Background, objectives, structure and functions of the human resources and population planning department within the ministry of national planning and juba valley development Somali democratic republic

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ECA/PHSD/HRP/89/15

UNITED NATIONS

ECONOMIC COMMISSION FOR AFRICA

Public Administration, Human Resources

and Social Development Division

BACKGROUND, OBJECTIVES, STRUCTURE AND FUNCTIONS OF THE HUMAN RESOURCES AND POPULATION PLANNING DEPARTMENT

WITHIN THE MINISTRY OF NATIONAL PLANNING AND JUBA VALLEY DEVELOPMENT

SOMALI DEMOCRATIC REPUBLIC

May 1989

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ECA/PHSD/HRP/8 9/1,5

PART ONE INTRODUCTION

1. The background to and objective of this document are part of the Government of the Somali Democratic Republic relentless and successive efforts mounted during the last VeyearS tO strengthen national institutional

i h

~=KiJ , g national institutional

»!Xa»i-^lef- . Tanaging the development, deployment

and utilization of the nation's human resources.

I'r, I1?,.0? the institution-building agenda is the need

to establish a strong human resources department within a national comprehensive human resources management system.

A remarkable start was in mid 1979 when a UNFPA Needs Assessment Mission (NAM) was commissioned and fielded, wot only did the recommendations of that mission re-emphasized the fact that Somalia's greatest development assets were its human resources, they gave birth to two

wprH^r* ^ J-nWrelat^ projects whose objectives

were geared towards;!/

- Strengthening of data collection, processing and analysis capabilities to provide reliable basic demographic and socio-economic data; and

Establishing a human resources development department with the responsibility for all activities related to human resources development including the rormulation of a comprehensive population and manpower planning policy in line with the country's current and future development goals.

IU wT? J*^ these obJectives into action, the Government established in 1983, the Human Resources Development the Ministrv o« Natil Pli esources Development

bTSwn"1"! the Ministrv o«. National Planning and

to have htL Devel°P^nt- However, due to what seemed L _f n PerhaPS conceptual a series of organizational, administrative, bl h

sLffincr n gonal, administrative,

n^5^™Lf PerhaPS conceptual problems, the newly created Department was down-graded to a sectional level in a re- Gilt^tdtlT Pfocess th*t took place within the Ministry,

to tL or±a±n^lment:' th% ^^^ has been re-elevated to serve a9s,fooPartmSn^al StatUS cnare< with the d

~

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ECA/PHSD/HRP/89/15 Page 2

in 1988 by the Ministry of National Planning and Juba Valley Development. A seminar on Population Development Linkages and Socio-economic Planning in Somalia and a national training workshop on Human Resources Planning Systems, Processes and Techniques were held. The former brought to the forefront the inter-relationships between population dynamics, human resources and development and stressed the need for population planning to be made an integral part of national human reosurces planning through the activities of the Department. The twenty-seven officials who participated at the later, made two major observations regarding the institutional arrangements for human resources management in Somalia. First, they observed that a skeleton of a human resources planning and programming institutional framework existed in Somalia.

Secondly, the need to build up this skeleton and thereby strengthen the framework was a matter of urgency and consequently, stressed that the Human Resources Development

Department's structure and functions would need to be

defined, re-desighed and made fully operational without

any further delay. 1/

5. On the basis of these and other observations made by the workshop participants, a number of recommendations were made. The recommendations touched on measures which needed to be instituted so as to redress difficulties in the areas of human resources policy formulation, implementation and harmoni zation, and to put into place the necessary institutional arrangement and utilization in Somalia. With regards to the institutional requirement, which is the subject matter of this document, the officials

called for the followingsjl/

1. That a working document which should contain clearly defined functions for each of the three departments and suggestive measures that could ensure appropriate linkages in their programmes and activities, be prepared.

2. That the Department of Human Resources Development should be renamed preferably as the "Human Resources and Population Planning Department

(HRPPD) and a new structure be designed taking

into account the observations made by the workshop.

3. That an inter-sectoral policy formulation and co-ordination committee be established by 1990 as was proposed in 1979■ Draft functions and

compoisition of the committee" should be prepared

as part of the working document.

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6. The present document therefore is a direct follow- up action initiated by the Somali Government to put these and other recommendations on the establishment of a strong human resources planning and programming department into effect. .Consequently7 the document defines and designs the central organ for national human resources planning and programming that would ensure the effective mobilization, development and utilization of the-;, Somali

peoples. It is divided into four parts includ-irkj the

introduction. Parts two and three respectively deal with national concerns and other considerations that could influence the structure and functions of the Human7Resources Development Department. The fourth and final part specifies the objective, structure and functions of the Department.

7. This document results from a technical assistance mission undertaken to Somalia between 26 February and 9 March 1989 by the United Nations Economic Commission for Africa (UNECA) through the services of Dr. Toga G.S.

Mclntosh, Economic Affairs Officer in the Public Administration, Human Resources and Social Development Division. The mission was funded by the Somali Government through the OPs UNDP project.

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PART TWO

NATIONAL CONCERNS AND THEIR IMPLICATIONS ON THE STRUCTURE AND FUNCTIONS OF THE

HUMAN RESOURCES AND POPULATION PLANNING DEPARTMENT

Towards the Establishment of the Human Resources Development Department

8e One of the strong observations made by the 1979 UNFPA Needs Assessment for Population Assistance to Somalia Mission (NAM)P and one which obviously have claimed the Government's attention,, was that the "lack of- basic demographic and socio-economic data, inadequate policy attention to population problems, uneven population distribution, lack of education profile for the population, inadequate levels of human resources skills and shortages of investment and management skills have all hindered

the national planning process. "A/ A need therefore existed

for the generation of more information on levels and trends of fertility, mortality, migration and population„ A need also existed for adequate information for planners to study the socio-economic implications of population growth as well as to get a better understanding of the various factors that do affect population changes and distribution.

9O To help meet these needs, the NAM recommended strongly the creation of a Human Resources Department to be located in the then State Planning Commission. The Department was to be given the responsibility for "all human resources development-related activitiesr including the formulation of a comprehensive population and manpower planning policy

in the country „ ".5/

10. Operationally, the Department was expected to primarily undertake assessment studies and to analyse available data for use in development planning and policy formulation.

