O /T A P /T h ailan d /R .25; W illiam A. Langbehn (United States) Report em p h asizes the need fo r a stron g manpower p l a n n i n g organization within the National Econom ic Development B oard. Following the recom m endations of A .G .R ead (see page 182), the Government of Thailand requ ested a ssista n c e in developing an effective organization to guide manpower planning and policy a sp e c ts within the whole economic and so c ia l development plan. A Manpower Planning Unit, attached to the National Econom ic De velopm ent B o ard , w as in operation on an ad hoc b a s is . (This unit la te r becam e the Manpower Planning D ivision.) An organizational plan was proposed and adopted; it called for operating sectio n s on r e se a r c h , a sse ssm e n t, and pu blici zing work on the manpower situation. The effectiv en ess of the work of the con sultant w as dimmed by the lack of fu ll-tim e counterpart personn el. To make up fo r this gap, the consultant p rep ared over 130 docu m ents covering concepts, p rin cip les, and activ i tie s of manpower a sse ssm e n t and planning. It 186 w as hoped that these p ap e rs would serv e a s training m a te ria ls, background data, and survey methods when appropriate sta ff were availab le. Sou rces of sta tistic a l data that could be used in manpower a ss e ssm e n ts were investigated. R equ ests were made fo r tabulations on the in du strial cen su s; however, these data w ere not available by the end of the m ission . A step-b ystep method w as p rep ared for the Manpower Planning Unit to continue stu dies on manpower demand b ased on the Joint Thai/USOM E d ucation and Human R e so u rc e s study. Recom m endations concentrated on the esta b lishm ent of an adm inistrative organization for manpower planning and on a com prehensive plan of sh ort- and lon g-term activ ities of that organ i zation. Other recom m endations dealt with the development of c le a r-c u t p o lic ies and ob jectives on employment and training. E a st A sia and P acific Thailand Function and P ro g ram of the Departm ent of L ab or of the Government of Thailand (1965; 17 pages) DOLITAC 1/ Staff P aper No. 10; E dgar C. McVoy, F a r E a st A rea Sp ecialist The Labor Bureau was upgraded to Departm ental level in 1965, a s a re su lt of the recom m endations of the Joint Thai/USOM T ask F o rce on Education and Human R e so u rc e s in Thailand (1963). T his rep o rt d e sc rib e s the prob lem s under the new Department of L ab or. Manpower p ro g ram s The p ro g ram s and activ ities of the L abor D epartm ent, which include (1) employment ex change, (2) vocational guidance, (3) vocational training and (4) occupational prom otion, are de sc rib ed and su ggestion s fo r their improvement a re presented. Special com m ents and ob servation s are made regard in g the coordination of the work in the L ab or Departm ent with the Manpower Planning Office in the National Econom ic Development B oard. The resp e ctiv e ro le s of the L ab or D epart ment and the M inistry of Education need to be c larifie d , esp ecially in the field of apprentice training. L ab or R elations and L ab or Standards A labor law was p a sse d in 1965 which e sta b lish e s new p roced u res for settlin g disputes. Future plans c all fo r im provem ent and expan sion of labor inspection activ ities and safety and health p ro g ram s, rev isio n of the Lab or Code, and preparation of a handbook on settlem ent of dispu tes. Several su ggestion s are made about the im provem ent of curren t labor law s and stan dards. The labor law of 1965 prohibits the form ation of unions but p erm its the right to b argain c o lle c tively ad hoc through a rep resen tative. Within the context of Thailand’ s h istory and culture, the new law m ay be regard ed a s a respo n sible fir s t step toward norm al labor-m anagem ent relatio n s. It is hoped that the government will encourage labor to develop identity and leadersh ip which is independent of management. L ab or S tatistic s R ese arch The m ajo r sta tistic a l su rv ey s and rep o rts produced by the Departm ent of L ab or include an annual establishm ent survey in the BangkokThonburi a re a ; occupational wage su rv ey s in selected in d u stries; annual re p o rts on con cilia tion, work stop pages, work in ju rie s, and em ployment se rv ic e ac tiv itie s; and re p o rts on the pattern s of employment statu s of vocational school grad u ates, on m igration, and on working conditions in m ines. New p ro je cts for 1966 include stu dies of the employment situation of university grad u ates, underemployment in the N ortheast, and working conditions in Bangkok. Specific recom m endations are made to develop and im prove sam ple su rvey s of establish m en ts. 1 / U.S. Departm ent of L abor International Technical A ssistan c e C orps. 187 E a s t A sia and P acific Thailand Internal M igration (1965; 150 pages) ILO Report to the Government of Thailand; ILO /O T A /T hailan d/R .26; Robert Poupart Report p rov ides, for the fir s t tim e in Thailand, com prehensive b a sic inform ation on the movement of ru ra l w o rkers. Includes num erous sta tistic a l tab les and m aps. M igration has been a sso c iated with a number of d eleteriou s e ffec ts, notably the growing p ro blem of unemployed m igran ts in urban a r e a s. An in creasin g rate of ru ra l m igration into Bang kok has given r is e to governm ental concern. To obtain a c le a r picture of the situation, the Government of Thailand requ ested ILO a s s i s t ance in conducting a survey of internal m ig ra tory m ovem ents. The m issio n ’ s objective w as to determ ine the prin cipal m igrato ry movem ents of ru ral w orkers. The em ph asis w as on qualitative a sp e c ts such a s c a u se s of m igration, living and working conditions, and effect of ru ral m igration on economic p r o g r e ss. The project w as intended a s a pilot study to be continued by the L abor D epartm ent. A vailable data con sisted of inform ation from the 1960 C ensus of Population and from a few re p o rts p rep ared by the Departm ent of A gricu l tu re. To obtain m ore intensive inform ation, su rv ey s were conducted in 45 out of 71 p ro vin ces. Interview s w ere conducted with anyone who had a knowledge of lo cal conditions: govern ment o ffic ia ls, te ac h e rs, em ploy ers, fa rm e r s, 188 and local and m igrant w o rk ers. In BangkokThonburi, over 2,000 m igrant w orkers were interview ed during variou s se a so n s at the E m ployment Serv ice offices and at bus and railw ay station s. Econom ic fa c to rs, according to the survey, a re the p rim ary cau se of m igratory m ovem ents. Population p r e ssu r e and the sc a rc ity of suitable fa rm land are the prim e fa cto rs causin g migation among fa r m e r s. Other fa c to rs include ex c e ssiv e rain fall, lack of w ater, and crop p e sts. The rep o rt also an alyzes other so cial and economic conditions in ru ra l a r e a s which cau se m igration and d is c u ss e s the prob lem s connected with p e r manent and tem porary m igration. The M ission recom m ended that the Govern ment of Thailand con sider certain rem edial m e a su re s fo r the alleviation of m igratory prob le m s. To keep a b re a st of the situation, an adm in istrative unit should continue the study of m igrato ry m ovem ents. Government policy on m igration should be outlined c le arly and the v ario u s agen cies involved strengthened. Several recom m endations cover the protection and wel fa re of m igrant w orkers and control of m ig ra tory m ovem ents. E a st A sia and P acific Thailand Current and P rojected Secondary Education P ro g ra m s fo r Thailand A Manpower and Educational Development Planning P ro jec t (1966; 257pages) Educational Planning O ffice, M inistry of Education, Thailand, Publication No. 9 This rep o rt is b ased on one of the recom m en dations of the Join t Thai/USOM T ask F o rc e. T his recom m endation related to a m ore intensive study of secondary education, both vocational and academ ic, with sp ecial referen ce to man power needs. A team from Michigan State Uni v e rsity , supported by AID funds, a ss iste d in the preparation of this study. The team included D r. Raymond N. Hatch, Chief, D r. Stanley P. Wrondki, and D r. David K. Keenan. Contents of repo rt 1. Background of secondary education in Thailand. 2. O rganization and adm inistration of the M inistry of Education. 3. P resen t and future demand fo r manpower in Thailand. 4. Social and philosophical b a se s of secon dary education. 5. The ob jectives of education fo r the youth of Thailand. 6. Enrollm ent statu s and tren ds, projected to 1986. 7. The curriculum , covering su b ject m atter, instructional aid s, and teaching methods. 8. Quality of the instructional staff. 9. Education p r o d u c t i v i t y , m easu red by quality of the educational product and the effi ciency with which it is produced in te rm s of tim e and money expended. 10. Sum m ary and recom m endations. 189 E a s t A sia and P acific Thailand Manpower Development in Thailand’ s P rivate Sector (Memorandum, Ju ly 1967; 7 pages) Henry F . M cC usker, Manpower A d v iser, Stanford R e se arch Institute, assign ed to the National Econom ic Development B oard of Thailand An overview of the manpower situation in the priv ate se c to r of Thailand’ s economy. The Manpower Planning D ivision of the Na tional Econom ic Development B oard conducted r e se a r c h in preparation of Thailand’ s Second National Econom ic and Social Development Plan, 1967-71. Inform ation regard in g employment and trainin g p ro g ram s w as obtained from a survey of 20 com panies that rep resen t a c ro ss-se c tio n of Thailand’ s m ajor econom ic se c to r s. M ajor findings of the su rvey 1. Employment in la r g e - sc a le private en ter p r is e will in cre ase on an average of 40 percent in the 1967-71 period. 2. Competition fo r en gin eers, technicians, m an agers, and su p erv iso ry personnel is very keen and their sa la r y level is risin g rapidly. 190 3. S a la r ie s in private en te rp rise have a wide range and a r e , on the av erage, con siderably higher than those paid to government em ployees. Among p ro fessio n al and su p erv iso ry w o rkers, the differen tial m ay be three or four tim es a s grea t. 4. F rin ge benefits are broad and fa r exceed those offered to government w orkers. 5. M ost com panies have som e form of train ing p ro g ra m s, gen erally unplanned, inform al on-the-job training. The m ajo r exceptions are the petroleum com panies which have w ell-plan ned, form al in -se rv ic e training p ro g ram s ta ilo r ed to their sp ecific needs. A lis t of p erso n s and com panies visited is provided, together with types of training p ro g ra m s offered by the variou s com panies. E a st A sia and P acific Vietnam The Work F o rc e in Saigon A Survey of Some Econom ic and Social C h a ra c te ristic s of Em ployees in M edium -Sized Industry (1960; 178 pages) Ja m e s B. Hendry, Michigan State U niversity, Vietnam A dvisory Group An exam ination of the so cial and econom ic c h a ra c te ristic s asso c ia te d with employment in m edium -size industrial estab lish m en ts in Vietnam, The m ain purpose of the su rvey was to un derstan d what happens to people when rapid in d u strialization in a fo rm erly ru ra l economy tak es p lace . Since no data on the labor fo rce in Saigon were av ailab le, it w as decided to sam ple the work fo rce employed in industrial firm s. A sam ple of four “typical” establish m en ts w as selected ; they rep resen ted pottery manu factu re, d ru gs and p la stic s , soap, and printing. Three of the firm s employed 100 people, the fourth employed 300. One-half of the em ployees in the three sm all firm s w ere drawn into the sam ple and one-fourth in the la rg e firm . The resp o n se of those selected rep resen t som e of the conditions of and the attitudes toward indus trializatio n in Saigon in 1958. 2. Living conditions and fam ily stru ctu re— type of housing, recreation al fa c ilitie s, m arital sta tu s, fam ily siz e . 