2011~2016

Qatar National Development Strategy 2011–2016

Qatar National
Development Strategy

Towards Qatar National Vision 2030

Qatar National
Development Strategy
2011~2016
Towards Qatar National Vision 2030

Copyright 2011 by the Qatar General Secretariat for Development Planning.
First published March 2011.
Qatar General Secretariat for Development Planning
Doha Towers
P.O. Box 1855
Doha, Qatar
www.gsdp.gov.qa
Design and editing by Communications Development Incorporated, Washington, DC.
Printed by Gulf Publishing and Printing Company, Doha.
The content of this publication may be freely reproduced for noncommercial purposes with attribution to
the copyright holder.

Foreword
Under the guidance of His Highness Sheikh Hamad Bin Khalifa Al-Thani, our beloved Emir, thepioneer of our advancement and the leader of our march forward, the first National Development
Strategy for the State of Qatar 2011–2016 was prepared to set a path towards achieving the goals of
Qatar National Vision 2030.
The National Strategy deepens our commitment to increasing the well-being of all Qatari citizens
and lays out a carefully designed programme for how to continue providing the best education andhealthcare as well as social protection and employment opportunities in a prosperous, stable and securesociety that nurtures its members and preserves and protects family cohesion.
A product of consultations with all segments of Qatari society, including the private sector and civilsociety, the Strategy takes into account Qatar’s cultural and religious values, as well as the needs offuture generations, covering all aspects of social, economic and environmental activity.
Qatar’s tremendous progress is clear in all fields. However, the stresses that accompany rapid progress
are also visible. Our mission—balanced and sustainable growth—requires responsible use of resources
and continuous modernization and development of public institutions to ensure good programmemanagement and high-quality public services.
This Strategy also highlights our competitive position in the international economy and reminds us of
the effective role we must play at both the regional and international levels.
I would like to thank all those who contributed—in particular, the National Steering Committee, theExecutive Groups, Task Teams and technical support groups. I would also like to commend the General
Secretariat for Development Planning and its Secretary General for their role in coordinating the
preparation of the Strategy.
Everyone in Qatar, including the private sector and civil society, must fully commit to implementing
the Strategy’s framework and achieving its development objectives. Doing so will bring prosperity andbenefits for us today as well as for Qatar’s future generations.
May Allah guide our steps.
Tamim Bin Hamad Al-Thani
Heir Apparent
Head, Supreme Oversight Committee for implementing Qatar National Vision 2030
March 2011

iii

Contents
Forewordiii

Enhancing market efficiency
Regulation and efficiency
Building a diversified economy

Supreme Oversight Committee for Implementing Qatar
National Vision 2030x
Members of the National Development Strategy National
Steering CommitteexMembers of the Executive Groupxi
Task team chairs
xii
General Secretariat for Development Planning
management support
xii
National Development Strategy 2011–2016 Sector Reports
xiii

Executive summaryChapter 4 Promoting human development 103
Nurturing a healthy population
Challenges for healthcare
Realizing Qatar National Vision 2030 for ahealthy population
A comprehensive world-class healthcare system
An integrated system of healthcare
A focus on preventive healthcareA skilled national healthcare workforceA national health policy
Effective and affordable services through partnerships
in bearing healthcare costs
High-quality research directed at improving theeffectiveness and quality of healthcarePrerequisites for implementation
Fostering cross-sectoral links
Building knowledge and skills
Desired qualities of Qatar’s education and training system
Growing importance of private and independent schools
and rising enrolment of children of expatriates
Realizing Qatar National Vision 2030 for educationand trainingAddressing core education and training issues
Improving K–12 general education
Improving higher education
Enhancing scientific research
Fostering cross-sectoral links
Fostering a capable and motivated workforce
Challenges for the labour market
Realizing Qatar National Vision 2030 for a capableand motivated workforce
Expanding high-quality training opportunities for Qataris
Incentivizing Qatari private sector employmentBoosting labour force productivity
Attracting and retaining high-quality expatriate talent
Nurturing and managing human resources
Improving labour market flexibility

1Part 1 Agenda and resources
Chapter 1 Building Qatar’s firstdevelopment strategy33
From vision to strategy: tackling the big challenges
34
Preparing the National Development Strategy 2011–2016
35
National Development Strategy 2011–2016 programmes
and projects38
Growth with balance
39
Four interrelated pillars of development
39
A programme for the entire society40
Building on momentum
41

Chapter 2 Achievements and economic
outlook 2011–201643
A solid foundation for the future
Outlook for 2011–2016
Supporting the National Development Strategy 2011–2016

44
51
61

Part 2 The four development pillars
Chapter 3 Sustaining economic prosperity

67

Expanding the productive baseEnhancing economic stabilityEnhancing technical and economic efficiency

69
74
80

88
90
93



106
108
109
110
112
113
115
116
117
119
120
120
122
124
127
128
128
132
137
143
144
146
147
148
149
151
152
153
154
155

v

Building the capacity of key labour market stakeholdersStrengthening evidence-based policy-makingEnhancing employment and career counselling services
Implementation challenges
Fostering cross-sectoral links

155
156
157
158
160

Chapter 5 An integrated approach tosound social development

161

Family cohesion: the core of Qatari society
165
Reinforcing family cohesion
166
Strengthening parental roles
168
Reducing domestic violence
169
Supporting families with special circumstances
171
Reducing economic and social vulnerability andimproving financial management
171
Adopting a holistic approach to child well-being
172
Improving work-life balance for women
174
Increasing women’s empowerment
175
Fostering cross-sectoral links
177
Social safeguards for a caring society
179
Improving and strengthening the social protection system 179
Making the workforce and society more inclusive
183
Extending social responsibility to the business community 185
Fostering cross-sectoral links
186
Public protection for a stable society
188
Improving crime management
188
Improving road traffic safety
190
Strengthening occupational health and safety
192
Enhancing building safety standards
193
Coordinating national emergency preparedness
194
Fostering cross-sectoral links
194Sports as inspiration for an active and healthy society
196
Promoting healthy and active living through sports
197
Equipping the country with accessible sports facilities
199
Propelling the country to sporting excellence
200
Fostering cross-sectoral links
202
Cultural growth for a creative and exceptional society
204
Increasing demand and support for diverse culturalactivities205
Improving management of heritage resources
206
Investing in young people
207
Developing high-quality artistic talent
208
Providing better information for cultural advocacy
209Strengthening Qatar’s cultural diplomacy
209
Fostering cross-sectoral links
210
Moving social development forward

vi

212

Qatar National Development Strategy 2011–2016

Chapter 6 Sustaining the environment
for future generations213
Managing resources and protecting opportunity for
future generations214
Realizing Qatar National Vision 2030 for sustainability
216
Cleaner water and sustainable use
217
Cleaner air and effective climate change responses
221
Reduced waste, more recycling and more efficient use
224
Nature and natural heritage conserved, protected andsustainably managed226
More sustainable urbanization and a healthier living environment 228
An increasingly environmentally aware population
229
Improved governance and regional and international cooperation 230
Deepening the national commitment—creating theknowledge base
232
Fostering cross-sectoral links
236Part 3 Institutions and implementation
Chapter 7 Developing modern public
sector institutions241
The drivers and levers of institutional development andmodernization243
Mapping Qatar’s institutional development andmodernization journey
245
Possible pathways to public sector institutional development 249
Programmes to develop and modernize public sector institutions 250
Strategic policy and planning
252
Budget and financial management
253
Organizational alignment
254
Human resources development
256
Enabled institutional processes
257
Performance management
259
Project priorities and fostering cross-sectoral links
260

Chapter 8 Moving from strategy
to implementation263
Embracing an expanded orientation and new ways of working 264
Strategic thrusts
264
The building blocks of implementation
265
The human resources constraint
267
Budgetary resources for the strategy
267
Bridging the information and knowledge gap269
Implementation through participation, communication
and advocacy269
Monitoring and evaluation
270

Boxes
2.1
3.1
3.2
3.3
6.1

Glimpsing the economy’s future
52
Discounting the future—calculating limits on consumption 70
Economic Development Board of Singapore
74
Calibrating government involvement in industry
97
Major environmental interventions carry knowledge
demands233
7.1 Best practices, by levers of public sector performance 246
8.1 The value of quick wins
265

Figures
1.1 The National Development Strategy 2011–2016 wasdeveloped through a combination of top‑down andbottom-up approaches36
1.2 Preparation of the National Development Strategy
2011–2016 was broadly participatory and inclusive37
1.3 The National Development Strategy 2011–2016
organizational structure38
2.1 Qatar has grown faster than any other economy, andits per capita GDP is now among the highest in the world 45
2.2 Qatar is a global leader in liquefied natural gas production 46
2.3 Qatar’s spending on infrastructure over 2005–2009
has outpaced that of other countries experiencing
accelerating growth47
2.4 Government spending is strongly correlated with oil
prices and government revenue
48
2.5 Beyond 2011 real GDP growth is likely to shift down
51
2.6 With hydrocarbon growth decelerating, robust expansion
elsewhere in the economy will help keep overall GDP
growth buoyant54
2.7 By 2016 the service sector may account for nearly
40% of total output, up from 36% in 2009
54
2.8 Qatar’s population is expected to grow steadily, at anannual average of about 2.1% during 2011–2016
55
2.9 During 2011–2016 total gross domestic investment
might approach QR 820 billion
56
2.10 The ratios of gross national saving to total GDP andgovernment saving to GDP are expected to decline but
remain substantial
57
2.11 The overall government fiscal position is expected toremain healthy, with a surplus of 5.7% of GDP by 2016 57
2.12 Oil prices are projected to rise, gas prices to remain
range bound58
2.13 The current account surplus should remain sizeable,
peaking at 24% of GDP in 2011, declining to 15% by 2016 58
2.14 An assumed 30% fall in the prices of Qatar’s liquefied
natural gas basket reduces nominal GDP60

3.1 Sustainability and the economic framework
69
3.2 The government plans more than $65 billion in
infrastructure spending through 2016
72
3.3 Inflation accelerated sharply from 2005, hitting a highof about 15% in the first quarter of 2008
75
3.4 For a hydrocarbon-exporting economy such as Qatar,
price shifts hit the fiscal revenue stream directly, creating
ripple effects throughout society76
3.5 The volatility of oil prices makes it difficult for policymakers to judge the most constructive fiscal stance
76
3.6 Elements of efficiency interact and link to sectors andfocus areas
80
3.7 A snapshot of Qatar’s infrastructure in capacity, quality
and cost
82
3.8 Qatar relies on water from desalination, which is subject
to inefficiencies that may threaten water security or
require large investments to ease shortages
83
3.9 Operators should be commercially motivated, disciplined bymarkets as well as accountable to regulators, and protectedfrom political interference, but Qatar lacks these separations 91
3.10 Little diversification of output has occurred over thelast decade
94
3.11 Only 41% of new products exported from Qatar survive
until the next year95
3.12 Labour productivity is falling across most sectors
95
3.13 Qatar is vulnerable to underlying pressures for realexchange rate appreciation, making its exports morecostly and less competitive
96
3.14 Economic prosperity is both a goal and an enabler toachieve the aspirations of Qatar National Vision 2030101
4.1 Links between the National Development Strategy
2011–2016 and the Supreme Council of Health
107
4.2 Current and future models of healthcare
110
4.3 Healthcare spending in Qatar has risen nearly fivefold
since 2001
117
4.4 A healthy population is both a goal and an enabler toachieve the aspirations of Qatar National Vision 2030121
4.5 With the growth in the number of school-going children
in Qatar, demand for international and community
schools is rising125
4.6 Government spending on education and training ishigh in Qatar compared with benchmark countries
126
4.7 The share of Qataris in international schools at alllevels grew markedly between 2003/2004 and2008/2009127
4.8 Most students in Qatar have ready access tocomputers at school130

Contents

vii

4.9 The number of Qatari and non-Qatari kindergarten
students is increasing rapidly, and most attend private
schools133
4.10 Participation in primary schooling is high in Qatar
compared with regional benchmarks, but there is
scope for higher participation in secondary schooling 133
4.11 Average annual expenditure on higher education
per student is above the Organisation for Economic
Co‑operation and Development average
138
4.12 Gross enrolment ratios for tertiary education are
low for Qataris, especially for men, compared withbenchmark countries, 2006–2008
139
4.13 Qatari students need more technical education andvocational training pathways to employment
142
4.14 Qatar needs to increase the proportion of science andmath graduates143
4.15 Education and training are both a goal and an
enabler to achieve the aspirations of Qatar National
Vision 2030145
4.16 Qataris as a share of the labour force, actual andprojected under two scenarios, 2001–2016
147
4.17 Labour force participation rates of Qatari women
have risen rapidly but remain below those in selecteddeveloped countries
152
4.18 Productivity in selected sectors in Qatar compares
well with that in benchmark countries, but not in
construction and services, 2009
153
4.19 Qatar needs to shift its employment distribution
towards a higher share of skilled labour, 2008
154
4.20 Qatari men start to retire from the labour force earlier
than men in most other countries
156
4.21 Key stakeholders in Qatar’s labour market governanceand links157
4.22 A capable and motivated workforce is both a goal andan enabler to achieve the aspirations of Qatar National
Vision 2030159
5.1 Qatari households remain relatively large
166
5.2 Qatari women are having fewer children than they did ageneration ago167
5.3 The divorce rate per 1,000 married Qataris rose from
17.4 in 1995 to 19.2 in 2009
167
5.4 Domestic violence cases are prevalent in Qatar
169
5.5 More financial responsibility and less indebtedness
are needed172
5.6 Qatar will adopt a policy-making approach in the bestinterest of children’s well-being
173
5.7 The labour force participation rate of Qatari women174
rose sharply from 2001 to 2009

viii

Qatar National Development Strategy 2011–2016

5.8 Qatari women with a university education are
employed mainly as professionals
176
5.9 Family cohesion and women’s empowerment is botha goal and an enabler to achieve the aspirations of
Qatar National Vision 20301785.10 A noncontributory cash transfer system targets
vulnerable groups180
5.11 Benefits must be regularly reviewed against inflation
to maintain annual purchasing power
181
5.12 A six-step model to guide the development of Qatar’s
corporate responsibility policy framework
186
5.13 Social protection is both a goal and an enabler toachieve the aspirations of Qatar National Vision 2030187
5.14 Road accidents involving at least one vehicle andresulting in damage and injury have been increasing
since 2003191
5.15 Fire-related accidents peaked in 2008 during theconstruction boom
193
5.16 Public safety and security are both a goal and an
enabler to achieve the aspirations of Qatar National
Vision 2030195
5.17 Lifestyle change through sports education andawareness is key for a healthier population
197
5.18 Social and community influences limit Qatari
women’s participation in sports
198
5.19 Qatar is the best performer among Gulf Cooperation
Council countries in the Asian Games
201
5.20 Sports is both a goal and an enabler to achieve theaspirations of Qatar National Vision 2030203
5.21 There are about 200 archaeological sites across Qatar
with more than 900 varieties of petroglyphs
207
5.22 Culture is both a goal and an enabler to achieve theaspirations of Qatar National Vision 2030211
6.1 Reducing network losses and household
consumption is key to sustainable water use217
6.2 Production of desalinated water has increased
massively but has barely kept pace with population
growth218
6.3 About a third of water produced leaks into the watertable each year
220
6.4 Two-thirds of Qatar’s carbon dioxide emissions stemfrom heavy industry
223
6.5 Waste management hierarchy
225
6.6 Qatar’s existing and prospective plans for waste
management226
6.7 Qatar’s biodiversity management framework is
contingent on the availability of a comprehensive
biodiversity database228

6.8 Integrated water management across the value chain 235
6.9 Environmental sustainability is both a goal and an
enabler to achieve the aspirations of Qatar National
Vision 2030237
7.1 Current organization structure of Qatar’s public sector
institutions243
7.2 Performance management provides dynamic links
between drivers and levers to achieve public sector
excellence244
7.3 Mapping Qatar’s public sector institutionalmodernization journey245
7.4 Project approach leading to prioritized and sequenced
modernization programmes
247
7.5 Self-assessed public sector performance
248
7.6 Constructing a public sector performance modelfor Qatar
249
7.7 Overview of best practices journey to modernization
250
7.8 The three phases of institutional development andmodernization: a long-term journey
251
7.9 Focus areas with outcomes that will drive Qatar’s
public sector performance
251
7.10 Institutional development and modernization as anenabler of all sectors
261
8.1 Assessing the impacts and feasibility of programmes
and projects267

Tables1
Qatar’s 20 key challenges
26
4.1 Among employed Qataris, the highest share of unskilled
are in the government sector and the highest share ofhighly skilled in the private sector, 2009
150