Four divisions were suggested by the mission as the make

up of the proposed Department. These weres^J

(i) Studies and Research Division to promote economic demographic inter-relationship studies that could lead to sound policy recommendations, contribute to the work of the Central Statistical Office in designing population censuses and demographic/socio-economic survey questionnaires and assist in analysing the results.

(ii) Manpower Planning Division to be responsible for formulating comprehensive short-, medium-

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and ^ long-term.. - national manpower plans,

determining existing sources of manpower statistics, identifying gaps and designing

manpower surveys and studies, assessing existing,

potential and expected labour supply and demand, and studying the implications of manpower planning on the economy and its relationship with

educational planning.

Policy Formulation and Monitoring Division to formulate and follow-up on human resources related, policies, design internal migration policies affecting international migration, new settlement policies and health and related family welfare policies, and study the implementation of these policies and any negative effects.

(iv) Co-ordination Division to be responsible for co-ordinating all the population/human resources related activities in the coantry serving as the main link between the State Planning Commission and the organizations, departments and institutions engaged in data collection and/or research and training in the population

and manpower fields.

11- Consequent upon the observations and recommendations made by NAM, a number of decisions were made by the Government. Among these was the decision to establish a Human Resources Development Department. The major concerns at that time in creating the Department was to strengthen Government's capabilities to evaluate, analyse and ^ disseminate demographic information with focus on fertility and mortality,- evaluation of age and sex data;

evaluation of urban, rural, settled and nomadic population distribution? projection of the total population, labour force and school-age population; and construction of life tableso And hence, a human resources development component was made part of the first UNFPA country assistance

programme to Somalia. This component was made operational

with the creation of the Department of Human Resources Development in 1981 in what has now become the Ministry, of Planning and Juba Valley Development. The initial activities, which were to play a part in determining the:

Department s future structure and functions, included

reports on such topics as an overview of the Population

of Somalia? economic activity patters; populationa nd

labour force projections; and the structure and

participation of the labour force.

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Emerging Population and Human Resources Management Related Issues

12. Following the coming into being of the project, other

population and human resources management-related issues that would have had implications on the future structure and functions of the Department of Human Resources Development- began to emerge. Notable among these were

issues associated with population policy determination

within the planning process; population dynamics and human resources planning? women and special population groups

in development? disequilibrium and distortions in the labour market; and institutional weaknesses for effective human resources management. The general nature of the

concerns of Government on each of these emerging issues are summarized below in order to better appreciate the proposed objectives, structure, functions and staffing needs of the Department as contained in the fourth part of this document.

<i) Population Policy and the Planning Process

13. Consensus has grown among senior Government Officials

that comprehensive population planning is one of the nation's critical planning concerns- Although an explicit national population policy has as . yet to emerge, there are continuous talks of strategies to "deal with the problems

of health, emigration, imigration, fertility, mortality and population distribution all of which have direct bearing on population policies. The Second National Population Conferencec held in Mogadishu 20-28 January 1985, made a number of recommendations which highlighted the importance of population policy determination in the planning process.

Specific recommendations were focused on the need for the Government to take appropriate measures to deal with problems associated with maternal infant and child mortality, fertility and its managementf immigration and urbanization. These would certainly need to be co-ordinated for maximum results.

14. Participants at that Conference also recommended

the establishment of a National Population Council to serve as a major policy co-ordinating organ within the

planning process. The council was seen as the organ which

would assist the Somali Government in setting specific goals for the improvement of patterns of fertility and mortality and the geographic distribution of population that are conducive to personal family welfare - In addition,

the council is to ensure that population factors, variables

and issues are consistently integrated in national,

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regional, arid sectoral social and economic planning. What is even more significant, participants asked that the population-related Departments of the Ministry of National Planning and Juba Valley Development be augmented and strengthened to act as the initiating and co-ordinating unit as well as a technical advisory group to the proposed

council.

15. For the moment? the Human Resources Development Department is the one to take on this responsibility which inevitably would affect its present structure and functions and that would therefore need to be taken into account.

(ii) Population Dynamics and Human Resources Planning 16. More and more discussions have been held between Government officials over the impact of population changes and human resources planning. A critical conclusion which has emerged, and one that could no doubt influence the structure and functions of the Human Resources Development Department is the conclusion that population dynamics can no longer be down-played when the process of linking human resources planning and national development planning is being worked out. Nor could they be ignored during the preparation and monitoring of national and regional

manpower plans and programmes. This point, which was

well received by the concerned officials, was ably stated by Mr. K.V.R. Moorthy, Country Programme Director of UNFPA, Somalia, when he addressed the Seminar on Population Development Linkages and Socio-economic Planning in Somalia in June 1988. In his words, contemporary human resources planning "includes the inter-action between population and socio-economic variable in all development planning efforts and covers inter-alia labour supply dynamics, family formation, the status and roles of women, child labour, labour mobility,, skill levels and training, etc., as well as their interaction with health, nutrition, education, environment, etc."1/

17. in another development, participants at the 1988

National Workshop on Human Resources Planning Systems,

Processes and Techniques endorsed Government * s move to

integrate population planning activities into the activities

of the Human Resources Development Department. As they

saw it, the understanding of the impact population dynamics

had on the nation's capacity to provide human resources

quality enhancing services together with the understanding

of those factors that influence population changes, was

a prerequisite for the formulation of manpower policies.

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Basic outputs of manpower policies such as the provision

of adequate health and nutritional requirements, education, training, income, employment and other social services and infrastructure were said and considered by the

participants to be functionally relates to the size,

structure, location, taste and aspirations of the nation's population.

18. The major concern here was that questions such as the following would need to be addressed by human resources

planners during the formulation aW monitoring of manpower

development and utilization policies.10/

- Do the administrative and technical capabilities and/or potentials existed within Somalia to transform a rapidly growing population into a group of active

producers as well as effective consumers? if not,

how best could that be brought about?

- To what extent could planned and on-going socio- economic development and investment activities absorb or utilize appreciably a growing labour force?

- What were the qualities, composition, structure, trend, direction and frequency of population movements within and outside the nation; and how could these phenomena be incorporated into the formulation of manpower development, allocation and utilization policies?