3. Movements of w o rk ers—extent to which m igran ts and d isplaced p erso n s have been ab so rb ed into the labor fo rce; education and ex perien ce of recen t m igran ts com pared with long term city resid en ts. 4. Unionization—com position of unionized labor fo rce in te rm s of sk ill, length of em ploy ment, se x , type of plant. 5. Work satisfactio n and attitudes toward m anagem ent—exam ination of job p refere n ces and job satisfactio n according to such v a ria b le s a s job s k ills, education, w orkplace, etc. Inform ation was obtained on the following gen eral a r e a s of in terest: The appendixes d escrib e the methods used 1. D escription of the work fo r c e —age and se x and the interview experien ce, and contain a copy of the 32-question questionnaire. There are 54 distribution, income ran ge, duration of em ploy tab les in the text and 24 in an appendix. ment, fo rm er employment. 191 E a s t A sia and P acific Vietnam Report on Manpower A dvisory P ro jec t, USAID/Vietnam (M arch 19 to June 2, 1966; 10 pages) DOLITAC 1 / Staff P ap er No, 13; Richard R. Z oeckler, Manpower A dviser A rep o rt on curren t p r o g r e ss in a s s e s s in g urban man power needs. C onsiderable attention w as focused on the dem and-supply situation in Vietnam in late 1965, when construction con tractors and other la rg e em ployers indicated their manpower re q u ire m ents would be in creased . A rrangem ents were made fo r the im portation of A m erican and third-country nationals to fill key position s and to m eet sh o rtages of c ritic a l sk ills. Speculation soon a ro se regard in g the im pact of such hiring on the V ietnam ese economy and on labo r-m an agem ent relatio n s. A U.S. Civilian Manpower Com m ittee w as form ed to evaluate the situation. E x istin g population and employment data a re inadequate fo r p u p o se so f a n aly sis. An e sta b lish ment su rvey is curren tly (1965-66) being con ducted by the M inistry of L ab o r in the SiagonG ia Dinh a r e a and in An-Giang Province. A sim ila r 1964 survey is still being p ro c e sse d . E stablish m en t reportin g will be em phasized from now on. The ad v iser recom m ended that data be developed by a r e a rath er than on a na tional b a s is . The National Institute of S ta tistic s is plan ning a com plete cen su s of in dustrial and com m erc ial establish m en ts on its own. It will in 192 clude data on production, power consumption, and capital investm ent. The M inistry of Lab or is being reorganized. T h is reorganization involves many personnel sh ifts and reassign m en t of certain functions. The agency added a r e se a r c h planning and labor sta tistic s division in its new reorganization. The Employment Serv ice is engaged prin cipally in recru itin g w orkers fo r construction p ro je c ts. L ittle se rv ic e i s beingprovided other em ploy ers. The Manpower D ire cto rate’ s Com m ittee on Manpower Planning was given the assign m ent of drafting long-range manpower policy su g g e s tion s. F o r 1966, sp e cia l attention is to be given to the development of vocational training. The aim for 1967 is to im prove employment p la c e ment operation s. The ad v iser su ggested that em p h asis be placed on obtaining accurate and de pendable labor fo rce inform ation before making fa r-reac h in g policy p ro p o sals. U.S. Departm ent of Lab or International Technical A ssistan c e C orps. 1/ N ear E a st and South A sia Afghanistan Human R eso u rc es Development and Manpower Utilization in Afghanistan (1967; 69 pages) M eredith B. G ivens, AID Manpower Consultant An evaluation of A fghanistan’ s educational and training ac tiv itie s in relation to curren t and p rojected manpower needs. At p resen t, Afghanistan h as no sy stem atic p ro g ram or central organization concerned with the developm ent of human re so u r c e s nor an e f fectively organized central sta tistic a l office. However, som e rudim entary components for a manpower pro g ram ex ist: 1. A Manpower D irecto rate in the M inistry of Planning, which c o lle c ts employment inform ation fro m establish m en ts and is respo n sible fo r a l location of u n iversity-train ed personnel to p o sts with Government. 2. A C ivil Serv ice Departm ent in the P rim e M inistry. 3. A National Employment Bureau in the Min istr y of M ines and In du stries, which c o n sists of two o ffic ials attached to the Personn el O ffice. The work is lim ited to a few placem ents each y ear. 4. A National R e g iste r of Skilled P ersonnel. Q uestionnaires have been issu e d to government personnel but v ery few have been returned. 5. A D ivision of Vocational Guidance in the Departm ent of Vocational Education in the Min is tr y of Education, which c o n sists of two em ployees who also have duties elsew h ere. Very little work h as been accom plished. The fir s t National C en sus ev er to be taken in Afghanistan will occur in 1968/69, with adv iso ry s e r v ic e s from the United N ations. Up to now, manpower e stim ate s and p rojectio n s have been m ade by v ario u s ad v iso ry team s fro m ILO, U .S.S.R ., and the United States (Robert Nathan A sso c ia te s). T hese data are inadequate fo r de veloping a manpower p rogram . Education is the Nation’ s fa ste st growing industry. The number of sch ools and the number of pupils at each educational level have in creased rapidly during the la s t 5 y e a r s. The educational sy stem i s heavily dependent on foreign aid, e s p ecially from the United States and U .S.S.R . Unemployment and underemployment of lib eral a r t s grad u ates from the U niversity of Kabul a re sig n s of overinvestm ent in this a re a . In ord er to avoid this w aste, stu dies on manpower needs should be made to guide edu cators on the con tent of c o u r se s and the level of education that are required to m eet these needs. F o rm al edu cation should be linked with w ork-based train ing in the development of m iddie-level manpower. 193 N ear E a s t and South A sia Ceylon O bservations on V isit to Ceylon (1961; 8 pages) S. M. Ju stic e , AID A pprenticeship Consultant A rep o rt on apprenticeship ac tiv itie s in Ceylon, b ased on a 5-day observation tour. P articipan t followup A m eeting w as arran ged fo r 12 of the 15 fo rm er p articipan ts who receiv ed training with the Bureau of Apprenticeship and Training, U.S. Departm ent L ab o r. In gen eral, they showed satisfactio n with the p ro g ram s that had been arran ged fo r them in the United States. Contact with M inistry of Labour A v isit w as m ade to the Central Employment Serv ice Exchange and new vocational training cen ter. Some of the top ics d isc u sse d included: 2. Vocational and trade testin g cen ter. Oc cupational c a p ac itie s of Employment Exchange r e g istr a n ts are tested fo r placem ent of m achin is t s , w eld ers, and sim ila r occupations. 3. M iscellaneous prob lem s of Employment Exchanges including e a rly school le a v e r s and la rg e num bers of h ard -to -place unskilled work ers. V isit to the Ceylon-Germ an Workshop T his workshop p rov ides technical training of m echanics to overhaul and m aintain the na tionalized bus sy stem in Ceylon. Sixty men are 1. Wage B oard ord in aces. In the field of selected each y ear from the over 4,800 ap p lican ts to undergo a 3 -y e ar training pro g ram . m otor engineering, certain w orkers m ay r e The consultant con sidered this to be the b est ceive supplem ental instruction at the Ceylon trainin g center ob serv ed during his trip to Technical C ollege for which they a re granted se v e ra l coun tries. r e le a se tim e and pay by their em ployers. 194 N ear E a st and South A sia Ceylon A Survey of Employment, Unemployment and Underemployment in Ceylon, 1959-60 (1963; 11 pages) International Labour Review, Vol. 87, M arch 1963, pp. 247-257. Sum m ary of the methods used and the r e su lts of a labor fo rce survey. A household su rvey of the labor fo rce was conducted by the ILO Expanded P rogram m e of Technical A ssistan c e with the cooperation of Ceylon’ s Departm ent of L ab or and Department of S ta tistic s. The su rvey covered four q u arterly p erio d s of the y ear ending M arch 1960. A sam ple w as selected from the 1953 cen su s for three ru ra l a r e a s and two urban a r e a s. Sam ple house holds w ere divided further to provide independent su b sam p les so that e stim a te s of c h a r a c te r istic s would be available at the four se p ara te q u arte rs. Ceylon h as a young population. Out of a popu lation of 10.3 m illion, n early 44 percent were children under 15 y e a r s of age. N early 80 percent of sch ool-age children, 5 to 15 y e a r s old, were attending sch o ols, an unusually high proportion fo r a developing country. About a third of the population was in the la bor fo rce , either working o r looking fo r work. Sex participation r a te s were 45 percent fo r m ales and 16 percen t fo r fe m ales. A griculture, fo r e str y , and fishing ac tiv itie s employed 58 percent of the labor fo rce ; and m anufacturing, mining, and public u tilities accounted for 14 percent. D espite the g re a t dependence of the economy on agricu ltu re, a relativ ely la rg e proportion (63 percent) of the w orkers in Ceylon were wage and sa la r y e a r n e r s. Even in ru ral a r e a s , a s much a s 61 percent of employed p e rso n s were wage and s a la r y e a r n e r s, a featu re which distinguishes Ceylon’ s econom ic organization fro m that in many other developing coun tries. N early 13 percent of the labor fo rce w ere un employed p e rso n s. Unemployment in Ceylon is concentrated among youth and young adults. Among w orkers under 15 y e a rs of age, 44 percent w ere unemployed, chiefly in the ru ra l a r e a s where school attendance is low. M ore se rio u s, however, w as the high proportion of unemploy ment among young adults; over 30 percent of the 15 to 19 age group and 20 percent of the 20 to 24 age group in the labor fo rce were unemployed. U sing the ILO definition, the su rvey m easu red underemployment to include p erso n s who worked few er than 5 days or 40 hours during the p a st 7 days and who w ere available fo r m ore work. About 45 percen t of the ru ra l employed and 30 percen t of the urban employed worked few er than 40 hours a week. However, relativ ely few of these people wanted ex tra work. 195 N ear E a s t and South A sia Cyprus Employment Service O rganization and O perations (1962; 23 pages) Report to the Government of the Republic of Cyprus; IL O /T A P /C y p ru s/R .2 ; G erald R. P a r r ish (U.S. Departm ent of Labor) Report review s the current Employment Serv ice op erations and d e sc rib e s the conduct of establishm en t su rv ey s. In I960, the new Government of Cyprus faced a se rio u s problem of unemployment and underem ploym ent. Placem ent se r v ic e s of the Employm ent Exchange sy stem , which had been in existen ce sin ce 1945, w ere found to be deteriorating. In o rd er to proceed with plan ning fo r economic development, the need fo r curren t inform ation on employment and man power becam e urgent. To estim ate the curren t manpower situation, two establishm ent su rv ey s were conducted 6 months ap art. The fir s t su rvey in F eb ru ary 1962 covered all public and private em ploy ers with five w orkers or m ore in the N icosia-K yren ia D istrict. The second su rvey w as conducted in Septem ber 1962. At the sam e tim e, an ini tial su rvey w as undertaken in the L im a sso l D istrict. Employment Exchange o ffic e rs gained con siderab le experience which should form the b a s is fo r continuing su rv ey s of manpower and employment inform ation. C ertain technical prob lem s w ere yet to be reso lv ed , however. F o r exam ple, bench m ark data were needed fo r total employment in each in dustrial se c to r and in each e stab lishm ent. It w as hoped that the 1960 Census of Population and the 1962 C ensus of Industry would provide the n e c e ssa ry benchm ark data. However, technical d ifficu lties delayed the use of the 1960 C ensus of Population by the con sultant, and the 1962 Census of Industry had not been com pleted. 