4.2 Enrolment in technical education and vocational training
at the secondary level as a share of total in Qatar is very
low compared with most benchmark countries, 2008 150
4.3 Benchmark marginal rates of return for Qataris are highat the post-secondary level
158
5.1 Qatar’s social protection system is supported bymultiple institutions and organizations180
5.2 Various civil society organizations support Qatar’s social
protection system
181
5.3 A threshold-relative national poverty line helps
identify those in need, 2006/2007
182
5.4 Evidence shows that low income is a particular problem
for larger households—relatively few income earners
support many dependents, 2006/2007
182
5.5 Crime has been relatively stable over time, but violationsin immigration laws have increased markedly
189
5.6 Qatar’s crime rates are well below global average levels 189
5.7 Qatar’s road traffic injury fatality rate is markedly higher
than the average for high-income countries
191
5.8 Slightly more than a third of Qatar’s traffic fatalities
involve pedestrians
191
5.9 Sports infrastructure owned by the Qatar Olympic
Committee and ASPIRE consists of various facilities
around the country
199
5.10 The ratio of registered athletes to coaches has
declined in most sports activities
202
6.1 Daily intervals reveal ozone levels that exceed safe
levels in Doha
222
6.2 Qatar is ranked 58th in total carbon emissions but 1stin per capita carbon emissions223
8.1 Qatar’s 20 key challenges 
266

Contents

ix

Supreme Oversight Committee for Implementing Qatar National Vision 2030
HH Sheikh Tamim Bin Hamad Al-Thani

Heir Apparent of the State of Qatar

Chair

HE Sheikh Hamad bin Jassim bin Jabor Al Thani

Prime Minister of the State of Qatar

Deputy Chair

HE Abdullah bin Hamad Al Attiyah

Deputy Prime Minister and Chairman of the Emiri Diwan

MemberHE Dr. Ibrahim Ibrahim

Secretary General, General Secretariat for Development Planning

MemberHE Sheikh Hamad bin Jabor bin Jassim Al Thani

Director General, General Secretariat for Development Planning

Rapporteur

Members of the National Development Strategy National Steering Committee
Name

AgencyTitle

HE Sheikh Abdulla bin Nasser bin Khalifa Al Thani

Ministry of Interior

Minister of State for Internal Affairs

HE Yousef Hussein Kamal

Ministry of Economy and Finance

Minister of Economy and Finance

HE Nasser bin Abdullah Al Humaidi

Ministry of Labour

Acting Minister of Labour

HE Abdulla bin Mubark bin Abud Almudadi

Ministry of Municipality and Urban Planning

Minister of Municipality and Urban Planning

HE Dr. Mohammed bin Saleh Al Sada

Ministry of Energy and Industry

Minister of Energy and Industry

HE Sheikh Nasser bin Mohammed bin Abdul Aziz
Al Thani

General Secretariat of Council of Ministers

Minister of State for Cabinet Affairs

HE Sheikh Abd Al Rahman bin Khalifa bin Abd Al
Aziz Al Thani

Ministry of Environment

Minister of Environment

HE Nasser bin Abdullah Al Humaidi

Ministry of Social Affairs

Minister of Social Affairs

HE Saad bin Ibrahim Al Mahmoud

Supreme Education Council

Minister of Education; Secretary General,
Supreme Education Council

HE Abdullah bin Khalid Al Qahtani

Supreme Council for Health

Minister of Health; Secretary General, Supreme
Council for Health

HE Sheikh Jassim bin Abdul Aziz Al Thani

Ministry of Business and Trade

Minister of Business and Trade

HE Sheikh Abdullah bin Saud Al Thani

Qatar Central Bank

Governor, Qatar Central BankHE Dr. Ibrahim Ibrahim

General Secretariat for Development Planning

Secretary General, General Secretariat forDevelopment Planning

HE Sheikh Hamad bin Jabor bin Jassim Al Thani

General Secretariat for Development Planning

Director General, General Secretariat forDevelopment Planning

HE Sheikha Hessa bint Hamad bin Khalifa Al Thani* Supreme Council for Family Affairs* Her Excellency Sheikha Hessa bint Hamad bin Khalifa Al Thani became a member of the NSC in December 2009.

x

Qatar National Development Strategy 2011–2016

Chairperson, Supreme Council for Family Affairs

Members of the Executive Group
Name

AgencyTitle

HE Yousef Hussein Kamal

Ministry of Economy and Finance

Minister of Economy and FinanceHE Sheikh Jassem bin Abdul Aziz Al Thani

Ministry of Business and Trade

Minister of Business and Trade

HE Sheikh Abdul Rahman bin Khalifa bin Abdul Aziz Al Thani

Ministry of Municipality and Urban Planning

Minister of Municipality and Urban Planning

HE Sheikh Abdullah bin Saud Al Thani

Qatar Central Bank

Governor, Qatar Central BankHE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani

General Secretariat of Council of Ministers

Minister of State for Cabinet Affairs

HE Dr. Mohammed bin Saleh Al Sada

Ministry of Energy and Industry

Minister of Energy Affairs

HE Dr. Ibrahim Ibrahim

General Secretariat for Development Planning(GSDP)

Secretary General, GSDPHE Sheikh Hamad bin Jabor bin Jassim Al Thani

GSDP

Director General, GSDP

Supreme Education Council

Minister of Education;
Secretary General, Supreme Education Council

HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani

General Secretariat of Council of Ministers

Minister of State for Cabinet Affairs

HE Dr. Ibrahim Ibrahim

GSDP

Secretary General, GSDPHE Sheikh Hamad bin Jabor bin Jassim Al Thani

GSDP

Director General, GSDPHE Dr. Mohammed Ghanem Al Ali Al Maadheed

Supreme Council of Health

Member, Supreme Council of Healthand its Executive Committee;
Vice Chairman, Qatar Red Crescent Society

HE Abdullah Khalid Al-Qahtani

Supreme Council of Health

Minister of Health;
Secretary-General, Supreme Council of Health

HE Dr. Ibrahim Ibrahim

GSDP

Secretary General, GSDP

Dr. David Kerr

Sidra Medical and Research Centre

Senior Advisor

Economic development, sustainable economic prosperity

Human development, educated and capable population
HE Saad bin Ibrahim Al Mahmoud

Human development, healthy population

Human development, effective Qatari participation in a productive labour force
HE Nasser bin Abdullah Al Humaidi

Ministry of Labour

Acting Minister of Labour

HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani

General Secretariat of Council of Ministers

Minister of State for Cabinet Affairs

HE Dr. Ibrahim Ibrahim

GSDP

Secretary General, GSDPHE Sheikh Hamad bin Jabor bin Jassim Al Thani

GSDP

Director General, GSDPHE Sheikha Hessa bint Hamad bin Kalifa Al ThaniSupreme Council for Family Affairs

Chairperson, Supreme Council for Family Affairs

HE Sheikh Abdulla bin Nasser bin Khalifa Al Thani

Ministry of Interior

Minister of State for Internal Affairs

HE Nasser bin Abdullah Al Humaidi

Ministry of Social Affairs

Minister of Social Affairs

HE Dr. Hamad bin Abdulaziz Al Kuwari

Ministry of Culture, Arts and Heritage

Minister of Culture, Arts and Heritage

HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani

General Secretariat of Council of Ministers

Minister of State for Cabinet Affairs

HE Dr. Ibrahim Ibrahim

GSDP

Secretary General, GSDPHE Sheikh Hamad bin Jabor bin Jassim Al Thani

GSDP

Director General, GSDPHE Sheikh Abd Al Rahman bin Khalifa bin Abd Al Aziz Al Thani

Ministry of Environment

Minister of Environment

HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani

Ministry of Municipality and Urban Planning

Minister of Municipality and Urban Planning

HE Dr. Ibrahim Ibrahim

GSDP

Secretary General, GSDPHE Sheikh Hamad bin Jabor bin Jassim Al Thani

GSDP

Director General, GSDP

Social development, caring and cohesive society

Environmental development, environmental sustainability

National Development Strategy 2011–2016 teamxi

Task team chairs
Name

AgencyTitle

Task team

Mr. Muftah Jassim Al Muftah

Ministry of Economy and FinanceDirector, Revenues and Taxes
Department

Economic Management

Eng. Ibrahim Abbas Hassan

Ministry of Municipality and
Urban Planning

Former Director, Department ofTransportation and Infrastructure
Planning Sector

Economic Infrastructure

Mr. Mishaal bin Jabor Al Thani

Qatar Petroleum

Senior Economist

Natural Resource Management

Mr. Nasser Jarallah Al Marri

Ministry of Business and Trade

Director, Business Development
Department

Economic Diversification and Private Sector
GrowthHE Dr. Mohammed Ghanem Al Ali
Al Maadheed

Supreme Council of Health

Member, Supreme Councilof Health and its Executive
Committee

Healthcare

Dr. Juliet Ibrahim(Chair of the Planning Team)Supreme Council of HealthDirector, Planning andAssessment Department

Healthcare

Dr. Hamda Al Sulaiti

Supreme Education Council

Director, Evaluation Institute

Education and Training

Mr. Hussein Yousef Al Mulla

Ministry of Labour

Undersecretary, Ministry of Labour

Population, Labour Force and Qatari
Employment

HE Noor Al MalkiSupreme Council for Family Affairs

Secretary General

Family Cohesion and Women’s Empowerment

Mr. Ahmed Nasr Al Nasr

Ministry of Social Affairs

Assistant Undersecretary,
Ministry of Social Affairs

Social Protection

Brigadier Abdullah Mohammed
Al Suwaidi

Ministry of Interior

Director General, Civil Defense

Security and Public Safety

Mr. Khalid Al Mohannadi

Qatar Olympic Committee

Assistant Secretary General for
Technical Support

SportsMr. Khalid Yousef Al Mulla

Ministry of Culture, Arts andHeritage

Director, Youth Affairs Deptartment

CultureMr. Yousef Ibrahim Al Hamar

Ministry of Environment

Director of Water Department

Environmental Sustainability

Dr. Saleh Al Nabit

General Secretariat forDevelopment Planning

Director, Department ofInstitutional Development

Institutional Development andModernization

General Secretariat for Development Planning management support

xii

Name

Department

Title

HE Dr. Ibrahim Ibrahim

Secretary General’s OfficeSecretary General

HE Sheikh Hamad bin Jabor bin Jassim Al Thani

Director General’s OfficeDirector General

Dr. Saleh Al Nabit

Department of Institutional Development

Director, Department of Institutional Development;
Director, NDS Project Management Office

Dr. Richard Leete

Department of Social Development

Director, Department of Social Development

Dr. Frank Harrigan

Department of Economic Development

Director, Department of Economic Development

Mr. Hamad Al Athba

Joint Services Department

Acting Director, Department of Shared Services

Ms. Asma Nassrallah Mirzaei

Joint Services Department

Head, Information Technology Office;Head, Communications and Public Relations Unit

Qatar National Development Strategy 2011–2016

The National Development Strategy 2011–2016 has
been distilled from 14 sector strategies and background reports prepared by the Task Teams under
the guidance of the Executive Groups and thesupervision of the National Steering Committee.

The data for the figures and tables in the National
Development Strategy have been derived from thesector strategies listed here and from their related
background reports.

National Development Strategy 2011–2016 Sector Reports
Name

AgencyCulture Sector Strategy 2011–2016

Ministry of Culture, Arts and Heritage and General Secretariat forDevelopment Planning (GSDP)

Economic Diversification and Private Sector Development

Ministry of Business and Trade and GSDP

Economic Infrastructure

Ministry of Municipality and Urban Planning and GSDP

Economic Management

Ministry of Economy and Finance and GSDP

Education and Training Sector Strategy 2011–2016

Supreme Education Council and GSDP

Environmental Sector Strategy 2011–2016

Ministry of Environment and GSDP

Family Cohesion and Women's Empowerment Sector Strategy
2011–2016

Supreme Council for Family Affairs and GSDP

National Health Strategy 2011–2016

Supreme Council of Health and GSDP

Institutional Development and Modernisation Report

General Secretariat for Council of Ministers and GSDP

Labour Market Sector Strategy 2011–2016

Ministry of Labour and GSDP

Natural Resource Management

Qatar Petroleum and GSDP

Public Safety and Security Sector Strategy 2011–2016

Ministry of Interior and GSDP

Social Protection Sector Strategy 2011–2016

Ministry of Social Affairs and GSDPSports Sector Strategy 2011–2016

Qatar Olympic Committee and GSDP

National Development Strategy 2011–2016 team

xiii

Executive summary

Executive summary

Qatar National Vision 2030 (QNV 2030), launched in October 2008, builds
a bridge from the present to the future. It aims to transform Qatar into
an advanced country, sustaining its development and providing a highstandard of living for all its people—for generations to come. It foresees
a vibrant and prosperous Qatar with economic and social justice for all. It
envisages all Qataris working together in pursuing these aspirations, withstrong Islamic and family values guiding their collective energies.

QNV 2030 builds on a society that promotes justice, benevolence and equality. It embodies theprinciples of the Permanent Constitution, which
protects public and personal freedoms, promotes
moral and religious values and traditions, andguarantees security, stability and equal opportunities. In line with these principles, Qatar National
Vision 2030 (QNV 2030) rests on four pillars:
Human development—to enable all of Qatar’s people to sustain a prosperous society.
Social development—to maintain a just and caring
society based on high moral standards and capable of playing a prominent role in the global partnership for development.
Economic development—to achieve a competitiveand diversified economy capable of meeting theneeds of, and securing a high standard of living
for, all its people for the present and for the future.

the Qatari people. Illuminating the choices available, it inspires Qatari people to develop a set ofcommon goals related to their future, and it provides the framework for Qatar’s National Development Strategy 2011–2016.
Qatar’s management of its hydrocarbon resources
will continue to secure improvements in standardsof living, but those improvements cannot be theonly goal of society. The National Development
Strategy 2011–2016 thus aims to balance five major
challenges identified in QNV 2030:
First, moulding modernization around the preservation of Qatari culture and traditions.
Second, balancing the needs of this generationand those of future generations.
Third, managing growth and avoiding uncontrolled expansion.

Environmental development—to ensure harmony
among economic growth, social development andenvironmental protection.

Fourth, matching the size and quality of theexpatriate labour force to the selected path ofdevelopment.

QNV 2030 thus defines broad future trends andreflects the aspirations, objectives and culture of

Fifth, aligning economic growth with social development and environmental management.

2

Executive
summary

Formulating the National Development
Strategy 2011–2016
This National Development Strategy 2011–2016,
Qatar’s first, is the culmination of extensive stakeholder consultations, dialogues and analyses. The
positive and unprecedented engagement of multiple sectoral and intersectoral stakeholders reflects agenuine desire for reform that is in the best interestof the country. The consultation process began withministers and key leaders from government, private
sector and civil society and moved out into society.
Reflecting the broad reach of the Strategy, crosssectoral task teams comprised representatives fromgovernment ministries, agencies, private companies and civil society organizations. The extensive
intersectoral consultations, including interviews,
discussions, debates and research, were importantfor building a strategy that would enjoy strong andpositive public ownership from the outset.

inputs, focus on the results to be achieved by 2016.
Both quantitative and qualitative, they will be
reviewed and refined, as necessary, by key stakeholders at the beginning of programme and project implementation.
The sector strategies provide indicative resource
requirements for each programme and project—
identifying the key stakeholders in the projects andthe risks and mitigation measures for successful
implementation. Especially important, each strategy
contains a basic monitoring and evaluation framework, supported by selected monitorable indicators, to enable adjustments during implementation.
Qatar’s National Development Strategy 2011–2016
is a plan of action. It presents new initiatives whilebuilding on what already exists. For projects, policies and institutions already under way, it provides
added impetus and focus.

The Strategy builds on situational analyses, diagnostics, regional and international benchmarking
and detailed strategies for each of 14 sectors. The
situational analyses identified priority areas using
baseline analyses of Qatar’s situation and benchmarking against best practices in other countries,
both in the region and around the world. The 14
sector strategy reports identify the priority areas
and the many transformation initiatives to support
each proposed programme and project, includingcore requirements, responsibilities, timelines andkey indicators.

Achievements and the outlook for
2011–2016

Aligned to the QNV 2030 goals, the programmes
and projects identified in the National Development Strategy 2011–2016, including outcomes andtargets, are from the 14 sector strategies. Developed
through an extensive consultative process and taking into account the many cross-sectoral links, thestrategies provide profound and transparent analysis, benchmarking, diagnostics and priorities foreach of the programmes and projects at a much
more detailed level than is possible in this Strategy.

