Africa's manpower situation and the training of refugees

of African unity

Seminar for National Co-respondents of the Bureau for the Placement and Education of Afrioan Refugees

Addis Ababa, 1,7 &fU -Z* ft**

. 17 April 1970

AFRICAN MANPOWER SITUATION AND THE TRAINING OF REFUGEES

Note the ECA secretariat

■I

Africa1 s Maaapower Situatio

ed economi

1, 'io achieve accelerated economic and socials development whioh will secure for the masses of the people better living standards, Africa needs, among other essential factors, manpower possessing the right skills and attitudes in adequate numbers. Without adequate executive oapaoity and.leadership qualities accelerated development cannot be achieved. Unfortunately,, purrent development efforts in every Afrioan country are constrained By sheer lack of adequate executive1 and managerial

capacity and "by the sStortage of essential skills.

2. The principal drawbacks in Afrioan manpower situation aret

(i)5 An. overwhelming proportion of the labour foroe is untrained

■ ■■. ■ and lacking in skills needed to .raise productivity.

(ii) A good paxt of even that small propftx^tion of the labour

■ force that has had some training also lacks the ability.. . .. t to comprehend ?ahd-a-pply modern scientific and technical knowledge to production prooess and business management.

l/ This seotion is culled .frpia,. a: ££per prepared by the secretariat for other meetings. \ ... "' ' ' ■ ;;1 " .

M70-856

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(iii) Workers1 attitudes to work and income are rooted in . traditional social values and the social status acoorded to some categories of work is hardly reconcilable with

V the spoio-econpmio values and prerequisites of a modernizing , *'* :; economy^ ■

3. In terms of manpower needs, for accelerated economic development, the following manpower development and utilisation problems are of

priority eonoern to most Afrioan countriesi

(i) Shortages of middle- and highrlevel^managerial, profes sional and technical personnelt especially in fields

concerned with direct production in agriculture, industry, natural resouroes, etc. The most acute of the manpower bo-fctleneok is the shortage of personnel with training ia"

. spienoe and technology and having the capability to apply modern techniques to production processes,

■ ■■.■ ■ -■*.-,..

■ ■ ' '. ' ■ ■ " ■ ■; - .■ >

To illustrate the problem, take the case of the Ministry

charged with. ;promating industrialization in an African

^country. The typical, situation is that such a Ministry often lacks the technical and professional personnel * • capable of evaluating technical reports on industrial project proposals, designing and selecting appropriate technology,* analysing and costing production prooesses - ■ or of oonceiving appropriate solutions to technical produo—

■. ■■ tion problems. The result is that these technical services

■are usually contracted to foreign consulting firms at considerable expense.

(ii) A politically explosive and socially undesirable problem

is what to do with the jobless educated primary and secondary school leavers whose numbers are rapidly increasing in all- major oities. They demand white collar jobs that are hard to come by and a fair standard of living, but they lack

~~ 3-

either the attitude and the teohnioal skills for engage-

meat in non-clerical duties or the means to continue thel* ",-.

education. .

(iii) Lack of financial and institutional capacity for manpower

development such as could effectively make good quantitative

shortages and qualitative deficiencies in manpower require

ments, and to provide facilities for the further education

and vocational training of unemployed school leavers. _ (iv) The problem of educational programmes whioh are not

adequately related to development needs, especially in terms of manpower requirements for industrialization*

agricultural modernization and the supporting servioes/

and in terms of the need to cultivate attitudes that are receptive to, and eager to apply development innovations. T . (v) The shortage of qualified teachers, especially science

teachers and technical instructors, that are needed to

implement programmes aimed at increasing substantially

the proportion of sohool leavers with technical and science-based education and for the reform of the educa tional" systems to cope with the challenge of development*

(vi) The inefficient utilization of available trained manpower often due to factors such as political and social constraints, inappropriate and unwieldy administrative structures, lack of proper manpower planning machinery, and the prevalence of wage policies and wage structures inherited from

colonial practice and which do not adequately reflect development needs in terms of the place of technical personnel in national development efforts.