- What types and structure of institutions and legislations were required to allow for the appropriate analysis, guidance and co-ordination of the issues raised in the above-listed questions?

19. The Human Resources Development Department would need to build the requisite capabilities to deal with these questions. This would need to be taken into account.

iii) Women in Development

20. No other issue has aroused so much discussion and yet so little disagreement as the issue of maximizing the women of Somalia contribution to and benefits from the development process. At the operational level, some concrete actions have followed these discussions. A Women's Education Department has been established in the Ministry of Education which operates about sixty Family Life Education Centres throughout the country. The primary

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Page 9

aim of these Centres is to foster a literacy programme for wonenf provide non-formal education and training services and advise on ways for increasing female workers' productivity„ Along-side this* is the Somali Democratic Women's Organization (SWDO) which is mainly engaged in skill training with the view to improving income generating opportunities for the women of Somalia. To support these two major women organs, there are several other on-going women activities and units including the Somali Women■s Research Unit in the Somali Academy for Arts and Sciences.

21. What remains a major concern to Government is the need to establish a central women co-ordinating unit that would be an integral part of the national planning machinery. The importance of establishing such a unit was recognized and the idea endorsed by the UNFPA Needs Assessment Mission to Somalia (UAII) . The initial feeling then was that the unit could be best suited in the Social Welfare Department of the Ministry of Labour and Social Affairs but working in full co-operation and co-ordination

with the SWDO and the then anticipated Human Resources

Development Department. The Heeds Assessment Mission went as far as suggesting the key functions of the unit.

It was to be charged with the responsibilities to "guide policy, undertake research, design training courses, and ensure the co-ordination and examination of programmes

related to women, (their) employment and development"11/

and a number of activities were also suggested as those

to be performed by the unit in carrying out the suggested responsibilities ._£±/

22. Following the missiond s report^ the issue of establishing a Women Unit has been discussed in different fora particularly, with regards to the Unit's location and function. As mentioned earlier, participants at the seminar on Population Development Linkages and

Socio-Econonic Planning,. which was held in March 1988

in Mogadishu, had considered the issue of women in development and had recommended that the activities of the Human Resources Development Department be focused not only on human resources development, but also on initiating action for the integration of women in the development process. When the national UNICEF Project Directors and UNICEF staff met in August 1988, at their first annual review of UNICEF assisted programmes, the question of women in development and the creation of a central co-ordinating women unit came up again. It was agreed and proposed at that meeting that the unit should be established within the Human Resources Development Department and be made to offer greater opportunities

for improving the co-ordination of all womenas programme.11/

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23. What needs to also be kept in mind is tnat the new UNICEF country prograrane support to women's development in Somalia is targeted at the Institute of Women"s Educationp the Somali Women's Research Unit and the Somali Women's Democratic Organization* Certainly? the concerns of Government to have the activities of UNICEF and other supportive activities to the women cause co-ordinated and integrated within the planning process would have direct consequences on the functions and structure of the Human Resources Development Department,

(iv) Labour Market Distortions and Disequilibrurn

24. Preliminary studies have revealed that the Somali labour rtarket is out of equilibrium- Also revealed are distortions which exist, for the most part, between wages and marginal productivity of labour. There are a series of undesirable consequences from the problems of disequilibrium and factor input distortions. Among these are 5 {i) a growing unemployment problem in both the rural and urban areas; (ii) the shortage of qualified;, trained and motivated workers existing simultaneously with surplus unutilised labour; (iii) massive and continuous brain drain of technically qualified Somalis to the Gulf and other countries; {iv} a growing number of unemployed and under-employed secondary and post-secondary school graduatess and (v) a stagnated marginalized but influential

informal sector. 1A/

25= The implications of the above-listed consequences on national planning and development are well known to the Government. They have.- in recent years t become subject of concern. The 1907 Annual Development Plan openly recognized that problems associated with the shortage of skilled and trained manpower were serious impediments to development programme„ The need for better co-ordination between education and training activities on the one handf and manpower planning activities on the other, was

accordingly stressed by the plan.-15/ Government's concern

to have the problem redress is reflected in the basic manpower and employment objectives as laid down in the 1987 Annual Development Plan i.e. "to continue to integrate manpower training programmes with the employment generating need of the country01 (p. 214) . Accordingly, Government

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policies and strategies call for an improvement in the quality of education and training on the one hand, and a strong data base and manpower and employment planning

capabilities on the other.±§/ The seriousness and the

dychotomy posed by the resulting consequences of a distorted and imbalanced labour market were discussed critically at the National Workshop on Human Reosurces Planning SystemsP Processes and Techniques held in December 1988.

It was observed during the workshop that the labour absorptive capacity of the economy was far too small as compared with a rapidly growing labour force. The public sector, which had become the predominant employer, had reached a saturation point. The private sector on the other hand, was relatively small to provide a viable

replacement.11/

26. It was further observed that appropriate policies to deal with the problems of unemployment and the brain drain were not clearly stated nor were there institutional arrangements and adequate data to have the policies properly formulated and/or implemented if they were. On this policy

issue-, the participants had the following to saysJL§/

1 o That though the Government had come to recognize the vital role of the human factor in the ocuntryg s development process, there was one area where much work was still needed to be done. Policies and strategies to increase the utility rate of the Somali human resource base would need to be formulated and

implemented= At present, available human resources

in the country were being under-utilized and the labour market as a whole in disequilibrium. There is a growing trend in the rate of educated unemployed and tremendous human resources leakage from the economy. Much of the problem result from the combined effect of an inappropriate education system to produce the manpower needs of the country? the inability of institutional arrangements to properly allocate the available scarce human resources in needed places;

inadequate programmes and systems to mobilize, retain and motivate the required staff; and the indidivudal preference to drift out of the labour market in search of better ways to fulfil his/her basic needs. Given that the effective use of the Somali human resources base provided the country with the most durable and viable strategy for accelerating and sustaining a

development process,, appropriate incentive packages

would, therefore,, need to be designed and human resources management practices improved upon taking

into account the structure and needs of the Somali

workforce.

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Page 12

2. Employment issues were not given adequate, consideration in the design and selection of development projects and programmes. There are cases where the social consequences of selected projects and programmes are high. It was concluded that if these projects and programmes were intended to raise the living standards of the Somali people, then the people's welfare and wellbeing should be their ultimate concern with emphasis on employment generation and social development projects and programmes.