To meet new demands in a more complex economy and to strengthen performance, Qatar hasembarked on a variety of reforms. The reforms
aim to bring together decisions of national significance within an integrated framework formaking deliberate and concerted choices about
Qatar’s future. At an operational level the reforms
emphasize improvement in public services anddelivery of “value for money”, thereby enhancing
opportunities and conditions for the country as awhole as well as for individual citizens. By clarifying national development priorities and direction,
the reforms provide greater predictability for the

The targets in the Strategy, a subset of those in the
sector strategies and developed with stakeholder

Qatar has built a solid foundation for embarking on the National Development Strategy 2011–2016. Rapid growth in the 2000s, the fastest in theworld, has given Qatar one of the world’s highest
levels of per capita income (measured in purchasing power parity terms). High saving, both private and public, has been reflected in substantial
domestic investment and the accumulation of a
substantial pool of foreign currency assets.

Executive summary3

private sector and civil society, leading to betteralignment of interests across the country.
A significant rationalization of the functions
and roles of ministries and agencies is underway, aimed at promoting tighter policy cohesion,
improving service delivery, eliminating waste andenhancing public sector accountability and performance. Implementing these changes across thewhole of government is now proceeding, with the
General Secretariat of the Council of Ministers
having been given the mandate for planning andperformance monitoring across government. An
initiative of particular importance is the expansion of the role of the former Ministry of Financeto include economic policy support, advice andcoordination. In recognition of this expanded
mandate, the Ministry was renamed the Ministryof Economy and Finance in 2008.
To look ahead towards the longer run development
needs of the state, the General Secretariat for Development Planning was created in 2006 and given
responsibility for managing longer term development planning. It was mandated by Emiri Decisions
39 and 50 to coordinate the formulation of QNV2030 and to support implementing ministries andagencies in executing it. QNV 2030 was completed in
2008, and now, this document, Qatar’s first National
Development Strategy 2011–2016, has been formulated and approved by the country’s high authorities.
The trajectory of Qatar’s economy is tightly linked
to developments in the hydrocarbon sector.
Hydrocarbons still dominate the economic landscape, but Qatar is branching out into new areas.
A supply of cheap hydrocarbon feedstock andenergy has helped prime the development ofdownstream industries in the petrochemical andmetallurgy sectors, with some subsectors, such as
fertilizers, growing at a fast clip. A foothold has
also been established in new areas, including airtransportation and media services. The Qatar Science and Technology Park now tenants more than
30 ventures in such areas as life sciences, oil andchemicals, environment, electronics and software
4

Qatar National Development Strategy 2011–2016engineering. Qatar’s financial sector has also seen
rapid development serving the needs of a larger
and more complex economy.
Physical investments have fast caught up with needs.
Bottlenecks in infrastructure, which contributed
to high project costs and inefficiencies, are being
tackled across a broad front. Investments in healthcare have been significant, supporting workforce
productivity and fostering social cohesion. Thanks
to the heavy investments in high-quality healthservices and delivery systems, mortality levels havedeclined markedly, and the prospects of survival atvulnerable ages have improved. A diverse complexof health facilities now meets widely divergent andoften highly specialized needs, supported by morethan 13,000 personnel, almost all with specialist
medical and technical skills.
Education and training investments have also beensignificant. Recognizing deficits in its education system and in broader capabilities within the country,
Qatar has invested heavily. Government education
spending has steadily increased to about 5% of GDP
in 2008, making Qatar second only to Saudi Arabia
among Gulf Cooperation Council countries on thismetric. Tertiary initiatives include expanding the
Qatar Foundation Campus, reforming Qatar University, creating a new community college and introducing vocational and technical education streams.
Although these new directions are expected to bebeneficial and support QNV 2030, they have suffered from a lack of integration and alignment. In
addition, some measures have taken place only on
paper or suffer from lags in implementation. While
Qatar’s National Development Strategy 2011–2016
will leverage existing initiatives, it must also provide a framework that can fill gaps and provide
effective integration and alignment across sectors.
Economic outlook broadly favourable

Qatar’s economic outlook for 2011–2016 is broadly favourable, with the global recovery continuing, thanks to robust growth in emerging markets and rebounding world trade. The growth of

Executive
summaryhydrocarbon income will tail off in 2012–2013 as
Qatar’s highly successful 20-year investment programme in hydrocarbons culminates. Further significant investment in hydrocarbons must await
expiration of the moratorium on production in
the North Field, which is not expected before
the end of 2015. Declines in crude oil production
can also be expected as 2016 approaches, though
efforts are under way to stem them.
While growth in 2012–2016 will be at a lower pitch
than in the earlier years, income levels will remain
high, and robust expansion of the nonhydrocarbon economy will help support aggregate GDP
growth. Transport and communications, alongwith business and financial services, could growvigorously. Construction will grow steadily, andmanufacturing performance should improve.
With the nonhydrocarbon sector expected to pickup the reins, aggregate GDP growth in 2012–2016
is expected to average just over 5%, but with virtually no contribution coming from hydrocarbons. The real domestic income generated by thisgrowth will still depend on the trajectory of hydrocarbon prices, which have a decisive influence on
Qatar’s terms of trade. The baseline assumes somemodest gains over average prices in 2010.
Qatar’s investment pattern will reflect the decline
in hydrocarbon capital spending. During 2011–2016, total gross domestic investment might beabout QR 820 billion. Of this amount, perhaps
half will come from the nonhydrocarbon sector.
Central government (“public”) investment is estimated at QR 347 billion. Based on current plans,
public infrastructure spending will peak in 2012.
This trajectory reflects existing plans for thelaunch of mega projects.
The government’s fiscal position is expected toremain strong and will certainly be adequate tosupport future capital investments and the initiatives under the National Development Strategy 2011–2016. Gross national savings are likely
to remain above 40% of GDP through 2014, but
might edge down in the later years. The overall
fiscal balance would narrow from current highs

to around 6% of GDP by 2016, still very healthy.
­Double-digit surpluses could be maintained if revenue sources expand. The current account balance will remain firmly in surplus.
Modest increases in population will accompany the
expected economic expansion. The total population of Qatar is expected to grow steadily at an average of about 2.1% a year during 2011–2016, with thetotal population rising from 1.64 million at the endof 2010 to just less than 1.9 million in 2016. The
rapid population growth of the recent past is notexpected to continue. This assumption aligns withthe conjectures on output growth (above), but sees
some advances in productivity, reducing employment per unit of output. The assumed structuralshift to higher valued economic activity presupposes steady advances in the skill content of the labour
force and further capital deepening.
Swing factors could change the outlook

Predicting the future is always a hazardous activity, and some swing factors could materially change
the outlook. Of particular interest to Qatar is theoutlook for hydrocarbon prices. For a hydrocarbon-based economy like Qatar, a future of lowhydrocarbon prices (at least in the medium term)
would have a considerable impact on the financial
resources available, with implications for sustainable growth paths.
A view that crude oil prices will average about $74
per barrel during 2011–2016 alters the baseline
outlook (which assumes an average of $86 per barrel). Applying the lower oil price assumptions suggests that the average nominal GDP level would
shrink 2% relative to its baseline level by 2016.
With expenditure more or less tracking GDP as in
the baseline, the overall fiscal balance narrows. By
2016 the assumption of lower oil prices cuts theoverall fiscal balance from just under 6% of GDP
to about 4%.
Gas prices could be an even more significant
swing factor. In spot markets, gas and oil prices
have uncoupled. Although Qatar is shielded from
Executive summary5

short-term fluctuations in spot gas prices throughits long-term agreements with purchasers, prolonged weaknesses could put the price of Qatar’sliquefied natural gas price basket under pressure.
If gas prices are assumed to fall by 30% from theirbaseline (a modest decline compared with what
has been experienced in spot markets) negative
income and fiscal effects would follow. Because
the share of liquefied natural gas in total output
will rise over the period, the impact of falling prices on income is large. Cumulative losses over theperiod are QR 357 billion, a 9% reduction fromthe baseline level of cumulative GDP. The overall
fiscal balance under these assumptions for lower
gas prices, with expenditure held steady, could be
reduced to 3.4% of GDP by 2016, more than 2 percentage points lower than the baseline.

The impacts would likely be temporary, and the government will monitor them to prevent abuse of market power and protect the broader public interest.

In addition to coping with uncertainty, Qatar will
face hard constraints on human and institutional
resources that could affect implementation of the
National Development Strategy 2011–2016. Qatar
needs strengthened public sector institutions toachieve the goals of QNV 2030. That will requireconcerted institutional and organizational capacity building, efficient and transparent delivery of
public services, fruitful public-private cooperationand partnerships as well as a vibrant climate forbusiness and a larger space for civil society.

As mentioned, though some World Cup–related
investment projects may be commissioned during
2011–2016, the added impact of World Cup activity during this period is likely to be modest. A sizeable pipeline of investments is already in place. In
general, the macro-fiscal framework suggests that
additional investment spending (whether public
or private) is likely to have only a moderate shortrun demand impact on local output and income.

FIFA World Cup 2022 and higher government
spending?

Hosting the FIFA World Cup 2022 presents Qatar
with new opportunities. Over the early part of 2011–2016 the economic impacts of the World Cup arelikely to be modest, but Qatar must prepare for the
sizeable investments in infrastructure that will follow. These investments will be significant relative tothe size of the economy, and their macroeconomic
and longer term development impacts warrant close
attention. Well beyond 2022, the World Cup may
present opportunities to strengthen the structure
and performance of Qatar’s nonenergy sectors.
In the immediate future (2011–2012) the World
Cup could affect trade and speculative investment.
6

Qatar National Development Strategy 2011–2016

From the perspective of Qatar’s economic diversification ambitions, the World Cup presents newopportunities for the country. Public-private partnerships may benefit some projects and should beconsidered within wider public investment decisions. On the business front the World Cup will create opportunities for domestic enterprises to form
strategic alliances externally and to connect to global value chains. The World Cup will also accentuate
some challenges. Qatar should leverage the World
Cup to close gaps in its capabilities. For example,
investment agreements could include mechanismsthat secure knowledge and technology transfer.

After 2012, when the current expansionary phaseof hydrocarbon development ends, calculations suggests that the structure of Qatar’s economy will besuch that 5 percentage points of additional public
sector investment spending would be needed to generate a 0.5 percentage point temporary accelerationof growth in nonhydrocarbon output. The domestic income generated by added capital spending is
diluted because a high proportion of the spendingis likely to be on imports (capital goods and materials as well as consumption) and because a large
share of wage income earned by expatriate workers
is likely to be remitted rather than spent locally.
The fiscal impacts of higher public investment
spending could be significant because it is unlikely
to generate much of a tax offset. There is also a riskof inflationary pressures if the phasing of large-scale
projects creates or aggravates supply bottlenecks.

Executive
summary

During the period covered by the National Development Strategy 2011–2016, preparations for theWorld Cup will gather momentum. Institutionalarrangements for overseeing and managing World
Cup–related activities will be established, and thepipeline of investments to deliver needed infrastructure services will be prepared. From a planning perspective the World Cup is best consideredwithin the broader framework of national development and not as a one-off event. Integrating planning and funding arrangements within broader
frameworks for the overall fiscal and budgetary
management of the economy will be important.
A beneficial legacy will require scrutiny of large
World Cup–related capital projects for their longterm socioeconomic and environmental impacts.

Sustaining economic prosperity
QNV 2030 articulates three interrelated goals forthe economy. It looks to sustain a high standard ofliving, to expand innovation and entrepreneurial
capabilities and to align economic outcomes witheconomic and financial stability.
It defines sustainability as meeting the needs ofthe current generation without compromising theability of future generations to meet their needs.
To embed sustainability in Qatar’s economy, progress is needed in three parallel, mutually reinforcing directions. First, the country will enlarge
the value of the productive base, which is necessary to sustain prosperity in a growing population and to expand potential for future generations. Second, the government will guard against
economic instability and promote increased efficiency. Third, the government will work in partnership with the private sector to diversify the
economy and encourage a culture of innovationand discovery.
Expanding the productive base

The need to grow the productive base places speed
limits on what the country can consume while preserving wealth for future generations. As Qatar’shydrocarbon income tapers off (either throughdeclines in production or reduced unit rents), alternative sustainable sources of income must be created to support public consumption and cover Qatar’s
import bill. This will require high rates of saving
and a steady flow of dividends on investments forthe foreseeable future. A conjunction of far-sighted
depletion policies, sound fiscal management andwise investment will support sustainability.
Qatar’s planned investments in physical and social
infrastructure are an essential part of a broader
strategy to ensure continuing expansion of its productive base, and to attract further investmentsfrom the private sector. Qatar’s infrastructureneeds will in general be well met through 2016.
Major investments are in the pipeline, and attention is being given to areas where the country mustcatch up (as in roads, industrial land and information and communication technology). Qatar’s
investment in foreign currency assets is also an
important part of its broader strategy to diversify
its future income base.
Because Qatar’s hydrocarbon assets are propertyof the state, the government has a responsibility tomaximize the value it captures from their exploitation. It may do this through fiscal measures, contract arrangements or some combination of both.
In principle, the state will strive to capture allrents embodied in the mineral assets it owns andto ensure an adequate return on any capital that it
invests. If hydrocarbon rents are efficiently targeted, the volume of private investment should not beaffected (investment neutrality) because private
investors will still earn their required risk-adjusted
rate of return. But while the principle of optimal
rent capture and investment neutrality will continue to serve as a useful guideline, pragmatism will
require the application of frameworks that reflectreality and can be implemented.
In the future, as in the past, the government will
ensure that the structures governing hydrocarbonlinked investments, upstream and downstream,provide adequate flexibility to deal with project
specifics and changing cost or market conditions.
Equitable risk-sharing arrangements will also be
Executive summary7

important. While the state will take all steps toeliminate sources of risk within its control, theelimination of operational or commercial risks
through state guarantees or other means will be
detrimental if it dilutes incentives for the private
sector to perform. In cases where hydrocarbon
rents are shared with private investors, the state
will seek to ensure that these rents are compensated by other benefits that flow to the country (suchas the acquisition of technology, infrastructure or
knowledge and skills).
Qatar will leverage its cheap domestic feedstockand energy to contribute to the expansion of its
productive base and long-run diversification. The
relevant test is that associated investments provide
an acceptable risk-adjusted return on the totalityof the resources committed by the state. Several
opportunities exist. Industries that gain advantage by eliminating transport and distribution
costs and relocating closer to sources of energy
and feedstock provide one avenue for investment.
Another long-term opportunity would be to integrate along the energy supply chain. For example,
Qatar might export surplus power generated fromgas to the region and beyond. Potentially Qatar
enjoys advantages in areas that would be viable
even if the country had no domestic hydrocarbon
production. Qatar has an established advantage
in production and transportation and a potential advantage in vertical integration of connected
activity in distribution and storage.
Qatar Petroleum Industries and other entities inthe energy sector have performed well in spearheading investments, but as Qatar works to diversify its economy beyond carbon, a strengthened
policy and coordination function may be useful.
In some other countries high-level independentagencies have played central roles in advising government and in implementing investment andindustry development policies.
Enhancing economic stability

Hydrocarbon dependency exposes Qatar to gyrations in global energy markets, leaving economic
8

Qatar National Development Strategy 2011–2016

planning prey to high levels of uncertainty. For ahydrocarbon-exporting economy such as Qatar,energy price shifts hit the fiscal revenue stream
directly, creating ripple effects throughout theeconomy. The inherent unpredictability of energy prices makes it particularly difficult for policy-makers to judge the most constructive fiscal
stance. There is always the risk that errors in fiscal
calculations accentuate volatility. Given the unpredictability of global oil prices, it is virtually impossible to know whether price changes are temporary or lasting. Recognizing the challenges, andthe need for high levels of saving and a broader
fiscal base, the government will launch a budget
reform programme, built around a reorganizationof the Ministry of Economy and Finance. The key
goal is successfully implementing a comprehensive
legal and budgetary framework for public finance,
consistent with the Permanent Constitution.
A fiscal transformation programme with five coreelements will support this goal:• A new budgetary law embodying the principles
of efficient public finance.
• A functional classification for all spending
using the United Nations Classification of
Functions of Government to support sector
wide and programmatic budgeting.
• A macro-fiscal framework that helps decision-makers analyse the fiscal and macroeconomic implications of commitments they are
considering.
• A public investment programme to ensure that
capital projects deliver the highest social worth
and are well coordinated.
• A monitoring and evaluation function.
Meeting these commitments over the next six years
will require institutional adjustments and concerted
capacity strengthening, as well as the recruitment oftechnical experts in the Ministry of Economy and
Finance and in line ministries and agencies. Partly
because of limited expertise in Qatar in macro-fiscal policy and strategic and operational planning,
the five-step programme will be rolled out gradually, at a pace the Ministry of Economy and Financeand other arms of government can manage.