196 The consultant evaluated the organization and operations of the Employment Serv ice, including its functions (em ployer relatio n s, reg istratio n interview ing and sp e cia l se rv ice ), staffin g, accom m odations, sta ff training, and preparation of the manual of operation s. R e com m endations on these topics w ere made con sisten t with ILO Convention No. 88 con cerning Employment Service O rganization. A tim e schedule w as devised to effect these reco m m endations. The Employment Service should play an im portant ro le in combatting the se rio u s p ro b lem s of employment and unemployment by taking ste p s in the following a r e a s: 1. Until the conditions of ru ral life can be im proved, stop-gap r e lie f from r u ra l un derem ploym ent can be afforded through public w orks p ro g ram s, a ss iste d by equitable p lace ment se r v ic e s. 2. Chronic unemployment of educated youth can be alleviated by introducing m ore intensive and r e a listic vocational guidance p ro g ram s. 3. R aisin g the sk ill level of the labor fo rce can be done by im proving the interviewing techniques of the sta ff and by providing the sta ff with curren t occupational inform ation b ased on projectio n s of manpower requ irem en ts. N ear E a s t and South A sia Cyprus Manpower A sse ssm e n t and Employment Service (1964; 18 pages) ILO R eport to the Government of the Republic of Cyprus; IL O /T A P /C y p ru s/R .6 ; Richard R. Z oeckler (U.S. Departm ent of Labor) A review of the p r o g r e ss of the Employment Serv ice since the 1962 ILO M ission. The principal ob jectives of the p ro ject were to advise the M inistry of Labour and Social In surance on the development of a continuing p ro g ram of manpower inform ation and on the o r ganization and operation of the Employment Service. Information on the manpower suppy-demand situation w as needed to im plem ent the F iv e -Y ear P lan (1961-66). The three prin cip al so u rc e s of manpower data were examined: 1. 1960 C ensus of Population—a valuable guide to the c h a ra c te ristic s of the labor force but of questionable validity in the a r e a s of unem ployment becau se of inadequate definition. 2. 1962 C ensus of Industry—valuable infor mation but not com plete b ecau se of inadequate coverage in se v e ral in du strial se c to r s. 3. D ata from Employment Service a c tiv itie s—b asic ally sound inform ation on p e r so n s actively re g iste re d for work. D ata from the establishm en t su rv ey s could not be linked to the C ensus for trend an aly sis. Supplem entary manpower inform ation for planning pu rp oses cam e from the v ario u s admin istrativ e control sy ste m s in the Employment Serv ice office, from the annual su rvey of school grad u ates reportin g labor m arket intentions, and from student re g istra tio n s. The consultant tried se v e ral methods to im prove the curren t sta tistic a l inform ation rep o rt ing sy ste m s. F o r exam ple, the sem iannual establishm en t su rvey which was se t up s u c c e s s fully by the previou s m ission w as interrupted tem po rarily to c o rre c t certain in co n sisten cies and to expand cov erage to other towns. Recom m endations for im proving the manpower sta tistic s program include: 1. Conduct a household survey of the labor fo rce to fill in gap s of m issin g inform ation from the C ensus. 2. Use unemployment insurance data a s an indicator of the volume and trend of unemploy ment. 3. Improve techniques of establishm ent s u r vey s regard in g siz e of sam ple, geographic cov erage, etc. 4. Improve vario u s operations of the E m ployment Serv ice, such a s adm inistration, p e r sonnel, job vacancy inform ation, occupational c la ssific a tio n sy stem . 197 N ear E a st and South A sia G reece O rganization of the Employment Service (1962; 26 pages) ILO Report to the Government of G reece; IL O /T A P /G ree ce/R .1 7 ; A. Y. W. Cowie (United Kingdom) A description of the adm inistrative organization and work of the Employment Serv ice. R esp on sib ility fo r G reek employment m atte rs and fo r vocational guidance and training r e s t s with se p ara te D ire cto rates in the M inistry of L ab ou r. R espon sibility fo r unemployment bene fits , fam ily allow ances, and c o n sc rip ts5benefits belongs to the O rganization fo r Employment and Unemployment Insurance which is governed by a board appointed by the M inister of Labour. The Institute of Social Insurance a c ts a s a collection agency for so cial insurance con tri butions. C o sts of operating these variou s o r ganization s, including 49 local Employment Service o ffic e s, com e from so cial insurance contributions. The M ission noted many prob lem s a risin g from dual control of employment o ffices by the 198 M inistry of Labour and the O rganization for Employment and Unemployment In surance. Spe c ific a lly , personnel staffin g and duplication of work seem to be the m ajo r problem a r e a s. The M ission concludes that the only sa tisfa c to ry solution is to place the employment o ffic e s under unified control and to allocate the employment and vocational guidance work among the v ario u s organization s involved. In all, 30 detailed recom m endations are presen ted a s n e c e ssa ry to implement and im prove the s e r v ic e s of employment o ffic es. M ost of these recom m endations deal with organization, staffin g, and lo cal office control. N ear E a st and South A sia G reece Education for Econom ic and Social Development—G reece (1964; 237 pages) O rganization for Econom ic C o-operation and Development D irectorate for Scientific A ffa irs, The M editerranean Regional P ro jec t T his rep o rt is one of six p rep ared by r e se a r c h team s for the M editerranean Regional P ro jec t with the financial support and technical a ssista n c e of the O rganization fo r fo r Econom ic C o-operation and Development (OECD). The r e se a r c h team assign ed to G reece a s s e s s e d educational and manpower needs and r e so u rc e s in light of long term ta rg e ts for econom ic and so c ia l development. The fir s t half of the book is devoted to a s se s sin g the curren t educational sy stem and po tential re so u r c e s fo r educational expansion. Educational input and output, and their related fa c to rs, are analyzed in g re a t detail supported by many sta tistic a l tab les. Expenditures on education a re presen ted fo r both private and public se c to r s. A ttem pts a lso are made to ap p r a is e the quality of the educational sy stem by analyzing teach er/pu pil r a tio s, school c l a s s roo m s and buildings, and other m e a su re s of quality. The second half of the book d eals with p ro jection s of manpower needs and educational req u irem en ts. Working within the economic development plan for the three 5-y ear p erio d s to 1979, the r e se a r c h team analyzed projected changes in the occupational structu re of nonagricultural in d u stries, and estim ated manpower r e placem ent requirem ents due to death and r e t ir e ment. The team then tran slated the adjusted manpower e stim ate s into educational req u ire m ents to 1979. The n e c e ssa ry expenditures for buildings, te ac h e rs, operating c o sts, e tc ., r e quired to m eet the long term demand fo r sk illed manpower, are estim ated to be 3.2 percen t of the 1974 G ro ss National Product, com pared with with 2.1 percen t in 1961. 199 N ear E a st amd South A sia India Apprenticeship T raining (1960; 25 pages) ILO R eport to the Government of India; IL O /T A P /In d ia/R .3; S. A. Norton (Canada) Report on the apprenticeship pro g ram in the State of West Bengal. Under the National A pprenticeship Scheme (NAS), the all-India target w as to train 7,000 appren tices between 1957 and 1961. West Bengal had been allotted 3,000 p la c e s which w ere la te r reduced to 1,000. By 1959, the m id-point of this 4 -y e ar period, only 273 appren tices had com pleted training. By the tim e of the consul tant’ s departu re, 410 p la c e s had been filled. One of the re a so n s fo r the relativ ely few apprentice tra in e es appeared to be the lack of adequate publicity. A conference of trainin g o ffic e rs from in du stry in the Calcutta a r e a w as held. Many topics were d isc u sse d and a program was p rep ared ; fo r exam ple, standardizing sk ill training sy llab u se s, developing work sch edu les, estab lish in g duration of study, and maintaining r e c o rd s. A pilot p ro ject was conducted in one engineering plant to develop an apprentice ship program . 200 On the b a s is of his work and experien ces in West Bengal, the consultant form ulated c e r tain view s on the N a t i o n a l A pprenticeship Schem e. Some of the topics d isc u sse d included a code of d isciplin e, duration of training, ratio of appren tices to sk illed w o rk ers, apprenticeship r e c o r d s, and periodic and final te sts. Recom m endations 1. State apprenticeship a d v ise r s should play a key role in the implementation of the Na tional Apprenticeship Schem e. 2. A State Apprenticeship Committee should be estab lish ed in each State and com posed of rep resen tative from Government, industry, and labor. 3. In the la r g e r estab lish m en ts, a Plant A pprenticeship Committee should be organized to help estab lish in-plant training. N ear E a st and South A sia India A Manpower P ro g ra m for Econom ic Development O bservations and Suggestions Concerning India’ s Manpower P ro g ram (1960; 153 pages) Leo R. W erts, Manpower Consultant, The F ord Foundation Methods of developing, utilizing, and distributing man power to achieve economic development go als. The m ost se rio u s problem facin g m ost devel oping coun tries is how to e^qpand the experienced and sk illed work fo rce needed fo r economic p ro g r e s s . Since many sk ills can be learn ed on the job, the respo n sibility fo r developing trained man power belongs to both public and private en ter p r is e s . The rep o rt su g g e sts v ario u s methods of encouraging estab lish m en ts to develop their own sk ill trainin g p ro g ram s. M aterial, equipment, power, money, and manpower r e so u r c e s can be utilized effectively only if high-level m an agerial and p ro fessio n al technical sk ills a re developed. Such talent is b est developed through fo rm al training at univer s itie s . Once trained and working on the job, man a g e r s and high-level technical personnel should be given the opportunity to utilize their cap ac itie s a s fully a s p o ssib le . Developing and p reparin g new generations of manpower can be done by providing educational institutions with inform ation on future occupa tional requirem ents so that enough young people can be adequately p rep ared to fulfill these r e quirem ents. In addition, educational institutions should provide opportunities for the development of attitudes which se rv e the national and com munity in te re sts, a s well a s their own individual asp iratio n s. A s urban a r e a s and industrial e n te rp rise s rapidly in c re a se in siz e and number, the labor m arket becom es la rg e and com plex. Under these conditions, the country re q u ires an Employment Serv ice organization to a ssu r e the ord erly move ment of w orkers, to provide a placem ent se rv ice fo r high-level manpower, and to provide job counseling to young people. M odernizing so cie tie s m ust cope with the p rob lem s of su rp lu s unskilled labor and of sh ort a g e s of sk illed manpower. The Third F iv e -Y ear Plan includes p ro g ram s to u tilize su rplu s labor and to prom ote employment opportunities. Sev e r a l additional su ggestion s a re offered. R esponsible le a d e rs from Government, in du stry, and labor should review and exam ine the v ario u s p ro g ram s already in existen ce in India and introduce a fully coordinated manpower ad m in istrative and planning organization fo r the development of manpower. An A ll-India Man power Policy A dvisory Com m ittee should be estab lish ed to advise the Government on man power policy and program . State and a r e a sub com m ittees should provide n e c e ssa ry inform a tion to the National Com m ittee. All educational and training institutions should be included in the manpower adm inistration. 201 N ear E a st and South A sia India O bservations on V isit to India (1962; 6 p ag es and 3 appendixes) S. M. Ju stic e , AID Apprenticeship Consultant A rep o rt on apprenticeship activ itie s in India, b ased on a 5-day observation tour. Contact with M inistry of Labour D isc u ssio n s with the D irector G eneral of Em ploym ent and T raining in New Delhi in cluded the following topics: lo P rovision of the new 1961 A pprenticeship A ct, outlined in appendix I. 2. Training m a te ria ls extensively in u se, liste d in appendix n . 