Consequently, Government1s recent initiative to have the Human Resources Development Department to look into the social consequences of projects and programmes is welcome. However, greater collaboration in and co-ordination of activities with other concerned agencies would be required in the discharge of this

mandate."

27. To appropriately deal with the manpower and employment objectives as well as with the concerns of the workshop participants, would require first and foremost, a systematic approach to human resources planning and programming.

The decision to do so would certainly influence the structure and functions of the Human Resources Development

Department.

Institutional Weaknesses and Disintegration

28. The issue of strengthening institutional capabilities tor human resources management in Somalia is of great concern to the Government, and has become the focal point

of technical assistance programmes to Somalia. This

notwithstanding, it was only recently when the issues of co-ordination, institutional systems and processes, and the relationship and linkages of the Human Resources Development Department with other Departments were discussed

in a coherent manner.

29. A major breakthrough in the discussion came during

the national workshop on Human Resources Planning Systems,

Processes and Techniques. Participants at that workshop

reviewed the structure of those key departments that are

responsible to carry out human resources planning and

programming functions. Regarding the effectiveness of

the system, one major observation, which is of great concern

to the Government, was mades that the institutional

machinery for human resources planning and programming

was weak. Major contributing factors to this state of

weakness as identified by the participants, included (a)

the lack of usable data? (b) an inadequate process of

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co-ordination and collaboration between the various responsible organs,° (c) inadequate programmes and systems to mobilize, retain and motivate the staff, and (d) unclarity of functions and lines of accountability and

responsibilityc

30„ A critical national concern is that a weak and disintegrated institutional rramework brings with it ineffective human resources policies and prograrnmes let

alone wasted resources. As such, there has been a constant

call by the Government for the strengthening of the machinery. It is not surprising therefore, that the second UNFPA/ILG country programme project calls for the

development of an appropriate organizational structure

of the Hunan Reosurces Development Department with clear specification of its responsibilities and linkages with

other departments,11/

The structure,- functions and staffing requirements

of the Department of Human Resources Development would have to undoubtedly take into account factors that have

led to the above-mentioned concern.

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PART THREE

OTHER GLOBAL CONSIDERATIONS AND ASSUMPTIONS:

GUIDELINES FOR DESIGNING THE STRUCTURE, FUNCTIONS AND STAFFING REQUIREMENTS OF THE HUMAN RESOURCES AND POPULATION PLANNING DEPARTMENT

32. There are other qlobal considerations in addition to those expressed by Government as outlined in part two.

These considerations must also be taken into account when the Department is being designed- Furthermore, any given set of consideration must be placed within a set of assumptions regarding not only the Government's attitude for human resources management, but also regarding the present and future staffing capabilities of the Department*

A brief analysis of the nature of these global considerations are made first, to further serve as a guide for understanding the structure and functions of the Department as shown in part four7 and secondlyr to stress the point that the restructuring exercise would need to be performed along certain guidelines that would reflect contemporary thinking on human resources management as a system of interrelated processes in the development of the Somali economy.

(i) Data Collection

33= The Statistical Act of Somalia en-powers the Central Statistical Office, now the Department of Statistics located in the Ministry of National Planning and uuba Valley Developments with the overall responsibility to collect and process statistical data for national planning purposes including human resources planning- Over the years, the Ministry of Labour, through its Manpower Planning Department, has embarked upon data collection exercises with focus on manpower utilization statistics. The Planning Department within the Ministry of Education has also been active in the collection of human resources development statistics and is presently in the process of strengthening that capability. h major point which needs to be made from these remarks is that the extent to which each of these respective organs collect and process statistics would in turn determine the extent to which the Department of Human Resources Development could go in the data collection and processing sphere.

34O Besides, there are different major sources from which manpower data may be derived. These include population, household, industrial and agricultural censuses and surveys;

government and non-governnontal administrative records?

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Page 15

scholarly research papers; and manpower surveys. Again, the extent to which these sources are developed and maintained, would determine the extant to which the

processing. ^^ 9° '" ^ area °f data «*lecti«!n and

35. The mere existence of other data collectina araan*

and the various data sources have a signifS^implication

in designing the structure and functions of the Department The necessary provision would need to be made for tie Department to fully participate in the organization of

censuses and surveys whose results are of direct interest to the Department, but are to be undertaken by other argils In other words, functional capabilities and functional linkages would have to be incorporated in the ta

and functions of the Department to allow it to get involve -

x a

ManagMPnti A SvSi-Pm approach

•HJHLIfs "=•

(i) The human resources planning subsystem to be responsible for (a) balancing the equations

Lab°delrd ^ S1 d ( l pyandr ^ ,Pp*' a"d (b) ^ttlng

%2t ?Y ^ operational guidelines for the development and utilization of a quality human

(ii) ThrUHCS b3Se f°r nati°"al development y ^

Ui) The human resources development subsystem to

be responsible for the production ofsertoral

'mtfliZatiO" °f res— and execution _education,

_cati ^{— and}_tii

_training

^ t nutrition' and environment 9

The human resources utilization subsystem to be responsible for the activities that woul£

actually identify and place workers and monitor

l^3 i' ?°lici- that would Chl

and

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Page 16

37. As indicated, these three subsystems are interrelated and dependent upon each other „ The Department of Human

Resources and Population Planning would be the focal point

for the human resources planning subsystem. Consequently?

in designing its structure . and functions,- one ought to bear in mind the need to develop within the Department

capabilities tos

Develop a manpower and labour market information base upon which the management of human resources in Somalia in relation to other natural reosurces, would be planned for national development;

Analyse, monitor, co-ordinate and evaluate national and regional manpower management data policies, programmes and plans, and specify alternative measures and strategies that would optimize national human resources development and utilization efforts for the effective implementation of on-going and anticipated

projects,0

Draft plans, policy statements and strategies for mathcing human resources and jobs in the Somali labour market? creating employment opportunities? increasing labour productivity;

and developing requisite human skills, knowledge and attitudes {human resources);

Provide technical service and advice to sector ministries particularly those that are part of the other two subsystems, towards the initiation, formulation and harmonization of human resources development and utilization

programmes and policies in Somalia.