Executive
summary

A coordinated public investment programme
will strengthen the government capital budget by
ensuring that project objectives are aligned with
the National Development Strategy 2011–2016. It
will preserve and expand national wealth throughthe prioritization and selection of capital projects
that create lasting value. It will address trade-offs
among potential investments, committing resources where the benefit is greatest.

develop deeper and more liquid money and bondmarkets. The monetary and liquidity implicationsof fiscal and state-linked spending and investment
decisions need to be better coordinated. The possibility of establishing a new financial mechanism
to support fiscal stabilization objectives will also
be considered but cannot substitute for sound fiscal policy.
Enhancing efficiency

There are five basic requirements in establishing
the public investment programme:• Formalize the programme through relevantlaws and instruments.
• Create public investment units within suitableagencies, with capable staff.
• Establish supporting processes and systems,
including technically sound appraisal and evaluation techniques.
• Implement capacity-building initiatives tostrengthen project preparation, implementation and evaluation skills.
• Pilot projects to test and refine key features ofthe public investment programme system.
On a case by case basis, private sector participation in public projects may prove beneficial. An
increased private sector role can improve projectand investment planning, management and operations. The government will ensure that public-private partnerships fit within the larger investment
plan and provide a pathway for the transfer ofskills to the country.
The requirements to establish an effective public investment programme process are similar to
those to support budgetary reform. New systems
and processes will be required in the central functions of government and in the line ministries andagencies making major capital spending decisions.
New legal and regulatory infrastructure may beneeded to support new roles, decision processes
and institutional relationships.
Other avenues for enhancing stability will receive
attention. The Ministry of Economy and Financeand Qatar Central Bank will work together toOpportunities for efficiency gains proliferate, cutting across sector boundaries. By attacking inefficiency in technology, physical infrastructure, institutions and processes, the government can make alasting contribution to improve the use of resources over time. With an abundance of hydrocarbon
resources but a scarcity of other vital resources
such as water and arable land, a drive for efficiency is central to creating and capturing value, preserving and expanding the productive base andencouraging the private sector to develop throughdiscovery and economic diversification.
Improved efficiency has other benefits, too. By
improving the use of capital assets, efficiency
measures save fiscal resources by deferring or
eliminating the need for replacement investments
or capital expansion. Some efficiency gains reduce
waste and unwanted by-products such as carbon
dioxide emissions and waste water, contributing toenvironment goals.
Few tangible aspects of Qatar’s life and economy
are as in need of efficiency reforms as water—
crucial to all human activity but in scarce supply. Large volumes of desalinated water (which is
expensive to produce in terms of power) are lostin distribution. Precious aquifer water is largely
wasted through open field irrigation methods forcrops of low value. Large volumes of wastewater go
uncollected, untreated and unused.
Qatar’s National Development Strategy 2011–2016
identifies a range of initiatives to tackle technicaland economic inefficiencies in the production,
distribution and use of water. The implementation
Executive summary9

challenges of water-saving initiatives vary. Stemming losses in the distribution system involves
essentially technological fixes. Introducing watersaving devices to households is fairly straightforward, as Abu Dhabi and Canada have shown.
Encouraging the use of water-saving appliances
will require effective communication, but mightalso need supporting incentives. Water subsidies
eclipse the scarcity and true value of the resource
and contribute to overconsumption and waste.
User charges that more accurately reflect full economic costs could make a significant contribution
to redirecting Qatar’s precious natural resources
to higher value uses. Such efforts might be initiallytargeted at the non-Qatari population and industrial and commercial users.
Changing water consumption patterns in agriculture is vital to an integrated approach to water management, but it will require a fundamental and prolonged reorientation of farming, involving a range
of factors including government subsidies. Recharging the aquifers with treated sewage effluent (ifshown to be technically feasible) would ease thelooming water scarcity. But without changes in irrigation methods and crop mixes, farming would continue to make heavy demands on Qatar’s precious
water resources. The government is committed
to addressing this challenge and finding solutions
within a wider programme of agricultural reform
and the development of an agro-food industry.
A fully integrated approach to water management
and a rethink of regulatory approaches are necessary to address these challenges. By 2014 Qatar
will have established an independent regulator
to help accelerate reforms of the water sector. As
desalinated water is coproduced with power, these
new regulatory arrangements will be integrated
with those for power.
Although the country’s power needs are fully
served by a high-quality and reliable service,
Qatar could achieve greater efficiencies throughtechnical enhancements. Together, the changes could substantially cut domestic gas consumption. Although Qatar’s abundant gas supplies are10

Qatar National Development Strategy 2011–2016

expected to last well into the future, improved efficiency creates both environmental and economic
gains. By burning less natural gas, Qatar would support the national goal of lowering carbon dioxide
emissions, thereby reducing the country’s contribution to global climate change. Gas saved at home
can be sold overseas, increasing national income.
Infrastructure projects that commit significant
financial resources will be reviewed within theframework of Qatar’s new Public Investment Planning process. From a national development perspective an integrated portfolio view of proposed
capital projects will consider their engineering,financial, economic, social and environmental
dimensions within the wider context of development needs and priorities. As noted earlier, Qatar’s
infrastructure needs through 2016 will generally
be well served by high-quality infrastructure. But
some projects in the national infrastructure pipeline appear to risk capital commitments that could
be substantially in excess of what is required tomeet needs (including allowances for uncertainty
and adequate safety buffers) well into the future.
A review to identify and eliminate these inefficiencies presents an opportunity for early wins for the
National Development Strategy.
Ongoing initiatives to improve regulatory and procedural efficiency will be strengthened, including
those in the areas of foreign investment, implementation of competition legislation and customs
regulation. Efforts will also continue to enhance
the quality of regulation in other areas, such asindustrial land.
Building a diversified economy

Having achieved enormous gains by developing thehydrocarbon sector, the government is poised totake on another significant challenge—diversification. A more diversified economy is inherently morestable, more capable of creating jobs and opportunities for the next generation and less vulnerable
to the boom and bust cycles of oil and natural gas
prices. Qatar, like other countries seeking diversification, will build on areas of strength and potential.

Executive
summary

Investing hydrocarbon income in foreign currency
assets presents one important avenue for diversifying Qatar’s income. But exclusive reliance on foreign currency asset income will not constitute a viable, long-term development strategy. It would create
new types of risk, leaving Qatar prey to the vicissitudes of international capital markets. And it would
not address Qatar’s ambition to become an inquiring, innovative and creative society. The development of a more diversified domestic economic base,with knowledge activities in generating productive
and remunerative jobs, is necessary to expand capabilities and support wider societal objectives.

economic discovery and the birth of new economic activities. The government fully recognizes thatit must ensure macroeconomic stability, regulatory
coherence and the effective delivery of infrastructure services (all examined above) to stimulate
investment. In addition, the push to build a morediverse economy will require that special attention
be directed to four areas that frustrate innovationand enterprise start-ups: low demand for skills
amid surplus labour; a weak private sector and low
levels of entrepreneurship; limited capabilities of
discovery and innovation; and weak regional integration and connectivity.

Diversifying the domestic output base is not a strokeof-the-pen shift. Entrepreneurship and innovationneed to be learned, embedded in the education system and in the surrounding culture and supported
through business friendly policies and regulations.
Qatar’s private sector will need strengthening, withsupport and incentives that encourage the acquisition of relevant capabilities and active participation
in a wider range of economic activities.

A variety of institutions will contribute to Qatar’s
diversification drive. These include Enterprise
Qatar, the Qatar Foundation, in which the Qatar
Science and Technology Park is housed, theSupreme Council of Information and Communication Technology (ictQATAR), the Qatar Financial Centre and Qatar Development Bank. The
strategies and programmes of these institutions
and the National Development Strategy 2011–2016
must be mutually supporting.

Qatar is not alone in seeking a broader economic base. Other natural resource-based economies
around the world are trying to do the same. Within the Gulf Cooperation Council, Bahrain andSaudi Arabia are working on strategies to encourage more diverse economies. Abu Dhabi also has acomprehensive plan.
The fact that other countries are pursuing diversification strategies creates opportunities for crosscountry learning. But there are also risks. Many
the Gulf Cooperation Council countries are focusing on diversification in the same areas, including
petrochemicals, air transport, logistics, real estate,knowledge services, finance, life science and telecommunications. Depending on how these strategies evolve, the Gulf countries face the risk ofchannelling resources into the same sectors, witheach country falling short of achieving an efficientscale of production.
To accelerate the diversification agenda, the government will address the constraints that impede

Among other initiatives to stimulate diversification, a national plan will be prepared to accelerate the achievement of Qatar’s research anddevelopment target of 2.8% of GDP. To promote
the development of the knowledge economy andknowledge businesses, new forms of public-private partnerships will be trialled through a portfolio of pilot projects led by the Qatar Science andTechnology Park. Efforts to support private sector development will be redoubled through newservices provided by Enterprise Qatar and Qatar
Development Bank, that will target small andmedium-size businesses. ictQATAR will initiate
projects that will ensure that Qatar is ready for thedigital age. To address the constraints imposed bygeography and scale, the government will leverage
opportunities to strengthen regional integrationand connectivity.
But ultimately, the success of Qatar’s efforts tograduate from an economy based on non-renewable resource inputs to one in which productivity
Executive summary11

growth and eventually innovation underpin prosperity will require fundamental policy shifts thatalter the incentives facing its citizens. To expand
opportunities for citizens and to build local capabilities, Qatar must start the process of transforming itself into a high-wage private sector economy.

Promoting human development
The human development pillar of QNV 2030 calls
for the “development of all its people to enable
them to sustain a prosperous society” and “to meetthe needs of this generation without compromising the needs of future generations”. Qatar willcontinue to invest in its people so that all can participate fully in the country’s social, economic andpolitical life and function effectively within a competitive knowledge-based international order. It is
putting in place advanced health and education
systems that meet the highest global standards. It
is also supporting the productive participation of
Qatari men and women in the labour force, while
attracting qualified expatriate workers in all fields,with a growing emphasis on the higher skilled.
This National Development Strategy 2011–2016
identifies the challenges in health, education andproductive work. It also presents plans for meeting those challenges by nurturing a healthy, longlived population, building world-class knowledge
and skills and fostering a capable and motivatedworkforce.
Nurturing a healthy population

Qatar is committed to building a world-standard
people-centred integrated healthcare system with
policies and care designed to meet the needs of its
population.
The national health sector strategy—which builds
on the Supreme Council of Health’s Qatar National
Health Vision 2020: Caring for the Future—­Establishinga Healthy, Vibrant Society—provides a practicalguide for reforms, with far-reaching and fundamental changes envisioned across the healthcare
system. It seeks to improve health outcomes by12

Qatar National Development Strategy 2011–2016

establishing a modern and comprehensive healthcare system with effective and affordable services
for the whole population.
The system will span physical and mental preventive and curative healthcare, taking into accountthe specific needs of men, women and children.
High-quality services will be offered through public and private institutions operating under the
direction of a national health policy that sets andmonitors standards for social, economic, administrative and technical aspects of healthcare. Highcalibre research will be directed at improving theeffectiveness and quality of healthcare.
To deliver integrated services, Qatar’s national
health sector will shift the balance towards a preventive, community-based model of care, focusing on the patient and ensuring access to the rightcare, at the right time, in the right setting, by theright team. The model will provide a full continuum of care anchored on capable and trusted primary care providers in a healthcare system offering the highest quality diagnostics and treatment.
The primary care provider will be the patient’s firstpoint of contact, overseeing referrals within thehealthcare system, and considerable care will bedelivered in the community. Coordination will be
the norm in an integrated system, with healthcare
providers working together to meet patient needs.
The national health strategy defines key outcomes
and activities for achieving the ultimate goals forthe sector:• Build a comprehensive world-class healthcare system by shifting the balance of care towards a preventive and community-based model focusing on
the patient and providing a full continuum of careanchored around a capable primary care system.
• Establish an integrated system of highquality healthcare through effective use of
information, communication and process
improvements.
• Embed prevention and early detection into all
facets of the system and empower people to be
active participants in wellness, care and disease

Executive
summary••••

prevention to shift the system from a focus ontreating the acutely ill to addressing chronic
diseases and their underlying risk factors.
Recruit, retain and educate a high-quality
workforce—a modern, learning and supported workforce—and overcome the constraints
posed by a shortage of healthcare professionals in order to realize the goals of a world-classhealthcare system.
Establish a robust policy and regulatory framework to guide the health sector and ensure
quality and accountability.
Coordinate the planning and control of healthcare infrastructure and finance to ensure effective and affordable services based on the principle of partnership in cost sharing.
Ensure coordination and a regulatory framework to support high-quality research for
improving the effectiveness and quality ofhealthcare through continuous knowledge-led
improvement, innovation and research.

This strategy’s success will be determined by its
implementation. It will also depend on collaboration with other sectors, with health as both agoal and an enabler. The most critical cross-sectoral link is in public health. Governments acrossthe world have recognized that public health is
the responsibility of all stakeholders, not just thehealthcare sector. For Qatar this implies a preventive effort in which the Supreme Council of Healthcooperates with stakeholders across government.
These cross-sectoral links will be reflected as theStrategy moves into the next phase of validationand sector alignment.
Building knowledge and skills

As the Qatar economy diversifies from its relianceon gas and oil, success will depend increasingly on
the ability to compete in a global knowledge economy. Continuing substantial investments in educating and training of Qataris will be critical toachieving the goals of the National Development
Strategy 2011–2016. Beyond preparing citizens to
be part of the country’s economic engine, education and training offer multiple benefits to society.

Education provides a solid grounding in Qatarireligious, moral and ethical values, in national
identity and in traditions and cultural heritage.
Schools produce well-rounded and engaged citizens and build more cohesive and participatory
societies. Education also helps people make better
decisions about health, marriage, parenting andsocial responsibility. Finally, a successful education strategy supports innovation in science, medicine and industry.
Qatar has made great strides towards creating aworld-class education system, through the Education for a New Era reforms, begun after theSupreme Education Council was established in
2002, and the reforms of Qatar University, begun
in 2003. In addition, Qatar Foundation’s Education City has continued to expand and progressover the past decade, with the establishment of acluster of top-class international universities thatare helping to make Qatar a regional leader ininnovative education and research.
Qatar’s education and training system will become
more integrated, stretching from early childhood
education through to higher education and additional training. Engrained in this system is the concept of lifelong learning, with individuals encouraged to acquire education and update their skills
throughout their lives. This continuum spans threeeducation sectors: general education (kindergarten
through grade 12), higher education, and technicaleducation and vocational training. While each sector has a distinct identity, mission and function, thethree sectors need to operate within an overarching framework that embodies policy-related principles. And both education and training must establish stronger links with Qatar’s labour market.
Further reform of Qatar’s education and training
system will address quality, equity and inclusiveness, and portability and mobility. These themes
will guide policy decisions, along with variety andchoice. Strengthened reforms will tackle a number of critical challenges and opportunities affecting both supply and demand for education andtraining. These include the underachievement in
Executive summary13

math, science and English language at all levels,and the need to strengthen education administration and the teaching profession. The educational
curriculum needs to be more aligned to the needsof the labour market while being supportive of
Qatari values. The system needs to offer multiple
pathways beyond secondary level to encourage ahigher continuation rates.
Quality is critical in ensuring outcomes that
address the needs of current and future labour
markets. The challenge arises in achieving consistent and sustained quality across sectors. High-quality teachers, trainers and lecturers are a prerequisite, making it mandatory that all sectors monitor
teacher training, qualifications and professional
development. The current high turnover of Qatariand expatriate teaching staff must be reduced.
Attention to quality will be part of establishing curricula, resourcing schools and training centres,
improving information and communication technology and managing governance arrangements. It
will contribute to improving attainment by students
at all levels, particularly in science, mathematics
and languages. And it will support increased transitions to post-secondary studies. A major priority is toincrease the share of students, especially males, who
pursue a tertiary education, which has high returns.
Equity and inclusiveness also cut across the education and training sector. Related to lifelong learning,
this principle should enable all people to acquire,develop and update their skills throughout theirlives. Appropriate training and education should
be available and accessible to all. Meeting the stated aim of “accessible educational programmes forlifelong learning”, in a context of participation andinclusion, will require policies that overcome socioeconomic barriers of gender, geography and age.
Important for inclusiveness is further expanding
private schools. The popularity of private schools isrising among Qataris, who are increasingly paying
from their own resources to send their children tointernational schools. Private schools saw increasedenrolment after they became a responsibility of the14

Qatar National Development Strategy 2011–2016

Supreme Education Council and improved quality
standards. The ultimate goal is to allow all Qataristudents to participate, with school fees no longer
a driving factor in school choice. Competition is
expected to emerge not only between independent schools, but also between public and private
schools, thus promoting variety and choice.
Portability and mobility, another key policy theme,
also promotes variety and choice. Students andother stakeholders expect to have their qualifications recognized by education and training
institutes and employers to receive credit for previous studies. In addition, students and stakeholders expect flexible career and study pathways forentering and re-entering the education and training system without penalty. This approach maximizes citizens’ flexibility in planning careers,
unconstrained by life stage or location.
To realize Qatar’s vision of providing opportunities
for citizens to achieve their full potential, Qataris
must be able to move easily among education andtraining options and between those options and theworkplace. No longer can education pathways be
considered a linear progression through a verticalhierarchy of qualifications. Both vertical and horizontal pathways are needed, within and between
sectors and institutions. A National Qualifications
Framework will strengthen coordination and integration of the education and training systems.
Qatar has invested heavily in the best models of
education pratice and will continue to strive for
optimum adaptation and consistency between basic
and higher education. This will ensure that a morediversified economy has access to workers withthe required skills, while maintaining respect for
Qatari cultural values and national heritage.
The strategy for the education and training sector
identifies 20 key outcomes, with 29 related projects:
For addressing core education and training issues:• Formulate a comprehensive, integrated 10-year
strategic plan for all stakeholders, incorporating quality, efficiency and inclusiveness.