3. R equest for AID Apprenticeship Consul tant fo r 6-month tour of duty. 202 4. V isit to the P u sa Industrial T raining Institute, one of seven c r a fts train in g c en ters in New Delhi. T ra d e s and number of appren tices a r e liste d in appendix III. Contact with the National Productivity Council T his organization has sent se v e ra l p a r tic i pants to the trainin g p ro g ram s of the Bureau of A pprenticeship and Training, U.S. D epart ment of L ab o r. Seven fo rm er p articip an ts w ere contacted. N ear E a st and South A sia India P r o g r e s s of the Occupational Information and Vocational Guidance P ro g ra m s (1962; 14 pages) ILO Report to the Government of India; IL O /T A P /In d ia/R .15; S.O. Doos (Sweden) A rep o rt of a second followup m ission to evaluate p r o g r e ss of vocational guidance p ro g ram s instituted se v e ra l y e a rs e a r lie r . 1 / In 1955-56, ILO a s s is te d the Government of India to develop, within the D irecto rate G eneral of Employm ent and T raining (DGET), a group of related p ro g ram s: occupational inform ation, youth employment se rv ic e , vocational guidance, and employment counseling. A f i r s t p r o g r e ss r e port w as made in 1958. T his is the second p ro g r e s s repo rt. Occupational R ese arch and Information E ffo rts to m eet all of the different demands fo r occupational inform ation will only lead to a diffusion of r e so u r c e s. T h erefore, available r e so u rc e s should be devoted to a very lim ited number of ac tiv iite s. Additional work can be starte d when r e so u r c e s p erm it and when it does not in terfere with work alread y going on. P ro g ra m s which should be given high prio rity include: 1. Com pleting the National C lassificatio n of O ccupations. 2. T raining Employment Serv ice o ffic e rs. 3. R evisin g Guide to C are e r pam phlets. 4. Updating handbook on training fa c ilitie s. 5. Expanding re se a r c h on a sse ssm e n t of edu cational and trainin g requ irem ents. 6. P rep arin g p o ste rs and wall ch arts. 7. P reparin g reading m ate rials on occupa tional inform ation for distribution to sch ools. Vocational Guidance Vocational guidance in the Employment Se rv ice h as developed very rapidly. The number of guidance o ffic e rs i s expected to in cre ase over the curren t F iv e -Y e ar Plan period. Guidance talk s are provided to la rg e num bers of groups and individuals. E m ph asis should be placed on providing r e a listic vocational guidances. V oca tional guidance p ro g ram s should be speeded up in the school sy stem in ord er to guide young people while they a r e still in school. 1 / Report to the Government of India on Development of P ro g ram m es of Occupational Information and Youth Employment Serv ice, Vocational Guidance and Employment Counsel ling (IL O /T A P /In dia/R .4) 1957. R eport to the Government of India on the P r o g r e s s of the Occupational Information and Youth Employment Service and Vocational Guid ance P ro g ram m es (IL O /T A P /In dia/R .6) 1958. F ir s t followup m ission . 203 N ear E a st and South A sia India The Operation and Extention of Vocational Guidance A ctivities (1965; 35 pages) ILO Report to the Government of India; IL O /T A P /In d ia/R .17; G. E . T. Whiting (United Kingdom) A repo rt on the curren t statu s of vocational guidance p ro g ra m s and on the a ssista n c e provided to expand these p ro g ram s. In addition to the Vocational Guidance Unit at the D irectorate G eneral of Employment and Training, lo cal units were se t up at som e E m ployment Exchanges to guide young and inex perienced sc h o o l' le a v e r s and to counsel jobhunting adults. In addition, the E d u c a t i o n D epartm ent w as attem pting to provide guidance p ro g ram s in all secondary sch ools. A ccording to a 1962 survey, however, only 5.5 percent of the 1,600 secondary schools offered a guidance p rogram . The consultant p repared a pilot p ro ject on vocational guidance fo r sc h o o l-leav ers. The purpose w as to provide guidance for pupils through a joint p rogram by the educational authority and the National Employment Serv ice. Of the 400 pupils interview ed, 55 percent r e quired a change of occupational goal, m ostly b ecau se the pupils tended to be over am bitious o r tended to choose occupations unrelated to their cap ac ities and inclinations. On the b a sis of the r e su lts of the pilot p ro je ct, re v ise d vocational guidance proced u res at Employment Exchanges w ere recom m ended. 204 M ost of the p ro p o sals covered im provem ent in the number and quality of the guidance o ffic e rs and som e changes in their duties. The consultant further recom m ended that Vocational Guidance Units should not be linked o r concerned with selection o r p l a c e m e n t work. T hese units should be in p re m ise s sep arate from E m ployment Exchanges in o rd er to have a wider appeal to job se e k e r s. Approval fo r this plan w as withdrawn, however, becau se of problem s of lo g istic s and finances. An excellent an aly sis of the b asic problem s and fundamental difficu lties b esetting India’ s vocational guidance program is provided in detail. Some of the topics covered are : m ean ing of vocational guidance, need for employment, p re stig e attached to jo b s, job satisfactio n , function of the interview , b asic re se a rc h , and financial lim itation s. B ased on this an aly sis and on the outcome of the pilot pro ject, r e com m endations are presented; they deal p r i m arily with d etails of organization and of dayto-day operation s. N ear E a st and South A sia Iran H igh-Level Manpower Development in Iran (1960; 83 pages) D r. T. H illiard Cox, Manpower A d v iers, Governmental A ffairs Institute A study to provide a b a s is for the expansion and im provem ent of high-level manpower development in Iran. D ata used to p rep are th is rep o rt a re the re su lt of a nationwide su rvey of higher educational in stitutions in Iran and student training p ro g ram s in u n iv ersities abroad. Information on b asic needs and future requ irem en ts for high-level manpower w as obtained from a 1958 e stab lish ment survey. 1 / The m ajo r em ph asis of this study w as to analyze high-level manpower prob le m s and to su ggest p ro g ram s of action for their solution through the expansion of p resen t fa c il itie s, establishm ent of new activ itie s, and im provem ent or revision of existin g p ro g ram s. The re su lts of the study indicate that presen t p ro g ra m s for developing high-level manpower a re inadequate to m eet Iran ’ s in dustrial develop ment requ irem ents. Minimum additional man power needs for 1963 are estim ated at 25,000 p e rso n s. However, only 11,000 of these req u ire m ents will be met through training at home and abroad. The net shortage of 14,000 will occur in p ro fe ssio n s considered to be of c ritic a l im por tance to economic development: adm in istrator, ph ysical scien tist and engineer, agricu ltu ral sc ien tist, and m edical p ro fe ssio n s. (Ironically, a su rp lu s of nearly 5,000 is e j e c t e d in the field s of lib e ra l a r t s , law, lite ratu re , and philosophy.) Net sh o rtages of m iddle-level personn el, such a s te ac h e rs, n u rses, and su p erv iso ry personnel, a r e a lso analyzed. An exam ination of the utilization of employed high-level manpower shows that about half are u tilized only p artially . It is estim ated that, if it w ere p o ssib le to attain full utilization, the need fo r producing additional trained manpower could perh aps be cut by one-third to one-half. Recom m endations for the development and utilization of high-level manpower included the following: 1. E stab lish a national r e g iste r of high-level personn el. 2. Improve and expand cu rricu la in all types and le v e ls of technical and scien ce schools. 3. R ev ise the sa la ry structu re of teach ers at all le v e ls. 4. E stab lish a training-w ithin-industry in stitute. 1 / National Manpower R eso u rc es and R e quirem ents Survey, Iran 1958, Government of Iran, M inistry of L ab o r and Plan O rganization, 1959, 90 pp. Technical a ssista n c e provided by Governmental A ffairs Institute, including a 28page manual on su rvey methods and pro ced u res. 205 N ear E a s t and South A sia Iran Population and L abor F o rc e of Iran A Statistical Sum m ary (1960; 38 tables) Compiled by the P ro g ram and E conom ics O ffice, USAID/Iran A referen ce document for u se of r e se a r c h e r s . S tatistic al data contained in the variou s tab les w ere taken from published re p o rts of the M in istries of In terior and L ab o r, Plan O rganization, and the Governmental A ffairs Institute. Inform ation on the population ap p ears in tab les 1 to 15. T ab les 16 to 32 presen t data on the c h a r a c te r istic s and siz e of the labor 206 fo rce . The rem aining tab les indicate the sk ills of the lab o r fo rce and som e occupational in form ation. T h ese la tte r tab les a r e su m m aries of the manpower sh o rtages that w ere com piled for the H igh-Level Manpower D e v e l o p m e n t Study. (See precedin g sum m ary.) N ear E a st and South A sia Iran Manpower Planning (1965; 26 pages) ILO Report to the Government of Iran; IL O /T A P /Iran /R . 13; N ils T . Strom (Sweden) An a p p raisal of the curren t and the developing manpower situation in relation to economic planning. In 1962, a G eneral Departm ent of Manpower Studies and S ta tistic s (MSS) w as created in the M inistry of L abour and Social A ffairs to c a r ry out manpower stu dies and to collect sta tistic s on labor m arket prob lem s. The MSS curren tly is (1965) conducting a household su rvey of the labor fo rce . The G eneral D epartm ent of Employment c o lle c ts employment m arket inform ation through its region al employment o ffic es. Some job stu d ies have been conducted by this office. Data fro m other so u rc e s a lso a re liste d . B a se d on these and other data, se v e ra l r e p o rts on manpower and vocational training for the y e a rs between 1963 and 1972 were prepared . T hese re p o rts contain many recom m endations fo r the im provem ent of sk ills of the labor fo rce . The broad conclusion drawn by this a p p raisal is that labor s ta tistic s, employment m arket infor mation, and manpower planning a re fa r from sufficien t to m eet the requirem ents of economic and so cial development planning. Statistical data on existin g conditions are s c a r c e ; and collecting, p ro c e ssin g , analyzing, and publishing of such data have been initiated only recently in many field s. B ecau se these data are sc a r c e , a r e a li s tic evaluation of future manpower supply and demand is m et with g re a t difficulty. Recom m endations 1. The 1966 C ensus of Population should be conducted. 2. D etailed stu d ies of the labor fo rce should be m ade. 3. Human re so u rc e policy should be coo rd i nated with the ov erall econom ic development plan. 4. Studies should be m ade of the manpower needs of the m ajo r econom ic se c to r s. 5. The employment s e r v i c e organization should be enlarged and its operation s im proved. 6. ILO recom m endations on the occupational c lassific a tio n sy stem should be adopted. 7. Employment counseling should be organ ized in the G eneral Departm ent of Employment. 