38 „ Also to be kept in mind are issues of accountability, productivity and operational linkages. Provisions will have to be made to ensure, a system of accountability preferably through a policy organ, but for now, this could be done thorough the Department given its central role in the human resources planning subsystem. On the question of productivity staff employed within the Department would need to be well qualified for the job to which they are assigned, properly motivated and nanaged for effectiveness and efficiency; and given clearly defined assignments.

The need for collaboration, consultation, co-ordination,

exchange of materials and views and inter-departmental

meetings cannot be overemphasized in ensuring appropriate

vertical and horizontal linkages within and among the

various parts of the human resources management systerru

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(iii) Basic Assumption

39. One basic assumption underlying what has been said so far and the structure and designated functions of the Department as shown in the next session is that jthere are or would be an appreciable level of knowledge, skills, attitudes to effectively operate the human resources management system in general and the Department of Human Reosurces and Population Planning in particular.

40. Currently (March 1989) there are fifteen (15) core staff members in the Department supported by one accountant, one secretary and one typist. Three out of the fifteen are holders of Master's degrees; one in the field of economics, one in live-stock and rural development and environment, one in management. One more staff, currently in training, is expected to complete the Master's programme by September 1989 in manpower planning. There are eight (8) members of staff who hold Bachelor degrees with 50 per cent or four in' the field of economics. The remaining 50 per cent fields of study are as follows: one in languages, one in statistics and commerce, one in law and one in geography. The work of these twelve professional staff is supported by three junior officers all holding diplomas in statistics.

41. The nucleus of the staffing foundation seems to be in place. However, a systematic staff development programme will have to be initiated and executed. While this is a condition, it is not a sufficient condition to adequately staff the Department. First, a few more staff preferably in the areas of population planning, women and development and sociology, would need to be recruited and added to the existing team. Secondly, the task to be performed by individual staff would need to be clealry defined, stated and delegated with a scheme for accountability deviced. From ' time to time, the assigned tasks would have to undergo review. Thirdly, a conducive working

environment would need to be ensured to bring out the

best in the staff. in real terms, salaries are low and

logistical support are far too short of requirements and

these will have to be looked into.

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PART FOUR

OBJECTIVES, FUNCTIONS AND STRUCTURE OF THE HUMAN RESOURCES AND POPULATION PLANNING DEPARTMENT (HRPPD)

1- Development (Long-term) Objective

42. The Department is to contribute towards the achievement of national socio-economic development goals as would be established by the Government of the Somali Democratic Republic. This would be done by ensuring an effective human resources development and utilization process on the one hand, and on the other, by ensuring from time to time, viable population and social policies and management programmes within the framework of national development objectives, programmest plans and available

resources.

2, Operational (Short and Medium-term) Objectives

43. In line with the development objective, the operational objectives of the Human Resources and Population Planning Department for the next decade? would be to ensures

(i) Greater Government and public awareness on (a)

the importance of the role of human resources in the development process, and (b) the inter relationships between human resources, population dynamics, social development and national

development trends and patterns?

(ii) Harmonization and co-ordination of all national human resources planning, development and utilization, and population and social welfare related activities?

(iii) Integration and incorporation of population,

human resources and social development issues and programmes into national development plans and programmes?

(iv) Implementation of policies and programmes related to population planning, women, youth and other vulnerable groups in development, human resources management and social development?

(v) An effective staff development and staff

management programme within the Ministry of National Planning and Juba Valley Development.

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3. Functions of the Department

44» The Department of Hunan resources and Population Planning is to perform the following functions in order to achieve the above-listed opei^ational objectives?

ii} To identify and appraise the Minister on the implications of national„ regionalB and international programmes, projects and plans and how they affect (a) the size, composition and wellbeing of the labour force and the population^ (b) social welfare development trends and patterns ? and £ c) the participation of women and other special population groups in the development process,0

(ii) In liaison with the Department of Statistics, Ministry of Education and Culture, Ministry

of Labour and Social Affairs and any other relevant manpower and social data collection agency, develop and build up an information and statistical base and a data reporting system upon which the nation:s population dynamics, human resources and social welfare would be managed to foster national socio-economic

development?

{iii) Initiate, and in collaboration with the relevant sector ministries and agenciesp formulate national

manpower,■ population and social policies, plans, programmes and strategies, and incorporate these

into overall national socio-economic development

processes and plansi

(iv) In collaboration with the relevant sector ministries and agencies, prepare, review, monitor and co-ordinate the implementation of the social sector chapter of the national development plan?

(v) Review and __ analyse national socio-economic development plan objectives and sector policies,

programmes and plans, and determine their aggregate human resources requirements as well

as their demographic and social implications and advise on alternative strategies for dealing

with them; ■■■ -

(vi) Prepare project briefs and documents and identify

and liaise with funding agencies to strengthen

overall institutional capacities and programmes

for effective national human resources, population

and social development planning and

administration;

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ECA/PHSD/HRP/89/15 Fago 20

(vii) Monitor, co-ordinate, evaluate and collaborate

in the activities of government and non-government agencies responsible for education and training, manpower allocation, and social welfare and population programmes with emphasis on the identification and development of programmes?

(viii) Assist responsible sectors/agencies in producing guidelines and strategies for creating a quality labour force; generating productive employment;

increasing labour productivity and income? and improving the social conditions of the population ,°

(ix) Co-ordinate and follow-up on regional and sub- regional co-operation activities in the fields of human resources planning,. development and utilization; women and special population groups in development? and population changes, flows and distribution;

(x) Perform any other related function as may from time to time be assigned by the Director General.