Executive
summary• Strengthen Qatari values throughout education and training.
• Support development of high-quality professionals and institutions.
• Integrate information and communication technology in education and administrative processes.
• Increase motivation and awareness of the benefits of education.
• Support evidence-based monitoring and­policy-making by key stakeholders.

Fostering a capable and motivated workforce

For improving general education:• Ensure universal access to high-quality K–12
education.
• Consistently provide high-quality K–12
education.
• Support K–12 students to fulfil their potential.
• Provide appropriate education options for children with special needs.
• Increase awareness of skills required in future
work environments.
• Improve parental, community and sectoral participation in K–12 education.
• Offer a broad range of basic education programmes for adults.

Creating a more productive, skilled and motivated labour force requires major labour market
reforms, especially in ways that encourage Qataris
to participate in the private sector. Qatar’s private
sector constitutes a small share of the economy
but has a big profile in employment— employing
almost 80% of the workforce in 2009.

For improving higher education:• Prepare Qataris for employment in the knowledge economy.
• Offer alternative pathways to tertiary education.
For improving technical education and vocational
training:• Develop an organizational model for technicaleducation and vocational training and building capabilities.
• Develop a regulatory framework to align technical education and vocational training witheducation sector and labour market needs.
• Align technical education and vocational training programmes and outputs with the needs ofsociety and the labour market.
• Increase the prominence of technical education and vocational training programmes.
For improving scientific research:• Achieve a higher level of scientific innovation.

Qatar’s transformation into a diversified knowledge economy with increased private sector participation depends on upgrading and deepening the
education, knowledge and skills of Qataris. Aligning these economic objectives requires a transition
from the current low-skill, low-productivity andlow-wage economy to a high-skill, high-productivity and high-wage economy.

With heavy concentrations of Qataris in the public
sector and expatriates in the private sector, especially in construction and services, the labour market is highly segmented.
Current employment sponsorship rules are affecting Qatar’s labour market. They provide an incentive to recruit low-cost expatriate workers and adisincentive to Qatari employment and to automation. High levels of immigration support a lowwage, labour-intensive, low-productivity economy.
The cost of importing low-skilled expatriate workers is heavily subsidized. Further, sponsorship
constrains the mobility of expatriates and thus
their ability to respond to labour market signals.
A rigid labour market hampers the developmentof a workforce commensurate with aspirations
for a knowledge economy. Although unemployment rates have been low in recent years, there
are concerns about under-employment and falling labour productivity, especially in construction
and services.
To realize the QNV 2030 goal of a capable andengaged workforce, young Qataris need to be
motivated to take advantage of the many opportunities for post-secondary education and training. Qatar will move from establishing numerical
Executive summary15

targets for the employment of Qataris to emphasizing price and market-based mechanisms thatlink wages with productivity.
Entrepreneurial development of Qataris, especially of youth and women, will be encouraged toincrease their involvement in the private sector.
Barriers to entrepreneurship will be studied andinitiatives launched, including incentives, business training and capacity-building at home andabroad in areas relevant to labour market needs.
Increasing the participation of Qataris in the private sector and reducing their dependence on
public sector employment will entail narrowing
the gaps in social allowances and conditions ofwork.
A critical question is how much the wage gaps
should narrow between Qataris and expatriates
and between public sector and private sector workers. So, wage, salary and social allowance packages, including pension schemes, in the public sector(public administration, government companies
and the mixed sectors) will be reviewed.
Training programmes will be demand-oriented
and revised to meet priority needs with attention
to content, quality and accreditation. Expanding
the role of employment and intermediary services will reduce mismatches between labour supply
and demand. Similarly, to cope with the needs ofchanging labour markets, the government willoffer incentives to employers and employees forlifelong learning through retraining.
Policies on immigration, regulations, sponsorship and licensing will be reviewed and revised,
as appropriate, to create more strategic demandfor expatriate workers in line with the aim of
recruiting and retaining the right mix of expatriate labour. Qatar’s labour laws will be revised, as
necessary, to protect further the rights and safety
standards of all expatriate workers within a comprehensive social protection framework and inaccord with international norms and standards.
Career planning and professional programmes
for targeted expatriates are critical in a knowledge
16

Qatar National Development Strategy 2011–2016

economy, so that expatriates can effectively mentor and train young Qataris in all sectors.
The 2009 Law on Human Resources Administration will be reviewed and revised to reduce the discouraging effect of labour force participation andthe recruitment and retention of the expatriate
labour force.
To help realize labour market goals, the government proposes major reforms over 2011–2016 to promote human capital development
for sustainable economic growth and to enable the transition to a knowledge economy.
The government also aims to increase labour
market efficiency in matching labour supply
and demand in the public and private sectors.
The reform measures will contribute towards eightlabour market sector outcomes.
• Expanding high-quality training opportunities
for Qataris.
• Providing incentives for Qatari private sector
employment.
• Boosting labour force productivity.
• Attracting and retaining high-quality expatriate talent.
• Nurturing and managing human resources.
• Improving labour market flexibility.
• Building the evidence base for policy-making.
• Enhancing employment and career counselling
services.
The ambitious targets for each of these outcomesrequire early, effective and sustained implementation of the reforms and associated measures ifthey are to be met by 2016.

Integrating sound social development
Qatar’s social development policy requires coordinated integration of five interrelated policy sectors: family cohesion and women’s empowerment,social protection, public safety and security, andsports and culture. The aim is to bring different
programmes, target groups and societal interests
under a single framework to support the QNV 2030

Executive
summarysocial development pillar—to make Qatar a morecaring and cohesive society built on sound social
principles, for current and future generations.
Integrating the policies of multiple interrelated
sectors within one strategy will benefit Qatar inmany ways as it pursues a progressive and modern social agenda while upholding traditionalfamily and cultural values. This approach will
ensure careful consideration and proper respectof traditional Qatari culture and Arab identity,even as necessary advances are made in social
equality, protection and justice. Qatar’s families must remain strong and cohesive and provide a supportive environment for all. At thesame time, women must be given more opportunity to contribute to the economic and cultural
world without diminishing their role in the family structure.
Just as all elements of a family must work together
to build a solid and stable household, all elementsof a social structure must work together to build
a solid and stable society. The objectives for a forward-looking integrated social development policy
will be achieved through cross-sectoral strategies
with the human, economic and environmental
development pillars.
As Qatar continues to experience economic development and progress, and becomes more integrated into globalisation processes, the integratedsocial policy of the National Development Strategy
2011–2016 will lead to stronger and more sustainable outcomes, including:• Strengthening family cohesion and women’s
empowerment.
• Safeguarding social protection and promoting
inclusive development.
• Enhancing public safety and security.
• Promoting an active and sporting society.
• Preserving and leveraging Qatar’s heritage andculture.
By building a safe, secure and stable society
through strong government and family institutions, Qatar will achieve the QNV 2030 outcomesof strong cohesive families, effective social careand protection, sound social structure and international cooperation. The National Development Strategy 2011–2016 lays the foundation forthese goals with a social development strategy toenhance individual well-being without compromising Qatar’s traditional cultural, Arab and Islamic
identity.
Strengthening family cohesion

The family is the basis of Qatari society, the foundation for all aspects of Qatar’s social structure. A
dedicated commitment to marriage, a keen understanding of personal responsibility, an appreciation of traditional values, a strong bond between
parent and child, a sense of mutual respect among
all men, women and children—these are the characteristics of healthy, cohesive families.
Qatar’s strong Arab and Islamic identity pervades
all aspects of family life and continues to informthe family structure, but changes brought on by
external pressures and internal evolution arechanging family dynamics. The changes point toa society that is expanding its cultural imprint andprogressing in positive ways while staying true to
its Arab identity. Women are central to this positive, evolving nature of the Qatari family. Even as
they maintain an adherence to valuable traditions,
women are adapting to the impacts of modernization. They exemplify the new opportunities available to all Qataris as a result of the country’s rapid
economic growth and social transition.
Traditional methods of family support, care andunity will not be lost, even as Qatari society adjusts
to new global realities. The government will work
to assist families in caring for their members andmaintaining moral and religious values and humanitarian ideals. The government will also show anincreased dedication to enhancing women’s capabilities and empowering them to participate more
fully in the political and economic spheres.
The National Development Strategy 2011–2016
advocates for the adoption of a holistic approach
Executive summary17

to child well-being. This approach will enable
Qatar to interweave important policies to create a
coherent spectrum of programmes for children ofdifferent ages to increase child well-being, leading
to better human capital outcomes.
Under this National Development Strategy 2011–2016, the government will support programmes
that:• Strengthen the Qatari family as a pillar ofsociety.
• Strengthen parental roles and reduce dependence on domestic workers.
• Reduce the incidence of domestic violence andprotect and support families affected by it.
• Provide support systems for families with special circumstances.
• Reduce economic and social vulnerability andimprove the financial management of Qatarifamilies.
• Increase child well-being, child welfare andchild protection.
• Improve support for working families, particularly for women.
• Increase the number of women in leadershipand decision-making positions while reducing the stereotyping of women’s roles andresponsibilities.
Safeguarding social protection and promoting
inclusive development

The social capital of Qatari society includes theinstitutions, relationships, attitudes and values
that govern interactions among people and contribute to economic and social development. In
these interactions, families are important and critical, but they are complemented by the wider community, including public and private institutions.
During times of rapid modernization and development, social capital can change, potentially affecting those vulnerable to diminished income. Protecting individuals from risks that may affect theirabilities to contribute to society and offering assistance to individuals in need are the central components of Qatar’s commitment to community
care and career support.
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Qatar National Development Strategy 2011–2016

Through the National Development Strategy
2011–2016, the government will make a firm commitment to establishing a social protection systemthat preserves the civil rights of all citizens, values
their contribution to society and ensures an adequate income for them to maintain a healthy anddignified life. The current system provides generous support to citizens through various means,but it will be strengthened to ensure that all members of society, including the vulnerable andneedy, have the opportunities to succeed throughexpanded employment opportunities in an inclusive society.
In promoting moves from welfare to work, the government aims to create an enabling environment
to protect the disadvantaged and vulnerable andto give them an opportunity to support themselves
and their families.
Efforts will also be made to broaden partnerships,
involving the private sector in the social protection system. Common strategic directions andsustainable solutions will be identified throughQatar’s corporate responsibility framework, sealing partnerships between the private sector andgovernment and stakeholders of the social protection system.
During the period of the National Development
Strategy 2011–2016, the government will:• Put in place an integrated, progressive andeffective system of social protection.
• Mainstream disadvantaged and vulnerable
groups into society and the workforce, ensuring inclusive growth and development.
• Leverage broad partnerships leading towards asustainable social protection system to ensurethat the business community supports andcontributes to the country’s social protection
system.
Enhancing public safety and security

Just as Qatar has a duty to provide its citizens witha secure and stable society based on strong families and an inclusive social protection system, itExecutive
summary

has a duty to provide its citizens with a secure andstable society based on effective public institutions
that guarantee public safety. A society that cares
for its citizens in a respectful and dignified way isa society that operates on the principles of justice,equality and the rule of law. Qatar is committed tobeing such a society.
Qatar’s recorded crime rates are among theworld’s lowest, despite a massive increase in the
country’s expatriate population. In 2010 Qatar
ranked first within the Arab region, and 15th of
149 countries globally, on the Institute for Economic and Peace’s Global Peace Index (GPI),
which takes into account public safety and security
and the country’s external relations.
Qatar’s National Development Strategy 2011–2016
for enhanced public safety moves beyond the traditional security concept to embrace the concept of human security and expands the scope ofprotection.
The public safety and security sector’s efforts andperformance will be enhanced through a programme to improve the management of crime
data. It will strengthen the evidence base for
improved policy-making in support of Qatar’s
criminal justice system.
Road safety will continue to be a priority, and the
National Development Strategy 2011–2016 willbuild on current initiatives that have helped toreduce road accident fatalities. Recognising that
more can be done to reduce road accidents, aholistic safe-system approach towards road safety
will be undertaken, supported by cross-sectoral
partnerships.
In fulfilling its commitment to public safety andsecurity, the government will:• Improve knowledge management of criminal
information and data.
• Reduce the number of road traffic accidents
resulting in deaths and major injuries.
• Strengthen the national approach to occupational health and safety.

• Improve building safety, including regularmonitoring of regulations.
• Establish a high-level coordinated approach tonational disaster management.
Promoting an active and sporting society

QNV 2030 aspires to build a safe, secure and stablesociety and firmly commits to creating a vibrantand prosperous future for the country. From asocial development perspective, fulfilling thatvision begins with strengthening families andensuring that all citizens are protected in theirhomes, jobs and communities. The next step is toensure long-term excellence beyond the essentials
of family and finances by enhancing the physical,
emotional and intellectual well-being of individuals, especially youth, through sports and culture.
Physical activity not only is a source of health andenjoyment for those who participate in sports, italso is often a binding element in the social andcultural fabric of society, in communities and on
the international stage. Qatar has enjoyed unprecedented global recognition in sports in recent
years. It invests heavily through the Qatar Olympic Committee and its partner clubs, sports federations and other strategic allies to provide sports
and recreation facilities, develop athletes, hostinternational competitions and raise awareness ofthe benefits of sports and physical activity.
Sports and physical activities will be incorporated within a broader preventive health agenda. The
National Development Strategy 2011–2016 will
increase the opportunities and make available adequate information for everyone, especially young
people, to be physically active, and create an enabling environment that supports and encourages
healthy and active lifestyles. The progression towards
healthy and active lifestyles will further support andpromote local sports participation and development.
By developing an array of first-class sports facilities,
providing a structured and progressive development pathway for national athletes and continuing
to host regional and international competitions
Executive summary19

and events, Qatar will be well positioned to meet
QNV 2030’s goal of tolerance, constructive dialogue and openness through the common sporting
principles of teamwork, fairness and excellence.
Under the National Development Strategy 2011–2016, the government will:• Educate and engage the public on the importance of healthy and active living and increase
the opportunities for people of all ages andability to take part in physical activity.
• Ensure adequate, appropriate and accessible
facilities for recreational and competitive sports.
• Enhance talent development programmes forgenerating sporting success.
Preserving and leveraging Qatar’s heritage andcultureDespite rapid socioeconomic change over a relatively short period, Qatari society has maintained
the essence of its culture and continuity with thepast. This continuity includes observing the fundamental principles of Islam, maintaining theinherited status and prestige of the leading families and preserving the family unit as the core ofsociety. A primary and persistent challenge is tomaintain a proper balance between modern life
and the country’s cultural and traditional values.
Qatar is meeting this challenge in many ways,
through cultural exchanges, athletic competitions, enriched academic curricula targeting artistic development and more. The Doha Capital of
Arab Culture 2010, for instance, was a successful,year-long event celebrating the arts, music andfilm through conferences, cultural summits andmutual knowledge sharing. Qatar is also increasing attention to its own history through enhanced
preservation of heritage sites and an ongoing commitment of resources to new museums and education programmes.
By thoroughly embracing its cultural identity inthe context of its diverse population, Qatar will
be well positioned to protect its unique character while continuing to foster a creative and20

Qatar National Development Strategy 2011–2016

exceptional society. The National Development
Strategy 2011–2016 will enable the cultural growthof Qatar’s people and forge new international relationships, while solidifying Qatar’s standing as acentre of Arab culture through its own distinctive
national identity.
The National Development Strategy 2011–2016
will also guide the development of a strong cultural evidence-base to support future cultural policy
development and improve decision-making in thecultural sector.
Under the National Development Strategy 2011–2016 the government will:• Increase demand and support for diverse cultural activities.
• Increase youth appreciation for and participation in culture.
• Improve the management of cultural resources.
• Attract and nurture high-quality talent to stimulate the growth of the culture sector.
• Conduct research and provide information on
the growth and potential of the culture sector.
• Raise Qatar’s profile and standing as a culturaldestination and centre for cultural exchange.