8. Vocational training should include m ore sp e c ia ltie s, e sp e cially fo r m etal and con stru c tion work. 207 N ear E a st South A sia Iran Iran ’ s E xperien ce with Manpower Planning Concepts, Techniques, and L e sso n s (1965; 32 pages) George B . Baldwin (H arvard A dvisory Group in Tehran). A rticle in Manpower and Education, Country Studies in Econom ic Development, F re d eric k H arbison and C h arles A. M yers, ed ito rs (New York, M cGraw-H ill Book Company, 1965) p ag es 140-172 Background of manpower planning in Iran and its p r o s p ec ts for the future. Manpower planning starte d ju st after th eb eginning of the second Seven-Y ear Plan in 1955, with the establishm ent of a Manpower Develop ment D ivision in Plan O rganization. Weakened by p o litic s, the D ivision had no role in the f i r s t national manpower plan of 1960-61 and w as abolished in 1961. Long before 1961, the Econo m ic Bureau of Plan O rganization becam e in ter ested in human re so u rc e development. T his group rapidly becam e the main power center in Plan O rganization and was assign ed p rim ary resp o n sib ility for drawing up the country’ s third plan. By 1962, Iran had a manpower plan of 100 p ag es and an education plan of 250, m ore space in the 1,500-page plan than any other topic. P o litical r e v e r s e s , com petition fro m riv a l in te re sts, and duplication of effort p r e vented much of the manpower plan from being 208 c a r rie d out. However, the plan provides a strate g y and a stan dard which the country can follow when the situation changes. The m ajo r portion of the a rticle d e sc rib e s the v ariou s su rv ey s conducted and an alyzes the r e su lts of the data collected. T ab les of the occupational stru ctu re of nonfarm employment a re provided and the output of schools fo r the next se v e ra l y e a rs is d iscu ssed . The sh ortage of teach ers ap p ears to be the m ost se rio u s bottleneck lim iting expansion of the educational sy stem . In the long run, education will be the main in spiration fo r throwing off the traditional culture and for creatin g an atm osphere in which m ore will be p o ssib le than any one can now expect. In the sh ort run, all that can be hoped fo r is the avoidance of g r o s s m istak es. N ear E a st and South A sia Iraq Reorganization and Development of the National Employment Serv ice (1962; 29 pages) ILO Report to the Government of Iraq; IL O /T A P /Iraq /R .7 ; J.A . Rizvi (India) An an aly sis of the operation s of the Employment Service and recom m endations fo r its im provem ent under the new Labour Law . The Em ployment Serv ice is one of the s e c tions under the D irectorate G eneral of Labour in the M inistry of Social A ffairs. The e stab lish ment of the Employment Serv ice is b ased on prov isio n s of the Labour Law of 1958, which now is (1962) being rev ised . The consultant w as to provide advice concerning changes in the new Code which m ay affect the Employment Serv ice. The Employment Serv ice in Baghdad has two section s: The Identity C ard Section which is s u e s the n e c e ssa ry identity c a r d s to enable w orkers to seek and hold job s, and the Employment Section which k eeps book r e g is te r s on job applicants and job placem ents. The work of the m ission con centrated on estab lish in g p rio rity ac tiv itie s for strengthening the work of the Baghdad office. E m p h asis w as placed on reorgan izin g the office so that the Employment Serv ice could se rv e a s a model and training ground fo r future o ffices. Staff m em bers attended daily training se ssio n s which covered all a sp e c ts of employment organ ization pro ced u res and p ra c tic e s. Recom m endations fo r the im provem ent of the Employment Serv ice under the new Labour Law: 1. The Serv ice should be given independent statu tory b a s is and financial provision. 2. An appointed C entral Employment B oard should be constituted a s soon a s p o ssib le and lo cal Employment Com m ittees created a s the Serv ice expands. 3. The Manual of Instructions and the stand ard fo rm s prep ared by the consultant should be printed and used by the sta ff of the Employment Service O ffices. 4. A vailable employment data should be ana lyzed and made public at reg u lar in terv als. 209 N ear E a st and South A sia Isr a e l Methods of F o rec astin g Manpower Requirem ents and R eso u rc es (1961; 43 pages) ILO Report to the Government of Isr a e l; IL O /T A P /Isra e l/R .1 4 ; H arold Goldstein (United States) Techniques of projectin g sh ort- and lon g-term req u ire m ents fo r occupations im portant to economic develop ment. Isr a e l has the b a sic sta tistic a l re so u r c e s, r e se a r c h experien ce, and competent personnel to m ake p o ssib le an effective r e se a rc h p ro g ra m on manpower r e so u r c e s and requ irem en ts. Data needed fo r projection s have been developed in the C entral Bureau of S ta tistic s, the Bank of Isr a e l, the Independent F alk P ro je c t for Econom ic R e se arch , and the economic m in istrie s. Man power stu d ies have been made in the M inistry of T rad e and Industry. A central sta ff is needed to bring together the v ario u s stu dies made by these agen cies. T h is sta ff should be a single organization and recognized a s the S e c re ta ria t of the National Manpower Council, which is chaired by the M in ister of Labour. 1 / P o lic ie s and p ro g ram s should be adopted and the fa c ts and findings of the coordinated stu d ies should be publicized to help develop public understanding and support fo r the p ro g ram s. An an aly sis of all the available data is made and recom m endations fo r their im provem ent a r e presen ted. F or exam ple, cov erage of the establish m en t su rvey should be extended to 210 include additional im portant econom ic activ i tie s, and inform ation on employment by occupa tion should be obtained through periodic su rv ey s. D etailed recom m endations on the techniques of m aking sh ort- and lon g-term p rojectio n s are m ade. The method d escrib ed com bines the ana lytical approach with em p loy ers’ projection s of their own needs. P rojectio n s of m a n p o w e r requirem ents should be b ased on those made by the Bank of Isr a e l b ecau se they rep resen t the official a p p raisal of the outlook. The sta ff of the M inistry of Labour should work c lo sely with the sta ff of the Bank of Isr a e l to develop the 10-y e ar p ro je c tions of manpower req u irem en ts. T hese p ro je c tions should also con sider alternative assu m p tions on im m igration in view of the e rra tic nature of the origin and the occupational com position of im m igran ts. 1 / A M a n p o w e r Planning Authority w as created in 1962 to se rv e a s S e cre tariat. N ear E a st and South A sia Isr a e l O rganization of the Employment Service (1963; 24 pages) ILO R eport to the Government of Isr a e l IL O /T A P /Isra e l/R .1 5 ; A.G. H art (United Kingdom) A review of the curren t adm inistrative organization of the National Employment Service and su ggestion s for its im provem ent. The Employment S erv ice Law of 1959 created a free National Employment Serv ice under the general su pervision of the M inistry of Labour. More than 700 people are employed in the S e rv ice. The organization c o n sists of a m ain office to m anage the ac tiv itie s of the Serv ice, a special office to provide placem ent and inform ation se rv ic e to p ro fessio n al people, an office to place seam en, 29 d istric t o ffic e s, 21 local o ffic es, 65 branch o ffic es, and 62 sta ff o ffic es. The functions and operations of these o ffices are d escrib ed in detail. The findings and recom m endations a re p r i m arily com m ents aim ed at im proving the ad m in istrative organization and Employment Se rv ice p o lic ie s. F o r exam ple, the com pulsory nature of the law, regard in g vacan cies and re g istra tio n s, has had a detrim ental effect on the operation of the Serv ice. It w as recom m ended that action be taken to lim it the scope of the com p u lso ry reg istratio n prov isio n s o r rep eal them a s soon a s p o ssib le . Sim ilarly , the law regard in g the point sy stem of placing applicants in jo b s should be modified or repealed. Points are given r e g istr a n ts accord ing to number of dependents and duration of un employment. Those with the highest points are placed in vacan cies r e g a r d le ss of th eir ph ysical o r mental attribu tes or experience fo r the job. T his p ractice p la c e s an u n n ecessary expense and delay on the em ployer who is obliged to give the person a tria l. F u rth erm ore, the point s y s tem ac ts a s a dangerous impedim ent to the e f fective development of manpower. Such develop ment i s one of the key fa c to rs in the p r o c e ss of economic growth. 211 N ear E a st and South A sia Isr a e l Manpower A sse ssm e n t and Planning (1965; 66 pages) ILO Report to the Government of Isr a e l; IL O /T A P /Isra e l/R .2 0 ; Sam A. M orgenstein (United States) An an aly sis of the 1964-69 manpower p rojectio n s and su ggestion s fo r developing an effective manpower in form ation program . Since its creation in 1962, the Manpower Planning Authority has serv ed a s the cen tral body for the coordination of re se a r c h e sse n tial to manpower a sse ssm e n t and planning and a s se c r e ta r ia t for the National Manpower Council. Inform al but effective relation sh ips have been estab lish ed with all M in istries and agen cies in volved in manpower. The ju risdiction al resp o n sib ility fo r manpower re se a r c h rem ain s to be worked out with the Central Bureau of S ta tistic s. The Manpower Planning Authority com pleted the 1964-69 manpower supply and demand p ro jection s. Methods u sed in these p rojectio n s are analyzed and the educational output (supply fa c tor) i s describ ed in detail. By the end of the 1960’ s, Isra e l will be facing sh o rtages in those occupations which req u ire the longest period of education o r training. 212 T ypes of data needed for a continuing em ployment m arket inform ation p rogram a re ex plained. The v ario u s organizations alread y c o l lectin g m ost of these data should be coordinated to avoid duplication and overlap of work. The National Manpower Council should p erform th is se rv ic e . Recom m endations w ere arran ged in groups by ord er of implem entation capability. Group A recom m endations can be implemented im m ediately; fo r exam ple, redefining the authority and functions of the manpower m achinery. Group B recom m endations requ ire either further in vestigation o r a longer tim e to put into effect; for exam ple, developing a sy stem to collect accu rate data on vocational training p ro g ram s. N ear E a st and South A sia Jordan O rganization of a Manpower A ssessm en t and Planning P ro g ram (1964; 23 pages) ILO Report to the Government of the Hashem ite Kingdom of Jordan ; IL O /T A P /Jo rd an /R .7 ; O .B. R ailey (United States) An a p p raisal of the current and projected manpower s it uation and advice on the organizational requirem ents of a continuing manpower p rogram . The Jordan Development B oard, which i s r e sponsible fo r economic and so c ia l planning, is attem pting to include manpower asp e cts in its development plans. The Board had conducted a study in 1960, but the data on which the study was b ased w ere inadequate. A population cen su s was conducted in 1961, but com plete tabulations w ere not expected until 1964. The Departm ent of Labour is concerned p r i m arily with the adm inistration of the Labour Code. It does not operate an Employment Service or conduct r e se a r c h into the manpower situation. Jo rd an ’ s g re a te st need is fo r a perm anent organization to e stab lish a pro g ram of manpower a sse ssm e n t and planning. Within the Planning D ivision of the Development B oard, a Manpower Planning Section w as created on an ad hoc b a sis. The organization and functions are outlined in this repo rt. About half of the population is under 17 y e a rs of age. L e s s than a fourth of the population is in the labor fo rce. T his very low proportion re su its from the preponderance of youngpeople and from the sm all number of women in the labor force (about 3 percent). Occupational and industrial distribution s are provided in the an aly sis. In ord er to fill gap s in the availab le manpower inform ation, an establishm ent su rvey w as con ducted. The survey covered n early 760 e stab lish m ents in which alm ost 17,000 p erso n s w ere em ployed. Questions relatin g to occupations and future plans were asked. T hese data were used to analyze curren t and projected manpower needs. Shortages of sk illed w orkers and a su rplu s of untrained manpower will affect Jo rd an ’ s eeo*nomic and so cial planning. Recom m endations are directed mainly toward the v ariou s m eans of p ro viding fo r a continuing»study of manpower under the au sp ices of a perm anent Manpower Planning Section. 