4- Structure of the Department

45. The Department of Human Resources and Population Planning is structured into three sections with each section having operating units as follows:

Sections t

- Demographic and Social Development - Data and Special Studies

- Policy, Programming and Monitoring Units

A. Demographic and Social Development Section (DSD) (i) Population Planning Unit

(ii) Women and Special Groups Unit (iii) Social Services Development Unit B. Data and Special Studies Section (DSS)

(i) Data Collection and Processing Unit (ii) Projection and Publication Unit {iii) Research and Special Studies Unit

(22)

C. Policy, Programming and Monitoring Section (PPM) (i) Education, Training and Staff

Development Unit

(ii) Employment and Productivity Unit (iii) Monitoring and Evaluation Unit

46. The associated organizational chart of the Department

would be as follows 5

! Director

Demographic &

Social

Population Planning

Women & Special Groups

Social Services Development

' D/Director

1 Data and

; Special Studies

- Data Collection

& Processing - Projection &

Publication - Research &

Special Studies

Policy, Programming and Monitoring

Education, Training Staff Development Employment and

Productivity Monitoring and

Evaluation

(23)

5. Functions of Sections

A. Demographic and Social Development Sections

47. The Section is expected tos

- Study and analyse social conditions? demographic.

trends and health data, and report on their macro policy and programme implications to be used in the preparation of periodic national development

plans i

- Review, harmonize, co-ordinate and if need be, collaborate in the activities of governmental and non-governmental agencies/institutions responsible for social welfare programmes, women affairs, youth and other vulnerable groups in development? and

population management programmes;

- Prepare in consultation with relevant ministries, agencies and institutions, periodic backgorund and briefing reports on, as well as guidelines for, improving social conditions, the participation

of vulnerable groups in the development process,

and the management of population flows and

distribution?

-Develop guidelines, initiate and follow-up on the necessary action for the establishment and operation

of a National Population Council?

- Perform any other related function as may be assigned

by the Director of the Department.

B. Data and Special Studies Section

48. The Section is expected tos

- Initiate, schedule and collaborate and participate in the planning, and if necessary, the conduct and processing of manpower surveys, demographic surveys, household surveys and related studies;

- Undertake policy-oriented research and follow-up

studies on special topics and projects as may from

time to time be required, and determine their impact

and consequences on national human resources

development and utilization programmes, and the

social conditions of the population?

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ECA/PHSD/HRP/89/15

Page 23

- Determine future manpower supply, demand and social conditions and prospects-,- and forecast the impact of population changes and flows on medium and long- term national soci-economic and human resources

management policies and plans?

- In close collaboration with the Statistics Department and other relevant ministries and agencies, assemble, collate, edit, tabulate, analyse and periodically publish basic human resources development and utilization data, population data and vital and

social statistics;

- Establish, develop, maintain, update and operate a viable human resources and population data bank and information system;

- Perform any other related function as may be assigned by the Director of the Department.

c* Policy, Programming and Monnitoring Section 49. The Section is expected tos

- Initiate necessary steps and follow-up on decisions and procedures to ensure the integration of human reosurces, population, social development and women and special groups management policies, strategies and programmes into national sectoral development

management plans, strategies and programmes;

- Review and analyse national and international reports, studies, surveys results, working documents and technical assistance perspectives and proposals and (a) identify opportunities and strategies for collaboration and co-operation in manpower development and utilization, and (b) develop policy guidelines and briefings for the formulation and re-fcumulation of national human resources, population and social welfare management policies within the framework of national development priorities, plans and institutions;

- Monitor, evaluate and report on the implementation of programmes, plans, projects and Government directives relative to human reosurces development and utilization, participation of women and special

development; ^^ ^ develoPment< ** social

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- In close collaboration with the Personnel Section and other Departments within the Ministry of National Planning and Juba Valley Development,- develop, programme and co-ordinate staff development, deployment and utilization programmes and plans;

- Perform any other related function as may be assigned by the Director of the Department.

6* Functions of the Units:

A, Demographic and Social Development Section

(i) Population Planning Unit

50. The Unit is expected tos

- Collaborate with the Department of Statistics and if necessary, participate in the planning of national population censuses, demographic surveys and studies as well as in the processing of results;

- Study and assess fertility, mortality and migration levels and trends, problems of uneven population distribution, external and internal migration and the inter-relationship between population growth and socio-economic indicators, and prepare reports and briefing notes on their impact and consequences for income generation and distribution, urbanization and distribution of social facilities;

- Follow-up on and co-ordinate population-related

activities, and report on their rate of

implementation during the annual review exercises of development plans or as may be required by the Minister;

- Organize awareness arid training workshops, seminars and conferences ath national and regional levels on population policy dynamics and planning, and the inter-relationship between population and national development with a view to ensuring a wider understanding of the relationship between

population growth and the quality of life of the

population;

- Initiate steps and take follow-up actions on the establishment of the National Population Council, and propose guidelines for the formulation and implementation of population policies;

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ECA/PHSD/HFP/8 9/15

Page 25

- Perform any other lelated function as may be assigned

by the Head of Section.

(ii) Women and Special Groups Unit 51. The Unit is expected tos

- Collaborate with the appropriate agencies and institutions in the planning and organization of awareness seminars, workshops and conferences on

t?latXOn °f W°men and th il

^ences ^on

«rnim« ?i °men and °ther sPecial population

groups involvement m policy making and development, and on the integration of women, youth and the nomadic population into the process of national development ?

- Review and co-ordinate at the policy making and programme management levels, ongoing and future projects and activities involving women, youth

and the nomadic population in development/ and to ensure that these groups participate in the design, implementation and evaluation of such

programmes;

™™? ^ - a.d StatUS of women< vouth an<3 nomadic

population in the labour market by sector, region and economic activities, and the interaction between changes in the role and status and changes in their demographic and social behaviour;

Identify, analyse and report on the structure and characterstics of the female labour force as well

™*o« d^tef^inants of female labour participation

fn tL a i S that hinder WOrnen Participation

in the development process?

Review data on ongoing and planned projects and if necessary, participate in the identification and designing of programmes and projects as well as in the programming of donors inputs concerninq

ensure ^ ^ ^ nOna<Uc ^lati™ *° as

ensure that . .the&e ,-. are harmonized and are in

conformity with national objectives and policies;

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ECA/PHSD/HRP/89/15

Pago 26

Social Services Development Unit 52. The Unit is expected tos

- Collaborate with appropriate agencies and institutions in the identification and formulation of social development objectives, policies and programmes which would contribute to the physical, mental and social wellbeing of the nation(s human

resources; particularly, in the areas of health

services, housing and social security;

- Co-ordinate the programming and implementation of social sector plans and the various social welfare activities, and follow-up on evaluation reports, Government's directives and guidelines and report on the impact of these on adopted national social policies and the social wellbeing of the population,0 - Review and synthesize the various social welfare

and development programmes and activities, and prepare periodic consolidated reports on social conditions, trends and problems with suggestions for dealing with them;

- Consolidate the various social services sector plans, and prepare, in collaboration with the relevant agencies and institutions and with other units within the Department, the social sector chapter of the national development plan;

- Co-ordinate the implementation of social development plans, undertake the annual review exercise relating to the implementation of the social sector chapter in the national development plan;

- Perform any other related function as may be assigned by the Head of Section.