Managing environmental development
Qatar’s National Development Strategy 2011–2016
for the first time explicitly aligns the growth ofnational prosperity to the realities of environmental constraints. By establishing a programme ofstrengthened environmental management acrosseconomic and natural resource sectors, the Strategy sets out a framework for continuing economic
growth that avoids penalizing future generations.
Advancing specific actions to conserve water,
improve air quality, manage waste and protect biodiversity, the Strategy adheres to the foundational
concept of intergenerational justice.
The strategy for environmental management calls
for interrelated actions that cut across all areas ofenvironmental management. Setting specific targets, it establishes a comprehensive programme topreserve the quality of life for future generations.

Executive
summary

Water will be better conserved and protected fromdegradation. Gas flaring will be reduced. Expanded recycling will greatly improve solid waste management. Careful monitoring and regulation willprotect vulnerable species and broadly preserve
Qatar’s natural heritage. Urban spaces, subject tointense construction over the past decade, will behealthier and more liveable as green spaces areadded.
Cleaner water and sustainable use

Among the various environmental concerns facing Qatar, the most pressing is linked to the country’s most acute scarcity—that of water. With oneof the world’s lowest levels of rainfall, Qatar relies
on water from desalination, groundwater andrecycled water, and all three face stresses. Notwithstanding the pressures, Qatar’s consumption andnetwork leakage rates are high. Per capita water
use is one of the world’s highest.
Qatar will enact a comprehensive National Water
Act establishing an integrated system of quality
requirements, discharge controls and incentives
for conservation—in place of today’s fragmented
system of laws and regulations. The goal is a setof policies and regulations for the government
to align consumption and supply over time while
protecting water quality.
Cleaner air

Qatar has two categories of air quality challenges. First, various local pollutants mix with particulates in the air—including chronically high levelsof dust—to cause air quality problems that contribute to respiratory illnesses. Second, carbon
dioxide emissions, mostly from energy production, add to greenhouse gases and contribute to
global climate change.
Qatar will develop a national policy to manage
air pollution, greenhouse gas emissions and thebroader challenges of climate change. All sectorsof society­— especially the private sector—will havea role.

Improved waste management

Affluent societies tend to produce large quantities of waste, and Qatar is no exception. With anactive construction business, extensive hydrocarbon sector and growing number of high-income
households, Qatar creates more than 7,000 tonnesof solid waste each day.
Qatar will adopt a multifaceted strategy to contain the levels of waste generated by households,
commercial sites and industry and to recycle
much more waste. In approaching the challengeof improved waste management, the government
recognizes a hierarchy of actions to alleviate pressures on the environment, with the most preferable goal being the avoidance of waste. Where
waste cannot be avoided, the goals would be to
reduce it, reuse it and recycle it.
Nature and natural heritage sustainably managed

In Qatar, as in many countries, biodiversity is facing
threats from a range of human activities. Population
growth and rapid urbanization have put pressure on
the delicate balance of natural endowments, crowding out some elements in the biodiversity mix. Construction and industrialization are impinging on
fragile coastal habitats and disrupting marine life.
International shipping and trade have introduced
invasive species that pose threats for indigenous species. Overfishing has emerged as both an ecologicalconcern and a threat to future food supply.
To support needed analysis and eventual protection of the country’s biodiversity, the government
will back detailed surveys that establish biodiversity baselines to enable decision­makers to build new
protections based on solid evidence. The National Development Strategy 2011–2016 envisions aseries of practical steps, beginning with establishment of a central database by 2016 to inform decision-making, improve management plans and support regional activities. The database will draw oninternational best practice in design and could
eventually be extended to cover all Gulf Cooperation Council countries.
Executive summary21

A healthier urban living environment

Strategic partnerships

Doha has grown exponentially, supported by aconstruction boom of striking contemporary
buildings. But the capital lacks the benefits thaturban green spaces provide. To continue Doha’s
expansion without incorporating greenery andopen spaces would increase Qatar’s sustainability
challenges. Urban conditions would become more
crowded over time, and more subject to noise andpollution. Bringing a green dimension to urban
planning could strengthen sustainability andmake cities more liveable.

Addressing environmental concerns is a cross­generational, cross­border exercise. One key function of government in the environment sector is
to forge strategic partnerships with neighbouring
countries as well as private firms and internationalorganizations such as such as the United Nations
Educational, Scientific and Cultural Organization,
the United Nations Environment Programme andthe World Health Organization, which can provide
key knowledge, human resources and technology.

Significant shifts in the makeup of Doha are envisioned. The government is devoting special attention to the urban environment. Although Doha’s
initial design did not incorporate green spaces,
the government’s strategy for improved environmental management calls for the city to be retrofitted in ways that more effectively balance thenatural and built environments. To make Doha agreener city, the government plans a network ofgreen spaces as ribbons of tree-lined areas rather
than large, open parks.
An increasingly environmentally aware
population

Successful environmental management will
require active engagement through society. Largecommercial corporations and policy­makers haveimportant roles, and so does every individual.
There is also evidence that a deeper environmental awareness is growing. For example, schools
have added environmental studies programmes tothe curriculum.
The government will enlist the population in supporting and sustaining improved environmental
management. The campaign to protect Qatar’s
environmental endowment will draw on values
embedded in the country’s religious and cultural
heritage. The notion of protecting the environment for the benefit of future generations has
broad appeal.

22

Qatar National Development Strategy 2011–2016

Qatar’s environmental challenges are shared tosome degree by countries in every region of theworld. Qatar will adopt an outward-looking, internationalist view to build partnerships that maximize the chance of successfully adapting both policies and technologies.
Within the Gulf region countries share the challenges of hydrocarbon-driven growth and desert
conditions, including water scarcity. Moreover,because pollutants do not stop at national borders, environmental problems spill over, requiring
regional rather than national solutions. Strong
regional cooperation will require continuous
diplomacy and cooperation at all levels. Just as thenational government will require national databases to support environmental regulation andpolicies, the Gulf region will need regional databases to support regional initiatives.
The private sector’s critical role in environmental conservation and preservation is understoodin the context of corporate citizenship. Companies can be a source of pollution as well as incubators of innovations that restore the ecological balance. As Qatar diversifies beyond hydrocarbons,
there is clear potential for the country to become
a global leader in the environmental sector. Frontier research and development initiatives currently under way at the Qatar Foundation’s Qatar Science and Technology Park can help realize thispotential. Doha may emerge as a global laboratory for addressing urban water tables, creating a

Executive
summary

biodiversity database and launching a regional air
quality monitoring programme.
Improved governance and outcomes

A culture of evidence-based policy-making will
be needed, backed by information systems that
ensure both informed decisions at the outset andcontinuous monitoring to guarantee complianceand, over time, measure impact. To make concrete the principles of gathering and sharing better information, the Ministry of Environment will
mandate new reporting requirements, with all
major industrial companies submitting quarterly environmental performance reports covering
their emissions, water discharge and hazardous
waste treatment. It will also provide a template
for all companies to use for these reports.
The government’s agenda will require organizational changes and substantial capacity—strengthening institutions responsible for theenvironment. Although many parts of government and the private sector will be involved,
the Ministry of Environment will take the lead.
Expertise from around the world will be tapped
to ensure that the government has access to themost promising ideas and innovations. In time,
Qatar will emerge a regional or international leader in environmental technologies andapplications.
Interventions to be initiated over 2011–2016 will
put Qatar on a path of environmentally sustainable development.
The environmental management strategy envisions a broad shift in laws, regulations, management systems, technologies and attitudes, working
towards seven outcomes:• Cleaner water and sustainable use.
• Cleaner air and effective climate change
responses.
• Reduced waste, more recycling and more efficient use.
• Nature and natural heritage conserved, protected and sustainably managed.

• More sustainable urbanization and a healthierliving environment.
• An increasingly environmentally aware
population.
• Improved governance and regional and international cooperation.

Developing and modernizing public
institutions
Many of the challenges and opportunities in the
National Development Strategy 2011–2016 transcend the traditional boundaries of individual
public agencies, and thus require a higher levelof interagency collaboration and cooperation. A
whole-government approach will be adopted toaddress cross-cutting issues. Agencies will work
across portfolio boundaries as an integrated government. This approach will be applied to policy
formulation, to programme development and to
the delivery of outcomes.
Public sector reforms will be customer-oriented,
with delivery systems and interfaces improvedand centred around people and businesses. To
speed decision-making and execution, greater
authority will be provided to selected agencies—
tied to increased capability and accountability. To
enhance delivery, competition and market mechanisms will increasingly be introduced.
Institutional development and modernization of
Qatar’s public sector will require a phased, prolonged effort to achieve well planned structuralchange. Initially, in a foundation building phase,change will be focused on achieving ownershipby all ministries and agencies, including that of
public sector employees. Change management
will balance the pace of reform with the ability toincorporate and sustain it.
Two linked concepts—based on benchmarking
best practices in other countries that have successfully modernized their public sectors—underlie institutional development and modernization.
One is the set of drivers of modernization, factors that influence performance and the need to
Executive summary23

modernize and that serve as measures of institutional success: the public sector’s efficiency, effectiveness, value creation, transparency, accountability, relevance and customer engagement. The
other is the set of levers that institutions must
apply to modernize: policy and planning, budget and financial management, human resources
development, organizational alignment, procurement, institutional processes, information technology and performance management.
As part of the situational analysis and diagnostics for the institutional development and modernization strategy, government central functions,ministries and agencies responded to a questionnaire intended to assess the levers that institutions
need to apply to enhance public sector performance. From the whole-government response, thepolicy and planning and performance management levers stand out as requiring greatest capacity improvement. At the institutional level there
is considerable variation among ministries andagencies in the ranking of the levers, with performance management, human resources and policy
and planning offering opportunities for capacity
development.
To build a strong foundation, two programmes
must start during the planning phase: expanding
the support of central government functions anddeveloping a public sector performance management framework. Because many line ministries
and agencies lack the capabilities needed to implement all the National Development Strategy 2011–2016 projects, the central functions in government
will provide coordination among ministries, offering objective advice and defining challenges thatcannot be addressed by a single ministry. The performance management system will focus efforts
and resources on ensuring that the National
Development Strategy 2011–2016 is implemented
successfully.
Key performance indicators will inform ministries and government agencies about gaps in performance and ways to bridge them in moving forward, as will a set of whole-government indicators
24

Qatar National Development Strategy 2011–2016

for measuring countrywide outcomes. As the performance management system becomes more
embedded in the reporting structures of government, the number of indicators will be expanded.
Careful sequencing of projects will accommodate
links across the levers for public sector modernization: for example, capacity building in financeto reform budgeting processes and in informationand communication technology to develop citizencentric platforms and a central database. Intermediate steps for modernization have been benchmarked, and short- and medium-term targets set.
Building on this information, targeted projects
have been developed, prioritized and sequenced
over 2011–2016, for government as a whole and forindividual institutions.
A three-phase building block approach to modernization has been developed. The first and longest phase is laying the foundation for capabilities
at the whole-government level. The second phase
is embedding institutional capabilities. The third
phase is developing cross-institutional excellencein delivering services.
During much of the National Development Strategy 2011–2016 period, institutional development
and modernization will be devoted to the foundation stage and to six focus areas:• Strategic policy and planning.
• Budget and financial management.
• Organizational alignment.
• Human resources development.
• Enabled institutional processes.
• Performance management.
Each focus area derives from the levers of public
sector performance, but all have outcomes that
directly affect the seven drivers of public sector
performance: efficiency, effectiveness, value creation, accountability, transparency, engagement
and relevance.
For these six focus areas, 16 targeted projects on
the whole-government have been designed to bring
Qatar’s public sector up to best practice. TheseExecutive
summary

projects are part of the first foundation-laying stepin the long-term modernization journey. Eachproject addresses a major gap, with its timing andimplementation depending on the capacity andreadiness of each institution. The proposed projects allow setting clear targets and refining themas the projects are planned and implemented.
They will be reviewed and adapted, as needed, ina collaborative process with the lead stakeholders.

Moving from the identification of strategic
responses (see table 1) to the implementation of
specific interventions requires careful planning byimplementing agencies, supported by the centralized functions of government. The concepts andtargets identified in the Strategy and backgroundsector reports will need to evolve into detailed
project blueprints driven by a focus on achievable
results that support the key strategic goals.

The national institutional development and modernization programme will promote an outcomebased approach to strategic planning as an effective means of managing resources and advancing
transparency and accountability. It will foster aculture based on performance and cultivate thedevelopment of public service delivery−oriented
mind-sets.

These blueprints must include logical assessments
anchored in sound diagnostics, proven approaches and learning; the identification of measurable
outputs, outcomes and impacts against which progress can be measured and evaluated; clear identification of accountabilities; and built-in mitigation
measures that address identifiable risks. Of course,
the financial and human resources needed to manage and implement the project and then to sustain
its benefits must be in place. And project risks andsuccess will be critically influenced by stakeholder
awareness, understanding and ownership.

Advancing from strategy toimplementation
Qatar’s National Development Strategy 2011–2016,
comprehensive and multidimensional, presents
different implementation challenges in its different parts (table 1). While the process of building
the machinery for implementation has alreadystarted, it needs to be accelerated and the achievements need strengthened.
Successful implementation will depend first andforemost on the demand by the country’s leadership for regular information on progress andresults. It will also depend on mainstreaming thestrategy across the whole government. Ministries
and agencies will need to take ownership of thestrategy within their own operational plans andaccept accountability for delivery. At the centre,
the strategy will have to influence processes thatdrive crucial decisions on how resources get usedand provide operational tools that allow specificprojects and policy proposals to be assessed in an
integrated way. Significant challenges lie ahead,particularly in building the human and institutional capabilities for effective planning and project execution, but also in providing the legal basis
for some of the proposed changes.

Under the National Development Strategy 2011–2016 a portfolio view of projects is needed to ensure
proper integration and sequencing of activities, todirect resources to priorities and to provide “value
for money”. At the level of the implementing agency, this portfolio perspective will emerge throughthe development of strategic and operational plans
within a broader sector focus. At the national level,
funding priorities will be articulated throughreformed budget processes and a programmatic
approach to public investment planning.
To implement the National Development Strategy,
ministries and agencies will need competent project management functions. Where these do notexist, they will need to be established as a priority.
In other parts of government, existing functions
may need to be strengthened. Over what could
be an extended transition period, some agencies
may have to “buy-in” such services, but this must
be under arrangements that successfully transfers knowledge and builds national capabilities.
Human resources constraints will also need to beaddressed across a much broader front.
Executive summary25

Table 1

Qatar’s 20 key challenges

Qatar National
Vision 2030 pillar

Promotingsustainable
prosperity

Promoting humandevelopment

Taking an integrated
approach to soundsocial development

Sustaining theenvironment for future
generations

Developing modern
public sector
institutions

26

Major challenges

Strategic responses

Ensuring sustainability in a setting where hydrocarbon
resource depletion is still the dominant source of income

Establishing a hydrocarbon depletion policy; sustaining highrates of saving and making sound investments in human,capital and financial assets for the future

Promoting stability in an environment where hydrocarbon pricevolatility creates risk and presents challenges for calibrationof economic policy

Reforming budgetary and fiscal processes, public investment
programming, liquidity management and domestic capital
market development

Enhancing efficiency in the use of all resources to support
high standards of living for current and future generations

Promoting competition, trade and investment; improving
regulation; strengthening demand management for water,
power and fuel; reforming agriculture

Diversifying the economy to create durable wealth and support
wider societal viability

Bolstering enterprise creation and private sector development;
improving the business climate, strengthening regional
integration; reforming the labour market

Rebalancing the healthcare system to reduce the emphasis on
hospital-based care and increase integration between levelsof careEstablishing an integrated healthcare system to shift thebalance of care towards a patient-focused, preventive andcommunity-based model

Meeting critical needs for a high-quality workforce across thehealth sector (and affecting other sectors)

Developing and implementing a national workforce plan thattakes a multifaceted approach and optimizes the skills mix

Raising the achievement of Qatari students at all levels,
especially in math, science and English and, through that,
increasing educational attainment

Strengthening reforms in K–12 and higher education to easedemand and supply constraints

Coordinating education and training providers and aligningwith labour force needs

Addressing quality, efficiency, inclusiveness and portability
across the entire education and training systems

Aligning labour market composition of Qataris with theobjectives of a diversified knowledge economy

Realigning demand and supply in the Qatari workforce, with anemphasis on continuously upgrading skills

Reducing reliance on low-cost, low-skilled foreign labour

Reviewing the sponsorship law and identifying ways of
attracting and retaining higher skilled expatriate workers

Balancing the forces of modernization and globalization withthe support of traditional Qatari family values and patterns offamily formation

Implementing cross-cutting measures to strengthen family
ties, values and relationships

Strengthening social inclusivenessLaunching a multistakeholder programme that strengthens an
inclusive social protection system

Improving road safety and ending the growing epidemic oftraffic accidents, particularly among youth

Introducing a holistic approach to road safety, with crosssectoral partnerships

Preserving traditional Qatari culture and Arab identity

Using culture as a platform to safeguard and develop Qatar’s
national heritage

Encouraging a more active lifestyle for young people, toreduce the health-related risks of inactivity

Promoting local sports participation and development as partof a comprehensive, active lifestyle programme

Reforming unsustainable water consumption patterns

Establishing an integrated water management plan across thevalue chain

Encouraging sustainable urbanization and consumption
patterns that reduce environmental stresses

Promoting more sustainable urbanization and a healthier living
environment

Strengthening weak institutional capacities

Strengthening the role of central functions to support
institutional development and modernization

Expanding human resources capacities across the public
sectorApplying policies to attract talent, including staff development
programmes

Establishing a centralized system for managing for results andfor linking resource allocation to strategic plans

Launching a public sector performance management
framework linking institutional performance to strategic plans
and budgets

Qatar National Development Strategy 2011–2016

Executive
summary

Human resources shortages in key sectors could
undercut delivery of key outcomes. For example,
the Strategy calls for a large expansion of primary and preventive healthcare. But Qatar has only
1.9 primary care physicians for every 10,000 people, far below the World Health Organization recommended level of 5.6. This picture of acute skill
gaps permeates the public sector.
To respond to constraints on human capabilities
in the public sector, the Cabinet’s Central Human
Resources Department will lead efforts to createa central recruitment plan. Ministries assigned
responsibility for managing particular programmes will as a priority carry out skills assessments and identify gaps that need to be filled.
Partnerships with universities, the private sector
and others will be explored as a means of bridging capacity shortfalls. But to ease human resources constraints, it may be necessary to modify the2009 Law on Human Resources Administration sothat it does not inhibit efforts to retain Qatar’s besttalent in the public sector. Given the small number of citizens, the increasing demands on government and the complexity of Qatar’s economy andsociety, a strategic and flexible approach to therecruitment of high-level experts and specialists in
the global market place will be considered.
Building local capabilities in the public sector
is an imperative. A concerted capacity-building
effort across all sectors of government will be
spearheaded by the Institute of Administrative
Development, supported by the Cabinet’s Central
Human Resources Department. The Institute willbuild and operate a world-class training centre tohelp agencies develop the capabilities they need torealize their strategic goals and to assist Qataris indeveloping their career potential.