213 N ear E a s t and South A sia Jo rd an Manpower in Jordan (1965; 8 pages) Report to U SA ID /Jordan; E .L . Keenan, Manpower Consultant Nature and extent of manpower problem s in Jo rd an and types of manpower p ro g ram s that should be initiated or continued. Population in Jo rdan is in creasin g at the rate of 3 percent a year, and labor fo rce at the rate of 4 percent a year. It is estim ated that 17,000 new w orkers joined the labor fo rce in 1964. A c cording to the draft Seven-Y ear Plan, however, only 12,000 new jobs are planned for the en tire period to 1970. A s a re su lt, there will be se rio u s unemployment in Jordan . The Government of Jordan should estab lish a manpower development unit within the Plan ning D ivision of the Development B oard. At the sam e tim e, a manpower function in the D epart ment of S ta tistic s, M inistry of National Economy, should be establish ed to gather and su m m arize data on a continuing b a s is . To a s s is t the Gov ernm ent in creatin g these units and advising on their functions and operation s, AID should p ro vide a broad gaged manpower sp e c ia list. There are at le a st three fa c e ts of the man power situation in Jordan that d eserv e attention: 214 1. Manpower in Government is w asted b e c au se of the e arly retirem en t sy stem and lib eral pen sions. 2. The pay sc a le for top level and technical personnel in Government is low com pared with s a la r ie s that they receiv e in Saudi A rab ia or Kuwait. The situation can be im proved through development of job qualification stan d ard s, job perform ance evaluation, and m ore equitable pay sc a le s. 3. The labor fo rce is growing fa ste r than new jo b s. At the presen t tim e, trained Jo rd an ian s are finding employment opportunities outside the country. There should be a m ajo r expansion in the unplanned se c to r s of the economy; fo r ex am ple, tou rism will in cre ase employment oppor tunities in hotels, re stau ran ts, b u se s, etc. N ear E a st and South A sia Jordan The Further Development of the Manpower A sse ssm e n t P rogram m e (1966; 12 pages) ILO Report to the Government of the Hashem ite Kingdom of Jordan ; IL O /T A P /Jo rd an /R .9 ; O .B. R ailey (United States) A follow-up review of p r o g r e ss made since co n su ltan ts previou s v isit in 1964. The Government of Jo rdan recently ratifie d ILO Convention No. 122 concerning the e stab lishm ent of an active employment policy. To im plem ent the prov isio n s of this Convention, an organized manpower a sse ssm e n t and planning unit is needed. The functions of a Manpower Planning Section are d escrib ed . (See sum m ary of ILO rep o rt IL O /T A P /Jo rd an /R .7 ). Recom m endations 1. Manpower Planning Section should be p e rmanently estab lish ed in the Planning D ivision of the Development B oard. 2. Manpower Council should be estab lish ed to form ulate manpower p o lic ie s. It should be com posed of high-level o ffic ials from Govern ment, industry, and unions. It should review , evaluate, and recom m end manpower p o lic ies and stu d ies, and otherw ise give direction to the field of manpower development. 3. Manpower Information A dvisory Com m ittee should be appointed by the Council to in su re technical cooperation. The Committee should help in the technical coordination of man power and related data. 4. Full u se should be made of the inform ation supplied by em ployers in the 1963-64 Manpower Survey. 5. E very effort should be made to com plete the R e g iste r of P ro fessio n al and Technical Manpower which w as started in 1964. 215 N ear E a st and South A sia P akistan Manpower Survey (1956; 176 pages) ILO R eport to the Government of P akistan; IL O /T A P /P ak istan /R .lO ; C.W. H epler (United States) and W.H. M ason (United Kingdom) An an aly sis of curren t and p rojected manpower re so u r c e s and requ irem en ts. In preparin g an Econom ic Development Plan at the end of 1953, the Pakistan Planning B oard recognized the need fo r curren t and detailed in form ation regard in g manpower. The B oard de cided that the M inistry of L abour should conduct manpower su rv ey s, with the advice and a s s i s t ance of a manpower expert from ILO, in ord er to develop the n e c e ssa ry inform ation. Several su rv ey s were made to determ ine the supply of and demand for manpower: 1. A survey of about 5,000 establish m en ts w as conducted to collect information on the le v els of employment, occupational distribution, fo re c a s t s fo r 6 months hence, and e stim ate s of o c cupational sh ortages. 2. A household su rvey was conducted to de term ine the supply of labor. Information was collected on the age, sex , and wage of household m em b ers; employment and occupational statu s; hours worked; and season al v ariation s in work. 3. A su rvey w as conducted by the M inistry of Education to determ ine the existin g fa c ilitie s fo r technical, p ro fessio n al and vocational train ingo 216 Data collected from these su rvey s and from available inform ation w ere analyzed and supply/ demand projection s w ere m ade. A com parison between the reported occupational sh o rtages and the available training fa c ilitie s gave som e indication of the extent to which p resen t fa c il itie s are adequate to m eet currently expanding needs and p rojected needs. Each high-level p r o fe ssio n al and sk illed occupation w as so analyzed. M ajor Recom m endations 1. There is an urgent need fo r the regu lar collection and re le a se of inform ation about the manpower situation, p articu larly in connection with the p r o g r e ss of the Development Plan. This inform ation should be provided by m eans of a continuing employment inform ation program . 2. To avoid w asteful overlapping of effort in planning, collecting, and distributing man power inform ation, the Departm ent of Manpower and Employment should be recognized a s the appropriate channel for these functions. 3. In form ulating plans for the expansion of technical and vocational training, p rio ritie s should be determ ined by the needs identified in the survey. N ear E a st and South A sia P akistan R eport on Thailand, P ak istan , A u stralia and the Philippines in Connection with the SEATO Skilled Manpower Report (1958; 9 p ag es and 3 attachm ents) F re d W. E rh ard , AID Manpower A dviser The SEATO Report of the Study Group on training needs fo r sk illed manpower recom m ended strengthening voca tional and technical sch o ols, in stru ctor training, and on-the-job training. T his rep o rt d eals with implementing these recom m endations in Pakistan . Attachment 2 p rese n ts sp e cific p ro p o sals to USAID fo r the initiation and development of a national apprenticeship p ro g ram and other fo rm s of training in Pakistan . The p ro p o sals include the following topics: 1. Training should be job-oriented to the actual needs of private industry and government. 2. In stru cto rs from both government and private industry should be broadgaged enough to develop training sk ills a s need a r is e s . 3. Two U.S. training sp e c ia lists should be a s signed to a s s is t in developing p ro g ram s. 4. R espon sibility fo r on-the-job training should rem ain in the Departm ent of L ab or. Offjob training re sp o n sib ilities will have to be c la rifie d by Government au th orities. 217 N ear E a st and South A sia P ak istan Development of an Employment Information P ro g ram (1958; 22 pages) ILO Report to the Government of Pakistan ; IL O /T A P /P ak istan /R .1 7 ; W.H. M ason (United Kingdom) R eport exam in es the p r o g r e ss m ade sin ce the manpower rep o rt of 1956 1 / im plem enting the Employment Inform a tion P ro g ram , The p r o g r e ss made sin ce 1956 h as been good in staffin g arran gem en ts and in the trainin g of the personn el. The Departm ent of Manpower and Em ployment in the M inistry of L ab or s u c c e s s fully com pleted additional su rv ey s of priv ate households and em ploying estab lish m en ts. P rep aration s fo r a fourth round of establishm ent in q u iries w ere preceded by c o u rse s for the field sta ff given by the ILO consultant and h is P ak i stan i counterpart, who had been trained abroad. However, p r o g r e s s in issu in g employment m a r ket re p o rts and developing th eir u se s has been slow . Recom m endations to solve som e of the ad m in istrative prob lem s: 1. Budget should be in creased to allow for p ric e index changes. 2. L o cal employment m arket re p o rts should be function of lo cal office. 3. C alculating m achines should be used to speed data p ro c essin g . 218 4. V acan cies should be filled by prom otion from within. Recom m endations regard in g the technical prob lem s: 1. A sp ecified cycle of establishm en t su rv ey s b ased on type of industry (tim etable in appendix A) should be m ade. 2. Employment m arket re p o rts should be p rep ared a s d escrib ed in sam ple in appendix B. 3. P roposed national sam ple labor fo rce s u r veys by the C entral S tatistic al Office should r e place current household stu dies now undertaken by the M inistry of L ab o r. 4. Employment m arket re p o rts should be circu lated widely throughout government. 1 / Report to the Government o f P ak istan on a Manpower Survey, ILO, 1 9 5 6 ,IL O /T A P /P ak istan /R .10. N ear E a st and South A sia P akistan Development of an Apprenticeship Schem e, 1957-1962 (1963; 35 pages) ILO Report to the Government of P akistan ; IL O /T A P /P ak istan /R .2 8 ; H.X. P ootjes (Netherlands) A description of the apprentice trainin g p ro g ram in P akistan during the period 1957 to 1962 and recom m enda tions for its im provem ent. P rio r to the consultant’ s a rriv a l, very little training of a sy stem atized and regu larized na ture ex isted in P akistan . The Departm ent of Manpower and Employment directed five tech nical training c en ters. In 1957, a National Ap prenticeship Council w as estab lish ed to review apprentice training in general and to make r e c om mendations for im provem ent. A National D irectorate of Apprenticeship T raining w as cre ated and regional d irec to rates w ere san c tioned in D acca and L ahore. L a te r, a D irectorate of Technical T raining w as estab lish ed . In 1960 and 1961, advisory com m ittees su ggested that these two d irec to rates be operated within the M inistry of Health, L abour, and Social W elfare. The consultant recom m ended, in addition, that all cou n cils, b o ard s, and other training organ ization s coordinate their v ario u s fa c ilitie s and operations under a National T raining B oard. The ILO consultant’ s initial task was to awaken in te re st among the in d u stries in the need fo r apprentice training. This work resu lted in 40 fa c to rie s startin g apprenticeship p ro g ram s which included about 2,000 appren tices by the end of his m ission . These p ro g ram s were in the m etal and engineering tra d e s, the textile indus t r ie s , and the printing industry. Apprentice trainin g of m arine en gin eers also w as starte d at the req u est of the K arach i P o rt T ru st. The ILO consultant experim ented with an A m erican m echanical aptitude te st, adapted to Pakistan i conditions, fo r the selection of appli can ts for training. He p rep ared theoretical le ctu re s for c o u rse s given in the K arach i Poly technic Institute, where 275 appren tices received trainin g by 1962. A co u rse w as also instituted by the Dawood Cotton M ill and the Pakistan Swedish Institute. In 1962, an ordinance requ iring industry to take a role in training w orkers fo r sk illed o c cupations w as p a sse d . The legislatio n sta te s that those establish m en ts which em ploy 50 w orkers or m ore (of whom five or m ore are in apprenticeable trad es) should train , at their own expense, at le a st 20 percen t of the total number in these tra d e s. Expenditures in curred in this trainin g would be allowed a s deductions on in com e tax retu rn s. 219 N ear E a st and South A sia P ak istan Manpower A ssessm en t and Planning P ro g ram (1963; 21 pages) ILO Report to the Government of Pakistan ; IL O /T A P /P ak istan /R .3 0 ; G.D. Bishop (Canada) R eport d e sc rib e s the variou s branches of the P akistan adm inistration concerned with manpower. P akistan o ffic ia ls recognized the need fo r a manpower planning p rogram to coordinate the vigorous pro g ram of investm ent under the Second F iv e -Y e ar Plan (1960-64) and that p ro posed fo r the Third F iv e -Y ear Plan (1965-69). The Planning C om m ission operated a Manpower Section with a sta ff of two p ro fe ssio n a ls. M ost of their work con sisted of utilizing existin g data to estim ate employment changes by economic se c to r s and to p ro ject population and labor fo rc e . B ecau se of inadequacy of the data, in-depth stu d ies w ere not p o ssib le . The C entral Statistical Office form ulated a com prehensive sta tistic a l pro g ram to coordinate lo cal and central Government sta tistic a l activ itie s to provide the Government with prop er m easu rem en ts fo r so c ia l and econom ic planning. The following plan s were outlined: 1. A d irecto ry of all establish m en ts em ploy ing five em ployees o r m ore. 2. The tra n sfe r of household labor fo rce su r veys from the M inistry of Labour to the Central Statistical O ffice. 