(yii) The seeming negleot to develop appropriate .training

programmes for the bulk of the labour force - the untrained and unskilled manpower whose production efforts determine,

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■ to a very considerable extent, the 'size of the national income. Thus, the attempt to modernize the rural sector cannot achieve the desired o^jec^ive if due attention is not paid to training programmes aimed at raising the pro4uctivity and living standards of rural workers and to creating new economic, opportunities. Rural moderniza tion requires the injection of a substantial amount of . ( technical skills, oapital and receptive and innovating

attitudes.

(viii) The sheer lack of clear national policies and programmes

on population, manpower utilization, income and employment as integral elements in national overall economic and social development policy and programmes, sanctioned

"by total national commitments to the realization of development objectives.

II. Trained Manpower Shortages in the 1970s

4- Manpower surveys and projections in the African countries for which data are available indicate that, in general, trained manpower

supplied will fall short of manpower demands during the 1970s, The shortfall will be more aoute and of substantial magnitudes in some

occupations than in others. Most countries will experience manpower

shortages at the level of personnel requiring university, high school

and technical college education, as well as at the level of skilled

workers requiring trade school training. By contrast, some countries

will experience a surplus output of university and college trained graduates, especially those of the humanities and non-science courses.

Simultaneously, large numbers of educated persons having no specific vocational training will be produced by the educational systems at

the primary and middle school levels. An overwhelmingly large proportion

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of. these young school leavers, will nave neither gainful employment nor facilities for further education and vocational training.

5; The shortage of trained manpower"will, during the 1970s?

seriously handicap efforts to achieve a high rate of economio growth

in the countries experiencing the shortage, unless the situation can

"be alleviated. The shortageo£jkechnical, professional and managerial personnel as well as of science teachers and technical instructors will adversely affeot the implementation of development plans and.the

realisation of set goals and targets. Because of the sheer magnitude of the army of skilled workers and technicians needed for ixidustrialiBar-

j agricultural modernizationj transportation, etc, and for the services in support of $hese activities, and beoause of their key functions in

manipulative-and servicing operations in the production process, the projected substantial shortages in the supply of technicians smd •- skilled jtorkers will create a more serious manpower bottleneck in Afrioan development than will be the shortage of university trained professional and sub-professional personnel. An adequate supply of middle- and lower- 3.evel technical personnel is therefore of the same strategic importance as the supply of &igh-level manpower in critical fields of development.

6. African countries that envisage quantitative shortages in their manpower requirements during the 1970s a^e expected to adopt such measures as could correct the situation or substantially minimise the shortage* These maasures normally would include the hiring of experienced

trained manpower from the world market, requests for technical assistance

personnel from multilateral and bilateral sources, including .requests for, peace corps and volunteers. These are commonly short-term measures.

A.-long-term solution -is to increase the local supplies of trained

manpower by expanding the output from local training institutions. This oan be achieved by deploying more resources to these-institutions and borrowing or hiring more teachers and trainers from abroad. This long- term measure is not all that easy to mount and finance.

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7« Many African countries still envisage to face manpower shortages in the 1970s even after they have combined the above measures to the full strength of their resources. For example, the projected manpower balances in the 1970s for Malawi, Sierra Leone, Tanzania, UAR and Zambia, as shown in the Tables that follow, typify fche manpower constraints that will, face most African countries.

TABLE 1

1 ■ " Malawi s Manpower Needs and Shortfall

Occupation

Stock Deceml

li

1,

6>

2,

as at oer 1966

127

,116

768

558

740

434

430

968

J-IK3

Re

1

1

■ 2

8

4

1UJ.U1U I

1 quire lyvo

I84

,754

,456"

,531

,56S>

605

718

,297

iments

1975

231

2,025

2,093 3,038

11,061 680

887

5.029

Shortfall

1970

757

-638

-688

-973

-1,829 -171

-288

-1. ^?q

1975

-104

' -934

-1,325

-1,480

-4,321 -246

-457

Physioal Scientists

and related technicians

Architects, Engineers

and related technicians

Life Scientists and

related technicians

Medical, Dental, Veterinary

and related workers

Teachers (Secondary,

Secondary Technical and

Primary Schools) >

Managers (iSCO 2-1)

Stenographers, Typists and Punohing Machine Operators

Clerical and related

workers. .