Budget resources will be made available to support identified National Development Strategy
priorities. Funds will be allocated for recruiting
new personnel in areas where skill gaps need tobe filled or for procuring professional technicaland advisory services. Initially, limited resources may also be made available to support needed

capital expenditures. The Ministry of Economy
and Finance’s Budget Call Circular will set thepolicy and provide technical and fiscal parameters
to guide budget preparation. The central functions of government will provide targeted support
for implementing agencies as they adjust to newarrangements.
The FY2011 budget will be prepared under the
Budget Law of 1989. However, a functional classification of expenditure (based on the United
Nations definition of government functions andsectors) will be piloted to support sectorwide
approaches to budget preparation and to pave
the way for programmatic budgeting focussed on
results. Concerned agencies will work collaboratively to prepare budgets for projects that serve
common (programme) goals. In this context, theMinistry of Economy and Finance will consider
agency budgets together and consult with agencies
as a group rather than bilaterally.
Beyond FY2011 momentum will build towards
programmatic budgeting, anchored in a new
functional classification of expenditures andbased on strategic and operational plans developed and owned by ministries and agencies. New
templates and technical guidelines for the preparation of projects and budgets will be preparedto support budget modernization processes, andrelevant training will be provided. By FY2013 or
FY2014, it is anticipated that significant capitalprojects will be considered within a public investment programming framework that would support a portfolio based assessment. By that time,
too, fiscal planning parameters will be firmly anchored in a forward looking macro-fiscal
framework.
Successful implementation will require closing
information gaps. In the process of preparing the
National Development Strategy, much new information has been unearthed, but a strategic, systematic and sustainable approach is needed forcollecting and disseminating statistical information. The Qatar Statistics Authority is mindful ofthese needs and working to meet them.
Executive summary27

The participation of stakeholders and target
groups in project design and implementation canraise awareness, increase trust and ownership, lead
to better project design, reduce risks and heighten
the chances of beneficial results. But robust participatory processes may not always be sufficient.
Some goals will be achieved only if the government persuades other actors to alter their attitudes and behaviours. To support some elementsof the National Development Strategy 2011–2016
strong advocacy campaigns will need to communicate clear messages.

At the national level, evaluation will be an important source of knowledge about what has worked
or not worked—and about why and how social,human, economic and environmental dimensionsof the Strategy have interacted.

The final ingredient of successful implementation
is monitoring and evaluation to support learningand better decisions.

In the pages that follow, Part 1 of the National
Development Strategy 2011–2016 describes how
the Strategy was prepared and how it addresses
the major challenges identified in QNV 2030. It
also presents the broadly favourable economic
outlook for 2011–2016 and the resources likely to
be available to support the Strategy. Part 2 goes
into considerable detail on the goals, outcomes
and targets for each of QNV 2030’s four development pillars: sustaining economic prosperity,
promoting human development, taking an integrated approach to social development and sustaining the environment for future generations.
Part 3 identifies the programmes and priorities for developing and modernizing public sector institutions in support of the Strategy. It also
charts the pathways for implementing the Strategy’s many programmes and projects, stressing
the imperatives of monitoring and evaluation togather critical information on performance tothe strengthen accountability for delivering theagreed outcomes.

At the project level, successful implementation
requires built-in systems to monitor outputs andresults. Through active and continuous trackingof milestones at the ministry and agency level,
the government can gather critical informationon performance and strengthen accountability
for delivering agreed outcomes. Active monitoring of project performance will enable implementing agencies to identify obstacles and tackle them
before they derail projects or jeopardize outcomes.
At the sector level, systems will aggregate information and distil lessons that have broader applicability. In due course, sector spending reviews could
be considered, as might sustainable development
audits. Consideration will be given to where within government the new review functions would belocated.

28

Qatar National Development Strategy 2011–2016

A mid-term assessment of the National Development Strategy at project, sector and national levels in the second half of 2013 will inform futurerefinements of strategic directions.
*     *     *Part 1
Agenda and resources

Chapter 1
Building Qatar’s firstdevelopment strategy

1

Building Qatar’s firstdevelopment strategy
Qatar stands at a defining juncture. After unparalleled economic expansionthat has created widespread prosperity, the government has produced
Qatar’s National Development Strategy 2011–2016, in line with Qatar
National Vision 2030 (QNV 2030) and guided by Qatar’s Permanent
Constitution, to take this prosperity into the future.

QNV 2030 established a framework of aspiration,
calling for programmes and projects that ensuresustainable prosperity for future generations.
After launching QNV 2030 in October 2008, thegovernment led an extensive process of stakeholder consultations, studies and analyses that culminated in this National Development Strategy 2011–2016. The Strategy identifies specific actions andoutcomes to overcome challenges and advanceQNV 2030 goals.
The Strategy recognizes that in less than a generation, through development of substantial hydrocarbon resources, Qatar has supported a phenomenal economic and social transformation. Per
capita income is the highest in the world, basic
and secondary education are universal and childmortality has been substantially reduced.
But Qatar’s surging economy has relied on theinflux of a large expatriate workforce, generating a rapid increase in population, especially over
2006–2009. Accelerated urbanization, mega-development projects and a rising demand for scarce
resources—particularly water—have generated
stresses. Modernization is challenging the traditional Qatari family, national identity and culturalvalues and straining health and education services.
Qatar’s rapid change necessitates taking stock ofneeds and finding new approaches to sustainable
34

development consistent with QNV 2030’s chosen
path for the future.
QNV 2030 re-establishes core values while embracing future goals endorsed by all sectors of society. It reflects national aspirations, objectives
and values. However, a national vision—even
one that calls for long-term transformation—is
not a blueprint for action. Reaching the action
stage requires following through on the visionby designing a development strategy that setsout specific programmes and projects for political leadership to initiate over a given timeframe.
While QNV 2030 lays a foundation, it is the implementation of the strategy that drives the longterm transformation of society through economic
and social development.

From vision to strategy: tackling the
big challenges
Qatar’s sound management of its hydrocarbon
resources will continue to improve standards ofliving. But economic growth cannot be the only
goal; other values are also vital. Qatar’s National
Development Strategy 2011–2016 aims to balance
the five major challenges identified by QNV 2030:• Moulding modernization around the preservation of Qatari culture and traditions.
• Balancing the needs of this generation andthose of future generations.

chapter• Managing growth and avoiding uncontrolled
expansion.
• Matching the size and quality of the expatriate labour force to the selected path ofdevelopment.
• Aligning economic growth with social development and environmental management.
Preserving cultural traditions in a global, interconnected world is difficult. The wider choices
accompanying economic and social progress canchallenge some deep-rooted social values. Yet it ispossible to balance modernity and tradition, reaping the benefits of economic and social development without sacrificing the stabilizing effects ofcultural continuity.
In following a path of sustainable development,
Qatar will strive to meet the needs of this generation without compromising those of future generations, ensuring what is often called intergenerational justice. Adhering to this framework,
the government will efficiently invest the financial returns from hydrocarbon wealth, deliveringhigh returns. Because overly aggressive economic
development could tip the environmental scales
irreversibly, Qatar is choosing a development paththat ensures continuing economic growth without
unduly harming the environment or disadvantaging future generations.
Qatar is setting a development pace consistent
with sustainable improvements in livelihoods andquality of life. An unrestrained and imbalanced
economic growth pattern depletes resources, overstrains the economy and derails the overriding
objective of sustainability. Stresses from economic
overheating or financial imbalances can manifest
themselves in rapidly rising prices which, if persistent, create economic and social vulnerabilities.
Qatar’s current population growth stems frommassive urban development, large-scale investment projects and rising government expenditures, which have led to a large increase in expatriate workers. To determine the suitable sizeand quality of its expatriate labour force, Qatar

1will weigh the consequences of recruiting workers from overseas—compromised cultural rights,
increased housing and public service needs, diluted national identity—against the anticipated economic benefits.
Development can have negative effects on thenatural environment. Environmental degradation can, however, be reduced through advanced
technologies. But a development pattern based on
the energy industry means that some environmental impacts are inevitable. Qatar is committed to
enforcing international standards for environmental protection when designing and implementing
industrial projects and to making its future development path compatible with protecting and conserving the environment.

Preparing the National Development
Strategy 2011–2016
National development is a long-term process that
requires policies and investments at every level ofgovernment. To manage multiple changes effectively, governments mobilize commitment to an
expanded set of goals and develop capacities to
respond to new challenges. Development, which isa continuous process, brings about a broad societal transformation that better prepares people torealize their potential and to pursue the life they
have reason to value.
Thus a development strategy sets out specificactions to help the country realize its goals, alongwith the necessary mechanisms for monitoring
progress and making mid-course corrections whenneeded. Qatar will be alert to feedback from theeconomy, ready to adjust the programme where
necessary. In this way the strategy is organic, evolving to meet changing conditions.
Identifying national initiatives

Qatar’s National Development Strategy 2011–2016translates QNV 2030 into specific actions and targets that represent the first wave of changes tolaunch the next chapter of Qatar’s transformation.
Building Qatar’s first development strategy

35

Developed through a combination of top-down
and bottom-up approaches (figure 1.1), Qatar’s
National Development Strategy 2011–2016:• Identifies the most critical development goals
and challenges.
• Outlines strategic initiatives aligned to QNV
2030 goals.
• Provides strategic coherence for national development planning and budgeting—movingfrom ad hoc development projects to forwardlooking, outcome-based planning.
• Strengthens public sector institutions andenhances implementation capacity for carryingout planned reforms and programmes, ensuring that cross-cutting issues are addressed.
• Builds in an adequate resource framework for
effective implementation.
Consulting broadly

Preparation of Qatar’s National Development
Strategy 2011–2016 was highly participatory andinclusive across society. Qataris and non-Qataris
from all sectors were energized, enthusiastic andengaged. Stakeholder engagement spread fromministers and prominent leaders involved in
executive groups to countless public, private andcivil society sector participants in 13 cross-sectoral task teams (figure 1.2). (The Task Team for

Culture and Sport divided and produced separate strategies, so 14 strategies were produced inall.) Each task team was led by a key agency, but all
13 included broad government participation andsought inputs from an array of stakeholders, often
through multiple sub-Task Teams.
The extensive intersectoral consultations,
including interviews, discussions, debates andresearch, were important for building a strategy
that would enjoy strong and positive public ownership from the outset. Moreover, the government benefited from a variety of inputs that havebeen crucial in identifying important weaknesses to be addressed through policies, regulations
and investments.
The General Secretary of Development Planning(GSDP) played a coordinating role through theestablishment of a National Development Strategy
Project Management Office. The office, with thesupport of other GSDP departments, developed
templates, draft terms of reference and provided
technical support to each task team.
Each task team prepared comprehensive national
sector strategies defining sectoral priorities. These
strategies, like the larger process, were developed
collaboratively using detailed situation analyses,

Figure 1.1 The National Development Strategy 2011–2016 was developed through a combination of
top‑down and bottom-up approaches• Defines national values and long-term goals
Qatar
National
Vision 2030
National
Development
Strategy
2011–2016• Defines national initiatives towards achieving Qatar
National Vision 2030 goals

Sector strategies
2011–2016
Ministry and agency strategies

36

Qatar National Development Strategy 2011–2016• Defines sectoral priorities to be integrated into the
National Development Strategy 2011–2016• Defines ministerial plans to support
implementation of sectoral strategies

chapter

1

Figure 1.2 Preparation of the National Development Strategy 2011–2016 was broadly participatory and inclusive
Executive Groups
Educated and Capable
Population

Healthy Population

Effective Qatari
Participation in a
Productive Labour ForceCaring and
Cohesive Society

Sustainable Economic
Prospertiy

Environmental
Sustainabiltiy

Supreme Education Council
Office of Prime Minister
General Secretariat forDevelopment Planning

Supreme Council of Health
Office of Prime Minister
General Secretariat forDevelopment Planning

Ministry of Labour
Office of Prime Minister
General Secretariat forDevelopment Planning

Supreme Council for Family Affairs
Ministry of Interior
Ministry of Social Affairs
Office of Prime Minister
General Secretariat forDevelopment Planning

Ministry of Business and Trade
Ministry of Energy and Industry
Ministry of Economy and Finance
Ministry of Municipality and
Urban Planning
Qatar Central Bank
Office of Prime Minister
General Secretariat forDevelopment Planning

Ministry of Environment
Office of Prime Minister
General Secretariat forDevelopment PlanningSocial Protection

Economic Management

Ministry of Social Affairs
Supreme Education Council
Supreme Council of HealthSupreme Council for Family Affairs
Ministry of Justice
Ministry of Endowment andIslamic Affairs
Ministry of Labour
Social Development Centre
Qatar Statistics Authority
Permanent Population
Committee
General Retirement andSocial Insurance Authority
Supreme Council of Information
and Communication Technology
in Qatar
National Human Rights
Committee
Social Rehabilitation Centre
General Secretariat forDevelopment Planning

Ministry of Economy and Finance
Emiri Diwan
Ministry of Environment
Qatar Petroleum
Qatar Development Bank
Qatar Financial Centre
Qatar Statistics Authority
Chamber of Commerce & Industry
Supreme Council of Information
and Communication Technology
in Qatar
Qatar University
Qatar Foundation(Education City)
Qatar Central Bank
General Secretariat forDevelopment Planning
Supreme Council for Family Affairs

Environmental
Sustainability

Enabling Task Teams
Education and Training

Healthcare

Supreme Education Council
Supreme Council for Family Affairs
Ministry of Labour
Ministry of Social Affairs
Ministry of Culture, Arts andHeritage
Qatar University
Qatar Statistics Authority
Permanent Population
Committee
General Authority for Minority
Affairs
Supreme Council of Information
and Communication Technology
in Qatar
Chamber of Commerce & Industry
General Secretariat forDevelopment Planning

Supreme Council of Health
Ministry of Interior
Hamad Medical Centre
Permanent Population
Committee
Weill Cornell Medical College
General Secretariat forDevelopment Planning
Supreme Council for Family Affairs
Qatar Petroleum
Al Emadi Hospital
Sidra Medical and ResearchCenterAspetar
Military of Qatar
Primary Health Care

Population, Labour Forceand Qatari Employment
Ministry of Labour
Supreme Council for Family Affairs
Supreme Education Council
Supreme Council of Health
Ministry of Interior
Ministry of Justice
Ministry of Economy and Finance
Ministry of Business and Trade
Ministry of Social Affairs
Cabinet Office Department of
Policy and Planning
Qatar Petroleum
Qatar University
Qatar Foundation
Qatar Statistics Authority
Permanent Population
Committee
Chamber of Commerce & Industry
Supreme Council of Information
and Communication Technology
in Qatar
General Secretariat forDevelopment Planning