220 3. A qu arterly establishm ent su rvey of em ploym ent, earn in gs, and labor turnover. 4. An annual su rvey of vocational, technical, and p ro fessio n al training institutions. 5. An agricu ltu ral ru ral labor survey. The manpower inform ation pro g ram of the R e se arch and S ta tistic s Branch of the M inistry of Labour w as b ased m ostly on re su lts of annual establishm ent su rv ey s. Data were published about 2 y e a rs after the su rvey and w ere d is tributed on a very lim ited b a sis. The m ost recent su rvey (1961) included the occupational com posi tion of each firm . B ecau se of the im portance of this inform ation arrangem en ts were made to tabulate r e su lts in the Central Statistic al Office. However, it w as not p o ssib le to develop a trend s e r ie s with data from the establishm ent su rv ey s becau se of frequent changes in coverage and definitions. Recom m endations The consultant confined his recom m endations to the organization, staffing, and p rio rity r e se a rc h stu d ies in the Manpower Section of the Planning C om m ission. N ear E a st and South A sia P akistan Review of the T rad e s T raining Center Plan (1963; 167 pages) Raymond D. L arso n , Manpower A dviser, U.S. D epartm ent of L ab o r Survey Team Report review s the fe asib ility of estab lish in g a T rad e s T raining Center in P akistan to se rv e a s a model for other developing coun tries. Since m iddle-level sk ills were in sh ort sup ply, it w as hoped that the T rad es Training Cen te r would sh arply speed up training of these needed w orkers. The plan focused on training w orkers for employment in, and related to, the construction industry sin ce this industry is b asic to all other se c to r s. Significant fe atu res of the plan are a s follow s: 1. Reduction of training tim e by elim inating nonessential theoretical instruction. 2. P eace C orps volunteer carftsm en to se rv e a s in stru cto rs. 3. The gradual replacem ent of P eace C orps volunteers with local in stru cto rs. The su rvey T eam su ggested that a reason ab le goal for training would be to in crease the p ro portion of sk illed w orkers in the construction work fo rce from its curren t 12 percent to 50 p e r cent; that is , a goal of training m ore than 200,000 sk illed w orkers. Specific occupations, type of training, and equipment c o st for each occupation are d escrib ed . The co st of building adequate trainin g fa c il itie s is d isc u sse d in detail. It w as estim ated that a total of 91,520 squ are feet fo r the Center could be built fo r $3.3 m illion. F ir st- y e a r o p era tion would c o st about $300,000. It w as estim ated also that 54 people, aided by two U.S. a d v ise r s, would be requ ired to operate the facility. About 110 in stru cto rs would be needed to train 780 students in 18 construction tra d e s. 221 N ear E a st and South A sia P ak istan Survey of L ab o r Management R elations and R elated L ab or P ro g ra m s in P akistan (1964; 46 pages) A drian R o b erts, AID L abor Management R elations Consultant Study concentrates on proposed re v isio n s of ordinan ces, the need for m ore study of protective labor law s, su g gestio n s fo r reorganization of provin cial L abor D epart ment functions, and m eans for training labo r union le a d e r s. Industrial growth in P akistan has created new p rob lem s in em ployee-m anagem ent relatio n s, and law s to prom ote in dustrial peace have failed to settle grie v an ce s. L egislatio n to encourage the trade union movement has stim ulated m em b er ship but failed to develop union leadersh ip at the lo cal le v e ls. Under the 1962 constitution, the provin cial governm ents were given resp o n sib il ity to adm inister m ost labor legislation , while the cen tral government retained coordination con tro l to a ssu r e uniform ity. The consultant su g gested that a sm all c o rp s of liaiso n o ffic e rs be estab lish ed to ad v ise provincial s e c r e ta r ie s and d ire c to rs. Suggestions for rev isio n s of the three m ajor lab o r law s were a s follow s: Industrial D isputes Ordinance of 1959: A lim itation should be im posed on the ju risdiction and types of c a s e s which m ay be r e fe rre d to the in du strial c o u rts. Too many c a s e s have gone to the cou rts rath er than to conciliation. In addition, a rev isio n of the w orks com m ittee r u le s should 222 be made to provide for g re a te r equality in com m ittee operation s and to guarantee freedom from r e p r is a ls . T rad e Unions Ordinance of I960: A policy statem ent to encourage growth of labor unions fo r collective bargain in g p u rp o ses should be in cluded. All unions should be r e g iste re d and the waiting tim e fo r union recognition should be r e duced. Study should be made of in co n sistan cies favorin g em ployers in pen alties handed down by in du strial co u rts. Industrial and C om m erical E m p l o y m e n t Ordinance of 1960: A p o sitive statem ent of p u r p o se is needed. An amendment should specify that no w orker can be d isch arged with ju st cau se. Suggestions w ere a lso made fo r estab lish in g a Labor-M anagem ent R elation s D ivision and a Conciliation Serv ice in the provin cial L ab o r D epartm ents, and fo r training union o ffic e rs and m em b ers at the plant level. N ear E a st and South A sia Pakistan P roposed Technical T raining P ilot P ro je c t fo r the R ural Works P ro g ram of E a st P akistan (1964; 24 pages) S.M. Ju stic e , AID A pprenticeship A dviser Report provides recom m endations concerning the p ro posed R ural T rad e s T raining P ro je c t to be developed by USAID and the P eace C orps. The R ural Works P ro g ram is directed to ward the econom ic development of the ru ra l a r e a which includes 85 percent of E a st P ak istan ’ s 55 m illion people. The proposed pilot training p ro je ct is related directly to the P ro g ram and would help m eet the need fo r r u ra l sk ill develop ment. The s k ills to be developed include those pertaining to irrigatio n , flood control and drain age, ro a d s, construction, and sim ila r ac tiv itie s. (Skills liste d in appendix I.) T hese activ ities rep re se n t the m ost im m ediate and urgent needs fo r ru ra l development. Specific recom m endations cover the staffin g p attern s fo r AID consultants and P eace C orps volunteers who se rv e a s in stru cto rs; the c r e a tion of an apprenticeship planning and coo rd i nating com m ittee; the appointment of a P akistan i to se rv e a s D irecto r of the pro ject; the u se of C om illa a s an experim ental proving ground for techniques and approaches used in the p roject; trainin g of su p e rv iso rs before at tem pting to organize c o u rse s fo r w o rkers. In addition, the qualifications and functions of the sen io r AID ad v ise r a re outlined. Reference “ The Im pact of the R ural Works P ro g ra m on E a st P ak istan ,” rep o rt by Sol O zer, USAID/ P akistan , 1964. No copies available fo r sum m ary. 223 N ear E a s t and South A sia P ak istan P ak istan ’ s H igh-Level Manpower and Human R eso u rce Development Planning (1965; 65 pages) N icholas DeWitt, AID Manpower Consultant If the ta rg e ts of P ak istan ’ s Third F iv e -Y e ar Plan a re to be m et, expansion of education is needed, e sp e cially at the secondary level* Human r e so u r c e s planning and human capital stu d ies should have commanded p rio rity attention long ago. The 1956 ILO rep o rt on Manpower Su r vey in P ak istan (IL O /T A P /P ak istan /R .1 0 ),p ag e 39, s t r e s s e d the urgent need for the re g u lar co l lection and r e le a se of inform ation about the m an power situation. A lis t was made of the types of inform ation req u ired, but no data have been collected to date. The variou s F iv e -Y e ar P lan s have included statem en ts on manpower and edu cation, but no m e a su re s have yet been im ple mented. B ecau se of the paucity of data, the fir s t p rio rity should be given to collecting and p ro c e ssin g sta tistic a l inform ation on a re g u lar b a s is . The data presented in th is rep o rt constitute the fir s t attem pt to study employment and p ro ductivity b ased on g r o s s value of output. The d e tails of the method u sed a re d isc u sse d and the r e su lts a re presented in 19 ta b le s. T op ics include e stim a te s and projection s of total and nonagricultu ral employment and of high-level manpower by i n d u s t r y s e c t o r s ; occupational com position 224 changes, 1951-61; and educational attainment of the population, labor fo rce, and occupational group s. The final section of this rep o rt d e a ls with planning fo r human r e so u r c e s development. R e se a rc h p r io ritie s fo r manpower and educational planning are liste d , and a conceptual fram ew ork and model is d escrib ed in detail. R eferen ces M easuring the E ffects of Population Control of Econom ic Development, P akistan a s a C ase Study, E d gar M. Hoover and M ark P erlm an , U niversity of P ittsburgh, Center for Regional Econom ic Study, Jan u ary 1965. P rojectio n s of the Population of P ak istan by Age and Sex: 1965-1968, A M easure of the P o tential Im pact of a F am ily Planning P ro g ra m , U.S. D epartm ent of C om m erce, B ureau of the C en sus, June 1965. N ear E a s t and South A sia P ak istan Human R eso u rc es P ro g ra m s and Econom ic Planning in P akistan (1965; 44 pages) DOLITAC JL/ Staff P aper No. 28; Eugene Vinogradoff, Manpower A dviser D escription of v ariou s manpower problem s in P akistan and su ggestion s for action by the Manpower Council. The m ajor portion of the rep o rt d is c u ss e s the problem s involved in developing human r e so u rc e s in P akistan , followed by su ggestions and recom m endations fo r the guidance of the Manpower Council and fo r AID a ssista n c e . Some of the topics dealing with employment m arket problem s are : 1. Im balance between jo b se ek e rs and jobs in both urban and ru ral a r e a s. 2. Sh ortages in certain sk illed occupations. 3. Low income and low productivity of a v e r age w o rk ers, e sp e cially in fa rm and trade occu pations. 4. Waste of human r e so u r c e s a s re su lt of “educated unem ployed.* The p ro g ram s for human re so u rc e develop ment include the following m ajo r a r e a s: 1. Educating and training curren t and poten tial labor fo rce p articipan ts. 2. Im proving health and socioeconom ic en vironm ent of w orkers. 