SQuroe* Report on Survey of Requirements for Trained Manpower in Malawi,

June 1967> Appendix, Table V. . .

TABLE 2

Sierra Leone's Manpower Supply in Relation to Heeds, 19&9

Stock Additional Anticipated

Occupations-by-Level ~- March. .19-64 - Requirements Supply Shortfall

267

88

441

167

93

365

74

73

219 HIGH-LEVEL

Architects, Engineers and 267 167 74 -93

Surveyors

Physicians, Surgeons and

Dentists .■ ,

University Teachers and other , .

graduate teachers (Secondary) 441 365 219 ^-46

Teacher Training and Technical

Other,professional, technical

and related-workers (including

professional Accountants, 114 143 26 -117

Economists, Statisticians,

Librarians, and Archivists)

Directors and Managers 122 85 3 :»82

INTERMEDIATE LEVEL

Teachers, Primary, Secondary, - ■ ■ _■

Vocational and Technical 3869 3089 1637 . -1452

(tion-gractuates)

Draughtsmen, Science and Engineering Technicians and

Assistants

1364

346

366

561

247

167

2491

1042

190

158

415 238

121 1742

370

.16

-

-

-

-672

-176

-158

-

-

Executive Officers and

Equivalent (Government)

Directors and Managers (mainly the smaller under

takings)

Nurses and Midwives

Professional Medical Workers, NEC and Medical Technicians and Auxiliaries

Stenographers and Typists Other Clerical Workers

Source: Report to the Government of Sierra Leone on the Manpower

Situation, Table VII.

^ i i- (

h> .

•v'- ■ *

i » It* -

■• -V • : ■, .

j /* . . . . .

Oecupation

r ... ...,-.

<- J

/( - 8 * J'

TABLE 3 ' (Selected "Occupations)

Requirements

pile sr $9^9-1

Estimated ■ Supply ■

-

■■ -'■■ - ■ ■;■•■■

Shortfall

M> r

*

" ': '" A'

I.

Town Planners Quantity Surveyors

(Civil Engineers (Electrical Engineers (Mechanical Engineers

Surveyors Veterinc-rians Life Scientists Agronomists Physicians

""Pharmacists

Graduate Teachers (Arts)

Accountants Auditors

Social Workers Economists Statisticians

14

15 244) 60) 186) 89

94 70

275

444 42

374

170 31 36 97

40

5

4

299

21

77

50

201 12 356

45

19

59

25

,;■■-?

-11

-191

-68

-17

-20

-44

-243 -30 -18

-125"

-31

-17

-18.

-15

Souroe; High-level Manpower Survey, I969, Dar-es-Salaam.

— 9 —

1 /

TABLE 4

UAR's Manpower Requirements and Supplies, 1970-1980

(in thousands)

Skills

Specialists and Management

Technicians

Clerics

Skilled Workers

Semi-skilled Workers

l?7o;

216

513 720

1152

2160

Demand

1975

256

610 856 1370 2568

198O 338

780 1170

I872 3510

1970

215

300

515

1013

1727

Supply

.1975

277

347

846 1103 2068

1980

346

407 1330

1113

2854

Shortfall 1970

-1

^213

-205 -139

-433

1975

+21

-?63

-10

-267

-500

l?80 +8

-373 +160 -759

-656

Unskilled Workers 4239 5040 5330 5230 6059 6950 +991 +1019 +1620

Source; Institute of National Planning, Cairo,

"A Research on Manpower Planning for 15 years".