B- Data and Special Studies Section

(i) Data Collection and processing Unit 53o The Unit is expected tos

- Specify the type, scope and nature of information required for formulating, co-ordinating and monitoring policies and programmes in the areas

of population and speciali zed population groups,

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ECA/PHSD/HRP/89/15

27

education, training, employment, income, health services, and housing, and if need beP participate in the design, preparation and conduct of related

censuses and surveys to collect the required information;

- Determine, in consultation and collaboration with the relevant agencies, guidelines for the development of respective instruments and approaches for conducting manpower, demographic, education and social surveys and studies;

Assist relevant agencies and establishments in and feed into the design of forms for personnel and ^ social administrative record keeping as well as in the construction of sampling frames and sample designs for collecting the required data;

- Retrieve raw data, code, breakdown, tabulate and

present same in accordance with specified

classification form and format that would facilitate (a) manpower development and utilization planning, policy formulation and policy management; (b) population planning and policy formulation; (c) social and special population group programme development and administration? and (d) monitoring of planned objectives and policies;

- Perform any other related function as may be assigned by the Head of Section„

<ii) Projection and Publication Unit 54. The Unit is expected tos

Establish, develop and operate a viable human resources development and utilization and social development data bank and information system, and maintain appropriate linkages with other sectoral data collection agencies and units;

■- Review and up-date estimating and forecasting

techniques and methodologies and with them, assess,

estimate, project and forecast employment and

manpower supply and demand conditions, population

trends, mobility and social welfare conditions;

(29)

ECA/PHSD/HRP/8 9/15 Page 28

Edit* reproduce and publish sector and national manpower and employment plans,, the newsletter g survey and research reports and other human resources, population and social data gathering and information sheets that may be produced by the various sections and other ministries and agencies;

Developt maintain and operate a reference library within the Department;

Perform any other related function as may be assigned by the Head of Section.

(iii) Research and Special Studies Unit 55. The Unit is expected tos

- Define and standardize labour force* population and social development concepts and indicators within the context of national realities and conditions;

- Review and analyse national and international reports, economic and production surveys,- on-going and planned development projects and national development objectives and strategies„ and identify and report on their implications for and consequences on programmes and policies for human resources development and utilization? social welfare development? and population growth, mobility and distribution?

Prepare consolidated periodic reports for inclusion in the the Ministry?

national manpower annual reports of

Initiate and undertake policy-oriented research and follow-up studies on special topics and project related to human resourcesr population dynamics and social welfare, and report on their policy and management implications for national development within the framework of planned objectives and policies;

Undertake any other relevant study that may- be assigned by the Head Of Section'.

(30)

c* Policy, Programming and Monitoring Section

(i) Education, Training and Staff Development Unit 56. The Unit is expected tot

- Review manpower plans, projections and profiles, production plans, manpower inventories, results of education research and trianing needs analysis

and (a) determine their1 implications for

strengthening national education and training systems, and (b) design and develop guidelines for the formulation of education and training policies and programmes to ensure a quality work force?

- Identify gaps if they exist, in the provision of education and training, and liaise with the Ministry of Education and Culture together with other relevant

institutions in the planninge formulation and

assessment of education objectives, priorities and programmes making sure that these are in conformity with national manpower and employment priority needs;

- In collaboration with the Ministry of Education and Culture and any other relevant organ and

institutions, develop guidelines for the application

and granting of internal and external scholarships;

- Receive and co-ordinate internal and external scholarship offers and participate in the selection

of candidates for awards;

- Determine the manpower and training needs of the Ministry of national Planning and Juba Valley Development, and develop in consultation with

concerned units, a manpower recruitment and training plan for the Ministry, and co-ordiante its implementation;

- Perform any other relevant function as may be assigned by the Head of Section.

(ii) Employment and Productivity Unit

- Collaborate with appropriate agencies and organizations on the identification and development of policies, programmes, projects and strategies that would improve workers* performance and ensure

greater productivity?

(31)

ECA/PHSD/HRP/89/15

Page 30

- Co-ordinate the implementation process of adopted national employment and labour productivity policies and programmes, and follow-up on evaluation reports and guidelines for enhancing their level of

effectiveness;

- Initiate, undertake and analyse labour market studies, and make labour flow adjustments with emphasis on (a) programmes and strategies to deal with available and potential job opportunities within the economy; and (b) factors and policies (i.e o population growth rates , personal incomes, pricing and investment policies, etc.) that influence labour supply and labour demand in both the urban and rural labour markets and the formal and informal

sectors of the economy;

- Initiate and develop in collaboration with the Ministry of Labour and Social Affairs, measures and policies for income and employment generation and distribution and increasing labour productivity;

and if need be, participate in the formulation and preparation of national and sectoral development objectives; policies and plans in relation to employment and labour productivity;

- Analyse income, establishment and labour force survey and research reports and manpower projections and develop programmes and strategies for meeting identified needs, within the framework of national

development plans;

- Perform any other related function as may be assigned by the Head of Section.

(iii) Monitoring and Evaluation Unit

- Periodically prepare, issue and follow-up on general guidelines for the preparation and implementation of sector manpower and social welfare plans and

reports;

- Service the proposed Human Resources Development Co-ordinating Committee;

- Initiate and assist in the establishment and

strengthening of human resources planning and

programming units in sector ministries and major

public enterprises, and provide backstopping

technical services as and when the need arises;

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u ECA/PHSD/KRP/89/15

Page 31

Monitor and evaluate the planning and execution of government and non-governmental projects, plans^

strategies and programmes dealing with human

resources development and utilization,, population

flows and distribution, social welfare development, and womenP . youth and the nomadic population, and

report on progress made, constraints and alternative

measures;

Perform any other related function as may be assigned

by the Head of Section.