3. Safeguarding human r e so u r c e s through on-the-job safety d ev ices and p ro g ram s, m inim um -wage legislation , insurance w elfare p ro g ra m s, and other economic secu rity m e a s u r e s. 4. Supporting p ro g ra m s, such a s housing, w ater, sew age, ro ad s, and other community fa c ilitie s and public s e r v ic e s. In addition to providing su ggestion s fo r each of the topics on labor m arket prob lem s and on human re so u rc e development, the consultant m ak es sp ecific recom m endations regard in g the adm inistration and role of the Manpower Council in the economic development of P akistan . There i s a stron g need fo r a thorough occupational m an power su rvey and esp ecially for high-level and m iddle-level supply and demand p rojectio n s to estim ate occupational sh o rtages. C urrent occu pational staffin g inform ation can be obtained from a sam ple of urban em ploy ers, and supply p rojectio n s can be obtained from the M inistry of Education. T hese projection s would provide the Manpower Council with enough inform ation to make its own recom m endations and to se t its own work p r io ritie s. Recom m endations fo r AID action are aim ed at strengthening the Manpower Council through the a ssista n c e of a full-tim e manpower sp e c ia l is t and through sh o rt-term assign m en ts a s sp e cia lize d prob lem s a r is e . U U.S. Departm ent of L abor International Technical A ssistan c e C orps. 225 N ear E a st and South A sia S y ria Manpower A sse ssm e n t and Planning (1964; 17 pages) ILO R eport to the Government of the Syrian A rab Republic; IL O /T A P /S y ria /R .9 ; C .B . McAlpine (UnitedKingdom) An a sse ssm e n t of curren t and p rojected manpower r e so u rc e s and requirem ents by sk ill le v e ls. In 1963, the M inistry of Planning con sisted of five D ire cto rates of which the D irecto rate of Econom ic and Social Planning w as respon sible fo r manpower planning. E stim ate s had been made of manpower requirem ents of many of the p ro je c ts included in the Second F iv e -Y ear E co nomic Plan (1965-69), but d etails on manpower needs by occupation w ere lacking. E x istin g manpower s e r v ic e s con sisted of se v e ra l Employment Serv ice o ffic e s. The Labour Law of 1959 provided fo r obligatory notification of v acan cies by em ployers and the reg istratio n o f jo b se e k e rs. Manpower inform ation requ ired fo r the effective operation of an Employment Serv ice w as inadequate. Inform ation on the labor fo rce w as available fro m the 1960 Population C ensus and from a labor fo rce sam ple survey. Some data on man power were availab le from se v e ra l industrial production su rv ey s and the 1960 C ensus of Indus t r i a l E stab lish m en ts. Inform ation regard in g p ro fe ssio n s w as obtainable from r e g is te r s of p ro fessio n al so c ie tie s. E stim a te s of future de mand had not been collected from em ploy ers. 226 The consultant prep ared an outline fo r a com prehensive rep o rt on the manpower situation in Sy ria. The rep o rt itse lf w as not p rep ared b e c au se r e su lts of the cen su s and labo r fo rce su r veys w ere not available at that tim e. Recom m endations 1. Guided by the proposed Manpower Section in the M inistry of Planning, the Government should e stab lish a p ro g ram of manpower in for mation. 2. A Manpower A dvisory Com m ittee should be created and com posed of re p resen tativ es of all M in istries. 3. The com prehensive manpower r e p o r t should be com pleted a s soon a s data are a v ail able. 4. The Syrian C lassificatio n of Occupations should be com pleted and kept up to date. 5. An establishm en t su rvey should be con ducted to determ ine curren t employment by occupation and to estim ate future demand. N ear E a st and South A sia Turkey Employment M arket Information P ro g ram (In French; 1961; 26 pages) ILO Report to the Government of Turkey; O IT /O T A /T urkey/R .15; H.M. D reyer, ILO E xpert P r o g r e s s rep o rt of the inform ation pro g ram in the E m ployment Serv ice. The manpower inform ation p ro g ram w as ini tiated in 1956 with ILO guidance. In 1959, monthly r e p o rts on the le v e ls of employment in industry and q u arterly re p o rts on the operation and ad m in istration of the 31 lo cal o ffic es were initiated. Special manpower stu d ies have been conducted in Istanbul and in se v e ra l other region s. The cen tral office estab lish ed a r e g iste r of the prin cipal em ploy ers in the country, c la ss ifie d by industry and region. The ILO occupational c la s sification sy stem w as adopted and a job an aly sis p ro g ram has starte d . O ver 1,500 job an aly se s, out of an estim ated 5,800, have been com pleted. Recom m endations 1. Bureau ch iefs of the regional o ffices should cooperate in the development of adm inis trativ e and operating proced u res of the Em ploy ment Serv ice. 2. Inform ation collected in the v ario u s a r e a s should be sh ared among the region al Employment Serv ice o ffic e s, the different Government agen c ie s , labor unions, and in du strial e n te rp rise s. 3. R ese arch should be starte d on the ru ra l underem ployed in ord er to develop a p ro g ram for the im provem ent of this group of w orkers. 227 N ear E a st and South A sia Turkey O rganization and Function of a Manpower Planning P ro g ram (1962; 18 pages) « ILO Report to the Government of Turkey; IL O /T A P /T u rk ey /R .2 1; J . F . W ellem eyer (United States) A review of available manpower data fo r a manpower development p rogram . In 1960, a State Planning O rganization was estab lish ed in the Office of the P rim e M inister. The State Planning O rganization is com posed of the C entral Planning O rganization and the High Planning Council. The Central Planning O rgani zation p r e p a r e s plan s fo r review by the High Planning Council. It an alyzes data n e c e ssa ry fo r planning p u rp o ses and occasio n ally may collect data. A lso within the State Planning O rganization i s a D epartm ent of Social Planning which a s sem b le s data n e c e ssa ry for manpower p ro je c tions. The consultant a s s is te d in the preparation of a 1-year (1962) manpower development plan and advised on the types of manpower inform ation to be included in the F iv e -Y ear Plan (1963-67). F o r exam ple, he su perv ised the preparation of p rojectio n s by industry and occupation, the tab ulation of a sp e cia l study of the public se c to r, 228 and the an aly sis of unfilled vacan cies a s reported by the Employment Serv ice. Recom m endations con sisted of su ggestion s fo r supplementing and strengthening the work alread y started : 1. The v ariou s types of inform ation needed fo r manpower planning and an aly sis were d is c u sse d . The manpower inform ation program should d escrib e manpower problem s in general and should concentrate sp e cifically on manpower conditions in those se c to r s of the economy which the development plan intends to influence. 2. The adm inistrative organization of a man power planning office and its working relatio n s with other organization s were outlined in detail. The organization should participate in setting manpower g o als in the economic and so cial de velopment plan s. N ear E a st and South A sia Turkey Manpower in Cukurova (1964; 20 p ag es and 16 appendix tab les) A lice W. Shurcliff, AID Manpower A dviser Sum m ary of the manpower situation in Cukurova (P ro vince) and projection s of the labor fo r c e . Population in Cukurova is in creasin g at a fa ste r rate than in Turkey a s a whole b ecause of a higher rate of natural in cre ase and a high rate of net in-m igration. Unemployment has not occu rred , however, becau se of the general p r o s p erity of the region. The ru ral-to -u rb an m ove ment is a re su lt of g re a te r job opportunities in the c itie s rath er than of ru ral poverty. By 1985, half of the population of Cukurova will be living in the 13 m ajo r c itie s. In 1960, 58 percen t of the m ale labor force w as engaged in ag ricu ltu re. It i s estim ated that 1 percent of the ru ra l labor fo rce and 3 percent of the urban labor fo rce are unemployed. Unem ployment is higher during the winter months. F o r exam ple, the M editerranenan V illage Survey of F eb ru ary 1959 found 10 percen t of the men un employed in v illa g e s, and 30 percent employed in jobs outside of their v illa g e s. R elatively few children receiv e education beyond the p rim ary school level prin cip ally b e cau se of the poor distribution of fa c ilitie s. Seven c itie s in Cukurova have no academ ic, com m er c ia l, vocational, or technical sch ools. A la rg e proportion of employment in manu facturing is in sm all family-owned e n te rp rise s in which sk ills are handed down from father to son. M ost la rg e m anufacturing establishm en ts are in traditional in d u stries, such a s spinning, weaving, and m illing, which req u ire relativ ely sh ort p erio d s of on-the-job training. Current demand fo r higher level sk ills com e from the construction industry and from in stallation and re p a ir se r v ic e s. The techniques of making projectio n s of the population and labor fo rce are d escrib ed and a c com panied by tab les. Population is p rojected to 1990 and the labor fo rce to 1975. E stim a te s of employment by industry and occupation a re p ro vided fo r 1955 and 1960. 229 N ear E a st and South A sia Turkey Manpower Planning in Turkey, 1962-1964 (1964; 16 p ages and 4 tab les) E d gar C. McVoy, AID Manpower A dviser A d iscu ssio n of manpower problem s in Turkey and p ro g ra m s to allev iate these p rob lem s. Manpower planning in Turkey is related to two b a sic prob lem s: (a) the supply of trained manpower to m eet in creasin g demand of e c o nomic growth, and (b) overpopulation and unem ploym ent. Manpower p o lic ies and m easu re s in the F iv e -Y e ar P lan (1963-67) are d isc u sse d . Im plem entation of the manpower p ro g ram s has p r o ceeded by in creasin g employment in all sk ill le v e ls. T h is have been accom plished by devel oping nonfarm ac tiv itie s in ru ra l a r e a s , by ex porting su rp lu s lab o r, and by expanding lab o rintensive p ro je c ts. Manpower stu dies have been m ade and placem ent se r v ic e s have been im proved. Several Government ag en cies a re involved in manpower p r o g r a m s . The M in istries of L ab o r, Education, and Industry; the State In stitute of S ta tistic s; and the State Personnel B oard all play an im portant ro le in manpower p ro g ra m s. 230 Recom m endations 1. Concepts of the econom ically active popu lation, employment, and unemployment should be r e v ise d to provide m ore accu rate and com par able data. 2. A household sam ple of the lab o r fo rce should be initiated on a curren t and reg u lar b a s is . 3. An a r e a employment su rvey should be conducted. 4. Information on sp ecific groups of w orkers should be collected, such a s wage and sa la r y w o rk ers and scien tific, technical, and adm inis trativ e personnel. 5. P rojectio n s of manpower requirem ents should be rev ised . 6. V arious m e a su re s fo r im proving m an power utilization and for in creasin g le v e ls of employment a re provided. 7. The variou s o ffices and m in istrie s should coordinate their e ffo rts in the development of manpower p ro g ram s and training. SE L E C T E D READINGS Technical M anuals, Sem inar P roceed in gs, and Manual O rd ers on Manpower, published or sponsored by the Agency for International Development E stablish m en t of National Employment S e rv ic e s in Developing Countries (also available in Spanish) Dem ographic Techniques available in Spanish) for Determ ining Manpower Planning in Developing Countries (also Role of a Lab or Departm ent in Developing Countries Role of Social Security in Developing Countries A Guide to the P reparation of a L abor In spectors Manual The F o re c astin g of Manpower R equirem ents Conducting a L abor F o rce Survey in Developing Countries How to Make an Inventory of High Level and Skilled Manpower in Developing Countries Techniques fo r Determ ining Manpower Skill Needs and T raining Requirem ents Manpower P ro g ra m s and Planning in Economic Development Manpower in Econom ic and Social Growth - P roceed in gs, 6th International Manpower Sem inar (also available in French) Manpower and Employment P o lic ie s fo r Developing Countries - P roceed in gs, 7th International Manpower Sem inar (also available in Spanish) Manpower and Active Employment P ro g ra m s fo r Developing Countries - P roceed in gs, 8th, 9th International Manpower Sem in ars Sym posium on F o rec astin g of Manpower Requirem ents Sym posium on Manpower and the War on Hunger Manual O rder 1612.40.3, Strengthening L abor M in istries Manual O rder 1612.40.4, Manpower and Employment Development ☆ u . S. GOVERNMENT PRINTING O F F IC E : 1969 O - 355-005
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