10

' TABLE 5

-Zambia's Manpower Requirements and Supplies, 1971-1980

Occupation

(High-level Personnel)

Zambian Graduates Required

Total Yearly

Prospective Supply of Graduates

Total Yearly

Shortfall

To tal Yearly

Engineers 1800 180 646

64

Architects and Quantity Surveyors

Agronomists

Teachers, Science Teache rs, non-

Science

Physicians and Surgeons Dentists

Pharmacists

Veterinarians

Lawyers, Judges

Administrators and Managers

250

400

1625

2175

727

68 120

130

400

2585

25

40

162 . 217

73

7

12

13 40

259

50

301

806

2398

358

30

20

60 399 560

5 ' 30

81 240

36

3 2

6 40

56

-1154

-200

-99

-819

+223

-115

-20

-10

-82 +23

-369 -37

-38

-100

-70

-1

-4 -10

—7

-2025 -203

Source: Zambian Manpower, Government Printer, Lusaka, I969, Table 18.

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..:■;.:■ 8. /Cables 1 to 5 illustrate, the varying anticipated expediences•

.of the countries concerned in terms of the. relative seriousness of tjieir manpower shortages,,bpth quantitatively and ocoupation-'wiBe. :• Their oommon fate is that in the years ahead they will not be able to produce locally, hire or borrow all the trained manpower they require for the implementation of their development plans* ,

III. .Training African Refugees to fill the Region's Manpower Gap

■* 9V Thousands of African refugees from Southern Africa,-^Angola

and Mozambique are in Europe, America and in free Africa in searoh of education, freedom and a means of livelihood. They all hope to be back in their homeland some day and to play a leading role in the political,

* eoonomio and social development of their countries* To hope for the best, many refugees may be able to get back home within the next five,

ten or more years. Since the date for the final return home is so

indefinite, common sense would dictate that these refugees should be

educated and trained to earn a living in Africa and to secure appropriate

;■ preparation- for the role expected of them on their eventual1 return to their homeland* Granting that the political will to accommodate African refugees is active, it is. desirable that the training and job require mentb of these refugees should be dovetailed to alleviate the manpower shortages cff African countries. Such an arrangement would provide a mutual basis for providing shelter and a job experience for refugees., and at the same time enabling the host countries to meet a good part ; of their more urgent manpower shortages.

lOi !Educatibn and training for a living has to take acoount of

one's job.aptitude and long-term career interests. These may not all be satisfied within a period of five or more years. A refugee trains to be, useful to hisJiome country for all his life. But before he gets the opportunity for service to his homeland he must live. The require

ments "bf the letter, however, compels him to give preference to seeking

eduoation and training in a field where he can readily secure employ ment, become economically self-supporting and can contribute to his

l/ Namely the Republic of South Africa, Namibia and Zimbabwe.

.. 1 \

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country's freedom struggle. This more immediate and short-run necessity

may require of a refugee some sacrifices in any ambition and preference for long-term job Q:93?ee^ related type of education...

11. Accepting the^position just argued, the education and training of African refugees should' conoentrate in those occupations where

employment opportunities in host countries are likely to be greatest,

both te;termsvof quaftifc^ative. demands reflected by projected manpower shortages, and in relation to the relative urgency of various vocations in ^lemand. Refugee Placement for education and training ought to avoid suoh occupational fields as are likely to experience surpluses in trained manpower and such non-technical professional fields where the normal

preference of a host country is for the employment of its own nationals.

As pan be derived from Tables 4 and 5, training refugees for employment as administrators, managers, clerks and unskilled workers should be '

unwise as these vocations offer very limited opportunities for the

employment of non-nationals. " ' „

12*,,,, rpiv-$he basis of anticipated trained manpower shortages in most

i- pountries.during the 1970s, a number of fields of occupational opportunities by-level of education and training can be; identified as - more likely to. accommodate African refugees with the appropriate training.

These .are: / . , ■ ■

Educational level Courses Occupations

University Science/Education Secondary School Teachers

. , with preference for science

' r teachers

;- Technology/Education Higher Technical Instructors

- Medical Surgeons and Physioians Dentists, Pharmacists Veterinarians

Architecture and Architects, Surveyors Surveying Quantity Surveyors

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Educational Level

University (Cont'd)

Technical College anta Vocational Institutes .

and.