(33)

FOOTNOTES

I. Ministry of National Planning \- Juba Valley Developmentg "Report on the Proceedings of a Seminar on Population Development Linkages and Socio-Economic Planning in Somalia; iMogadishu, June 1988; P. 13

2 . UWECA; Report of the National Training Workshop on Human Resources Planning Systems, Processes

and Techniques in Somalia;

ECA/PHSD/KRP/38/23[6.1 Oh (B)]; Addis Ababa, December, 1938; P. 59

3. Ibid? P. 5

4. UNFPA; Report of the Mission on Needs Assessment for Population Assistance; Report No. 22;

New York, October 1979; Po 12 5. Ibid; P.2

6. Ibid; pp.24 and 25

7. Sea the "Report of the Second National Population Conference in Somalia (Recommendations)"

Population, Planning e.nd Alternative Futures";

(memeo); Mogadishu, January 1985, pp. 2 and 3

8 = MNP & JVD; Report of the Proceedings of a Seminar on Population Development Linkages and Socio- eocnomic Planning in Somalia; Mogadishu, June 1988; p. 12

9. UNECA; Report of the National Workshop on Human Resources P lanning Systems, Processes and Techniques iu Somalia; ECA/PHSD/HRP/88/23[(6.1)

OA (b)]; Addis Ababa,"December 1988; p. 43

10. Ibid; pp. 43 and 44

II. UMFPA; Report of the Mission on Needs Assessment for Population Assistance; Report No. 22;

New York, October 1989, p=3 12. Ibid; pp= 63 and 64

13. MNP & JVD; Annual Review of the UNICEF Assisted Programmes in Somalia; Mogadishu, August 1983;

p, 20 14.

15. MNP & JVD; Annual Development Plan, 1987, Mogadishu, January 1987, p. 213

16. Ibid; pp. 214 and 215

17. UNECA; Report of the National Workshop on Human Resources Planning Systemsr Process and Techniques in Somalia; op.cit.; p. 17

18. Ibid; pD2

19. Somali Government; "Project Request from the Government

of the Somali Democratic Republic to UNFPA1'

(draft); Mogadishu, 1906? po9

(34)

ECVPH3D/HRP/39/15

I

To Mr. Jo0 iUyegbusx

PPCO Chief

Throughs Dr. Sadig Rasheed, Chief

PHSD

From Toga G.S. Mclntosh PKSD

Subject= Mission Report to Mogadishu. Somali, 26 February

- 9 March 1989 r

Background to the Objective of the Mission

n ^S ln resP°nse to the Government of

^ it Democratic Republic request made late December to the Executive Secretary of the ECA for assistance following the National Workshop on Hunan Resources Plan'niHq Systems, Processes and Techniques. The workshop was' held

8-17 December 1938 also with ac« assistance" and" 'the

participants called on the Government to take the necessary action in strengthening human resources plann-nq and programming capabilities. Needless to say that this oromct

move by the Government and the quick respite of the EGA

to the request are manifestations of the high degree of seriousness and commitment on the part of both parties

towards placing the human initiative at the core of national

development efforts. national

Terms of Reference and Organization of Work

The mission arrived on Sunday, 26 February and held

discussions on Monday, 27 February in connection with the Government's needs and the mission's terms of reference Discussions were held with Mr. Hussein Elabeh Fahie'

fCt0/GUNpPAlpff _n' _! _Project,- Mr. Abdirahman Mohamad Harsame, lan»i"S; M- S. Chidambaram.'

«nH m Dt,reCtOr' Human Reosurces Development Department and Mr. Nuram Mohamed Ahmed, Economist, Human Resources

?u r, draft, was further discussed on 1 March the,...Director of the Department of H

established and

reached to call the

(35)

ECVPESD/KRP/8 Annex I

Page 2

Department the Human Reosurces and Population Planning Department. The mission was accordingly, expected to prepare and submit a report containing?

(i) the long and medium-term objectives of the Human Resources and Population Planning Department;

(ii) a new structure for the Department taking into account the various recommendations made in connection with its establishment and expanded duties; and

(iii) detailed functions of the Department? the associated sections and units.

Organization of Work

In carrying out its task, the mission reviewed past reports and studies that had been prepared in respect of establishing and strengthening the Human Resources Development Department. Consultations were also held with appropriate officials in the Ministry of Labour and Social Affairs, and the Ministry of Education and Culture and UNFPA. Personal interviews with staff of the Human Resources Development Department were conducted and a working session with the Department staff as a group was held to solicit views and to explain to the staff the preliminary proposals and to get their reaction. A first draft of the report was prepared and discussed with the senior staff of the Department and later on, with the Director General for Planning prior to the mission's departure from Somalia. Inputs from other colleagues within PHSD were solicited and the final document prepared.

Acknowledgement

The mission is indeed grateful to the following persons who particularly provided valuable assistance during its works

Ministry of National Planning and Juba Valley Development 1. Mr. Hussein Elabeh Fahie - Director General? M.N.P.

& J.V.D.

2. Mr* Abdullahi M. Yahie - Director, Human Resources Development Department

(HRD)

3. Mr. S, Chidambaram - CTA, UNPPA/ILO Project and Manpower Advisor

4. Mr. Abdullahi Isse Affi - Economist, HRD

(36)

ECA/PHSD/HRP/89/15 Annex I Page 3

5. Mr. Abdirahman M. Warsame 6. Mr. Nurani m. Ahmed

7. Ms. Dahabo Yassin Jama 8. Ms. Khadija Dayah Addawe 9. Ms. Halimo Mohamud Ibrahim

- Economist, HRD - Economist, HRD

- Human Resources Devleopment Dept.

- Project Secretary

- Secretary of the Department

Ministry of Labour and Social Affairs

1. Mr. Hassan Mohamed Ali Keynan - Director, Manpower Planning Department 2. Mr. Mohamed Isse Mohamed - Head, ■< Manpower

Assessment Service

Ministry of Education 1. Mr. Ali Hassan Ga'al 2. Ms. Sherley Burch-Field

- Director, Dept.

- IEES Project„ USAID Planning

UN Agencies

1. Mr. K.V.R. Moorthy 2. Mr. Ali Yusuf

3. Mr. Dahir Warsame

Country UNFPA Programme UNDP

Research World Bank

Director, Officer, Assistant,

Output

The output of the mission is a document entitled