Trade Schools

Courses

Engineering and Technology

Agriculture

Science/Education

Medical

Engineering and Technology

Architecture and Surveying

Commercial

Vocational Courses

Oooupations

All fields, of engineering and higher technology, with less emphasis on .

civil and mechanical engineering

Agronomists

Middle School Teaeh«r« : ■;

Technical Instructors

Medical Assistants

Veterinary Assistants Nurses and Midwives - v Medical and Health

Teohnioians- ^ "

Draughtsmen

Engineering Assistants Radio Technicians

Architectural Assistants Surveying Assistants Accounting Assistants Book—keepers

Secretaries and Stenographers Sales Clerks ■ .. -■ ..

Electricians ' Machinists and machine

tool setters

Plumbers and pipe fitters Commercial Artiste -■; ,,;.

Carpenters and Cabinet

Makers ■■ ';

Office machine operators

13. It would appear that the teaching profession offers a ready

employment opportunity for suitably qualified non-nationals. Education

is a rapidly growing sector in all African countries. Both secondary

and primary education programmes suffer in quality due to the dearth

of qualified teachers, among other faotors. Thousands of foreign

- 1-4 -

nationals, including a good number of peace corps and volunteers are

readily accepted in schools. Table 6^ for example, shows the low

proportion of local citizens to be £;pu$d in. the teaching staff of

secondary- schools in the countries listed. Table 7 shows the magnitude of the teachers supplied to Afrioa by xhe GECD countries alone in order to keep thousands of primary and secondary school classes open. A good

proportion of the foreign teacher supply and of unfilled vacancies in

| the teaching profession could be met by employing suitably trained African refugees into teaching posts. The availability and employment of refugee teachers will also enable many African countries to considerably minimise or totally eliminate the shortage of qualified teachers envisaged during

j 1970s as shown in Tables 1, 2, 3 and 5 and to reduce the costs of hiring

} , foreign non-refugee teaohers.

14» The employment opportunities to accommodate qualified African refugees can similarly be demonstrated with respect to the medical and engineering fields, as well as a variety of sub-professional and middle-level technician jobs. However, to be able to take advantage of the various employment opportunities in African countries, refugees must on their part have the necessary travel papers, countries of asylum, educational assistance to enable them to learn appropriate occupations and a capability to hold their own as employees rather than as refugees.

It is equally necessary, that host African countries must be willing

to e-mploy suitably qualified African refugees, get them accommodated

in such jobs that other ioreigners or no one at all would have been

hired to perform, and to grant such refugees appropriate political

asylum and work permits. A mutual interest is involved in the training

and employment of African refugees.

TABLE 6

Seooft&Mar,,gjcth&<j)k , Teachers., lEuSeleated .Afxa-can'.. Countries, i '.Jl*MJfiuaHflea-felons: andvditi^enfilxlp.-.S.ta.tu;s:-■«..

Country

Congo (K)

Ghana Kenya

Nigeria

Tanzania

Uganda

Zambia'

1966/67 1967

1968

1966/67

1968

1967

1968

Professionally . .;.:■ qualified . Total Citizens.,

*

1584 AAi 2742 39#"

253:1V 58$

747^ 25.85S

1491^ b/ 1396

1781 8.15C

Not Professionally qualified

..Total - Citizens

xyxjc. jX * (Jo

All Secondary School Teao&ere

■ Total—Cittzeai

6610 42§6-_,

4644 44-.2^

a/ Graduate teachers.

h/ University level qualified teachers.

Source: An Evaluation Study, of Uniyersity.Level: jManpower Supply

and Demand in Selected African Countries "by Aart van de Laar,

■%.

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TABLE 7

Teaohers Supplied to Afrioa "by OECD Countries

through Bilateral Tqclgfrioal Assistance in I°-63 (including Peace Corps, and Volunteer Teaohers)

Region Total

: :aiid

Secondary

University and Higher Technical

Non-University Technical' and Vocational

Other

North of Sahara

South of Sahara

33083 23244

9839 .

■27410

21182

6228

' 1435 515

920

2463

1420

1043

1775

127

1648

Source; Angus Maddison: Foreign Skills and Technical Assistance

in Eoonomic Development, OECD, Paris, 19^5> Annex I -'■

•Table 1-13; ' ' : ■"■'""■