Security and Public Safety
Ministry of Interior
Supreme Council of HealthSupreme Council for Family Affairs
Ministry of Justice
Qatar Statistics Authority
National Human Rights
Committee
General Secretariat forDevelopment Planning

Culture and Sports
Ministry of Culture, Arts andHeritage
Supreme Education Council
Supreme Council of HealthSupreme Council for Family Affairs
Ministry of Endowment andIslamic Affairs
Qatar Olympic Committee
Permanent Population
Committeee
Qatar University
Qatar Museum Authority
General Secretariat forDevelopment Planning

Family Cohesion and
Women’s Empowerment
Supreme Council for Family Affairs
Supreme Education Council
Supreme Council of Health
Ministry of Interior
Ministry of Social Affairs
Ministry of Endowment andIslamic Affairs
Ministry of Labour
Social Development Centre
Qatar Statistics Authority
Qatar University
Permanent Population
Committee
Qatar Foundation for Child and
Women Protection
General Secretariat forDevelopment Planning

Economic Diversification
and Private Sector Growth
Ministry of Business and Trade
Ministry of Environment
Qatar Investment Authority
Qatar Petroleum
Qatar Development Bank
Qatar Financial Centre
Qatar Statistics Authority
Chamber of Commerce & Industry
Supreme Council of Information
and Communication Technology
in QatarBusinessmen Association
Qatar University
Qatar Foundation(Education City)
Gulf Organization for Industrial
Consulting
Qatar Telecom
General Secretariat forDevelopment Planning

Ministry of Environment
Supreme Council of Health
Ministry of Municipality and
Urban Planning
Ministry of Justice
Public Works Authority
Kahramaa
Qatar Foundation(Education City)
Qatar University
Qatar Petroleum
Qatar Statistics Authority
Permanent Population
Committee
Ministry of Defense
Ministry of Environment
General Secretariat forDevelopment Planning
Ministry of Interior

Natural Resource
Management
Qatar Petroleum
Emiri Diwan
Ministry of Environment
Qatar Investment Authority
Qatar Petroleum
Qatar Foundation
Qatar Statistics Authority
Qatar University
Chamber of Commerce & Industry
General Secretariat forDevelopment Planning

Economic Infrastructure
Ministry of Municipality and
Urban Planning
Ministry of Environment
Qatar Petroleum
Qatar Development Bank
Qatar Statistics Authority
Kahramaa
Al DiarElectricity and Water Company
Public Works Authority
Port Authority
Civil Aviation Association
Chamber of Commerce & Industry
Supreme Council of Information
and Communication Technology
in Qatar
General Secretariat forDevelopment Planning

Institutional Development and Modernization
General Secretariat of the Council of Ministers, Department of Policy and Planning

Building Qatar’s first development strategy

37

Figure 1.3 The National Development Strategy 2011–2016 organizational structure
Oversight Committee
Higher Authorities

National
Steering Committee

General Secretariat for Development Planning

General Secretariat of theCouncil of Ministers• Ministry and agency plans andbudgets consistent with the
National Development Strategy
2011–2016• Public sector capacity-building

Six Executive Groups• Ensure alignment with Qatar National Vision 2030 outcomes and relevance to the challenges it identifies• Define key development issues, priorities and strategic areas for the National Development Strategy 2011–2016• Select task teams and meet their resource needs• Ensure quality assurance of task teams’ deliverables

Human Development

Human Development

Human Development

Social Development

Economic Development

Environmental Development

Educated andcapable population

Healthy
population

Effective Qatariparticipation in a
productive labour force

Caring and cohesivesociety

Sustainable economic
prosperity

Environmental
sustainability

Supreme Education Council

Supreme Council of Health

Ministry of Labour

Supreme Council for
Family Affairs

Ministry of Economy and Finance

Ministry of Environment

Institutional Development and Modernization

diagnostics and benchmarking of best regional and international practices. Each strategy wasthen approved by one of six National Development Strategy 2011–2016 executive groups and the
National Steering Committee (figure 1.3). Qatar’s
National Development Strategy 2011–2016 was formulated by integrating the 14 sector strategies.

National Development Strategy
2011–2016 programmes and projects
Aligned to the QNV 2030 goals, the programmes
and projects identified in the National Development Strategy 2011–2016, including outcomes andtargets, are from the 14 sector strategies (see pagexiv). Developed through an extensive consultative
process, taking into account the many cross-sectoral links, these reports provide profound andtransparent analysis, benchmarking, diagnostics
38

Qatar National Development Strategy 2011–2016

and prioritizations for each of the programmes
and projects at a much more detailed level than ispossible in this Strategy. Some programmes andprojects identified in this Strategy are ongoing,some are in the early planning stages, and someare entirely new initiatives.
The targets in the Strategy, a subset of those in
the sector strategies and developed with stakeholder inputs, focus on the results to be achieved by
2016. Both quantitative and qualitative, they will
be reviewed and refined, as necessary, by key stakeholders at the beginning of programme and project
implementation. This refinement will strengthen
ownership and promote a culture of outcome-basedplanning and managing budgets for results.
Each sector report has project templates to identify the key activities, placed within indicative

chaptersequenced implementation timelines, to achieve
the desired outcomes. The priorities for programmes and projects, as well as the timelines,
will be reviewed by the ministries and agencies.
The sector reports also provide the indicative
resource requirements for each programme andproject—identifying the key stakeholders in the
projects and the risks and mitigation measures
for successful implementation. In addition, somecross-sectoral links for each programme and project are given to improve policy coherence. Especially important, each report contains a basic
monitoring and evaluation framework, supported by selected monitorable indicators, to enableadjustments during implementation.

Growth with balance
Qatar’s National Development Strategy 2011–2016
calls for initiatives that will create the foundationsof sustainable prosperity, which can be achieved
only if the value of the nation’s productive base
expands—its constructed capital assets, infrastructure, human and social capital, natural endowments, technology and institutions. Growth of the
productive base provides the foundation for raising living standards for a growing population andexpanding opportunities for future generations.
The National Development Strategy 2011–2016
brings fresh thinking to the forefront with its
emphasis on balance and sustainability. Economic prosperity will be balanced with environmental
goals, and concerns and opportunities that create
benefits in both areas are emphasized. Likewise,
economic stability will support broader social andhuman development. The development of human,
institutional and social capabilities is integral toexpansion of the productive base. Initiatives that
support development in these areas will provide
a platform for enhanced productivity growth andefficiency and will create greater space for the private sector.
As part of its broader economic strategy, Qatar
will continue to exploit its rich hydrocarbon

1endowment and further develop its energy-intensive petrochemical and metallurgy sectors, consolidating its position as a major force in world energy
markets. At the same time, however, the country
will look for opportunities to diversify its productive base into new areas that add to resilience andprovide sustainable avenues of wealth creation.

Four interrelated pillars of development
The programmes and projects of the National
Development Strategy 2011–2016 reflect Qatar’s
development priorities and are linked to fourinterrelated pillars of development.
Economic development

The government is committed to the responsible
exploitation of Qatar’s hydrocarbon resources andthe wise investment of the proceeds for the benefitof current and future generations. Investments ininfrastructure, people and institutions will continue to receive priority and will provide the foundations for new capabilities and an emerging knowledge economy. Greater resilience will be achieved
through strengthened arrangements for economic management. A concerted drive towards greater economic efficiency and improved competitiveness will provide a platform for advances in
productivity and economic diversification.
Human development

Qatar will continue to invest heavily in modern
health and education systems built to the highest international standards and to provide all citizens with access and opportunities to realize theirpotential. A comprehensive, integrated system of
healthcare will help all people in Qatar live longer and healthier lives. It will also enable them toparticipate fully in economic, social and political life and contribute to sustaining a prosperous
society. Education and training programmes will
strengthen Qatari values and encourage analyticalthinking, innovation and entrepreneurship. The
capacities and skills of the labour force will be continuously upgraded and aligned with social andBuilding Qatar’s first development strategy

39

economic priorities. Developing human capacities,
especially in science and technology and throughresearch and development, will support the broader goal of engaging Qataris in a wider range of
economic activities as the economy evolves.

proactively engage in regional and international cooperation programmes that promote green
technologies and support sustainability.

Social development

National Development Strategy 2011–2016 programmes and projects in the four areas are strongly interrelated and mutually reinforcing. For
example, planned improvements in the education
system will produce graduates better preparedto participate in a modern global economy thatemphasizes knowledge-based services, healthcare
and green technologies. In this way, the education
initiatives will help build a high-quality workforce
to support goals for improved healthcare and provide expertise for designing environmental policies and technologies. In turn, increased participation in these sectors also serves the economic
goal of broadening the productive base and diversifying opportunities for future generations.

The government will promote strong family values and an effective social protection system for
all Qataris, ensuring them an adequate income tomaintain a dignified life. Broadening and deepening democratic institutions, including giving
civil society a voice in social policy, are foreseen.
Initiatives will be undertaken to further empower
Qatari women in economic and political spheres
and provide equal opportunities for them to participate at all levels of society. The criminal justicesystem will be strengthened to ensure the safety
and security of all people living in Qatar. Measures will be undertaken to preserve the country’s
national heritage and culture, enhancing Araband Islamic Qatari values and identity. The government will continue to provide progressive development pathways for national athletes. It will continue to host regional and international competitions
and events, thereby encouraging national sports
development.
Environmental development

Qatar will build an environmental management
system, aligned to the growth of national prosperity, to minimize avoidable depletion of scarce
resources, especially water, and promote sustainable use. The government is also committed to
improving air quality, reducing waste and increasing recycling. Stronger efforts will be made to protect Qatar’s national heritage and biodiversity.
The National Development Strategy 2011–2016
environment agenda encourages more sustainable urbanization and a healthier living environment. Awareness programmes will encourage asense of shared responsibility towards the environment, along with the development of positive environmental attitudes and values. Qatar will also40

Qatar National Development Strategy 2011–2016

Intersectoral links

Institutional capacity

Successfully implementing the National Development Strategy 2011–2016 programmes and projects is contingent on modernization of Qatar’s
public sector. This will require transforming institutions through capacity-building programmes,
creating a culture of innovation and performancebased management and improving public service
delivery. This will also require strengthening corevalues that instil positive attitudes and productive
work practices. Interagency collaboration will be
critical to ensure that the reforms are coherently
designed and efficiently implemented.

A programme for the entire society
The government will take the lead to deliver on
the National Development Strategy 2011–2016.
To achieve the targets, Qatar will strengthen public sector institutions, expand human resources
capacities and create new structures. Partnershipwith civil society, academia and the private sector
will be critical to achieving many of the outcomes.

chapter

In some areas, the government will act as an advocate, encouraging other actors to shift behavioursin ways that advance the goals of the National
Development Strategy 2011–2016. For example,
to raise awareness of the need to conserve waterand power, the government will lead the drive to
inform key audiences of the nation’s vulnerabilities
and the dangers of wasting nonrenewable resources. For the strategy to achieve its goals, households
will have to change behavioural patterns. Ownersof commercial buildings will need to be more conscious of sustainability concerns and support andadopt energy conservation practices.
Creative partnerships, investments and incentives can accelerate progress. Through a public investment programme, the government will
manage its capital budget to ensure that projects
are consistent with the National Development
Strategy 2011–2016. To bring in private sector
management expertise, along with knowledgeof markets, inputs and technologies, some priority projects will be structured as public-private
partnerships.
The government already has spearheaded a stringof creative efforts that will help Qatar diversify beyond hydrocarbons. The Qatar Science andTechnology Park is accelerating research, and the
Qatar National Research Fund is backing promising innovations. Enterprise Qatar, Qatar Foundation, Qatar Financial Centre and Qatar Development Bank are supporting efforts to lessen Qatar’s

1dependence on hydrocarbon exports and speed
the transition to a knowledge-based economy.
The National Development Strategy 2011–2016 also
identifies key infrastructure for which government
investment can drive a new pattern for the economy. Priority infrastructure investments targeted for
2011–2016 include wastewater treatment facilities,
recycling centres, primary healthcare facilities,
centres for higher education and skills training,
recreational spaces, and road and rail connections.
In addition, government participation throughpublic-private partnerships and startup investments will help jumpstart firms in new sectors of
the economy. The more diversified economic basewill generate expanded opportunities for the next
generation while buffering the economy fromwide fluctuations in world energy prices.

Building on momentum
Qatar’s National Development Strategy 2011–2016
is a plan of action. It presents new initiatives whilebuilding on what already exists. For projects, policies and institutions already under way, it provides
added impetus and focus.
Keys to success as the National Development Strategy 2011–2016 unfolds will be attention to measurable outcomes in each area, effective implementation, monitoring and evaluation, accountability,
and cross-sectoral cooperation and coordination.

Building Qatar’s first development strategy

41

Chapter 2
Achievements andeconomic outlook 2011–2016

2Achievements andeconomic outlook 2011–2016
On the way to achieving the many advances detailed in Qatar National
Vision 2030 (QNV 2030), Qatar has built a solid foundation for embarking
on the National Development Strategy 2011–2016. Rapid growth in the
2000s, the fastest in the world, has given Qatar one of the world’s highest
per capita GDPs. High saving, both private and public, has been reflectedin substantial domestic investment and sizeable accumulation of foreign
assets. Policy improvements and institutional advances have supported
this remarkable economic performance. Rapid development of the financial
sector, with fast expanding banking and equity markets, has served theneeds of a larger and more complex economy.

The economic prospects for 2011–2016 are broadly favourable, with the global recovery continuing,
thanks to robust growth in emerging markets andrebounding world trade. The growth of hydrocarbon income will tail off, but its level should
remain high, and expansion elsewhere in theeconomy will help keep overall GDP growth buoyant. Transport and communications, along withbusiness and financial services, could grow vigorously. Construction will grow steadily, and manufacturing growth should improve.
A substantial pipeline of infrastructure investments is planned for 2011–2016, amply meeting Qatar’s infrastructure needs in most areas
through 2016 and beyond. Although infrastructure investment will place large demands on thestate’s resources, the government’s overall fiscal
position should remain healthy. Anticipated fiscal
resources will be adequate to support the initiatives of the National Development Strategy 2011–2016. The main impacts of preparation activities
for the International Federation of Association
Football (FIFA) World Cup 2022 are not expecteduntil the latter part of the period and beyond.
44

A solid foundation for the future
Between 2000 and 2009 Qatar’s real GDP grewat an annual average of 13.1%. Over this period
Qatar’s economy has grown faster than any other,and, measured in purchasing power parity terms,
its per capita GDP is now among the highest in
the world (figure 2.1). Much of this expansion
has occurred since 2004—from 2004 to 2009 real
GDP growth averaged 17.1% a year.
Volume measures of GDP growth, large as they
are, understate the true expansion of real domestic income because they do not capture the large
gains in Qatar’s terms of trade that are a result of
rising energy prices. Estimates from the General
Secretariat for Development Planning suggest thatterms of trade gains alone doubled real income
during 2004–2008.
Good governance has been a notable factor in
Qatar’s economic success. Qatar compares favourably with other countries on corruption and governance indicators, and particularly favourably
when compared with other resource-abundantchapter2

Figure 2.1 Qatar has grown faster than any other economy, and its per capita GDP is now among thehighest in the world
Real GDP, Qatar and selectedeconomies since 2000

GDP per capita, 2009

Index (2000 = 100)

Rank

300

Qatar a65,495

Qatar

53,269NorwaySingapore

250

200
Gulf Cooperation
Council countries

150

European Monetary Union

100
2000

2002

2004

2006

2008 20095

46,443

6

Kuwait38,876

11

United Arab Emirates

38,28413

Bahrain

35,56119

European Monetary Union

Singapore
World
NorwayUnited States

349,433

United States

China

1–2

32,100na

Oman

25,82936

Saudi Arabia

23,388

38

China

6,546

97

0

25,00050,00075,000100,000

Purchasing power parity US$
na is not applicable.
a. GDP 2004–2009 adjusted using revised GDP data from Qatar Statistics Authority.
Source: International Monetary Fund (IMF) World Economic Outlook April 2010 database; IMF Qatar Article IV report and Statistical Appendix January/February 2010; National Development Strategy
2011–2016 estimates.

countries. Qatar’s institutions have not been weakened by hydrocarbon wealth nor have they been
deflected from their public purpose. While abundant hydrocarbon wealth has been associated withpoor performance in some countries (the “paradox of plenty”), Qatar has wisely invested in its
people and infrastructure.
Substantial investment in hydrocarbons has driven
economic performance. Qatar is nearing the end ofa successful 20-year investment programme in thehydrocarbon sector and is now a major player in global energy markets. Commercialization of gas resources has paid handsome dividends, and Qatar now produces and exports more liquefied natural gas than
any country in the world (figure 2.2). The production capacity of liquefied natural gas in Qatar nearly
doubled in 2010, reaching about 77 million tonnes.
Qatar’s ascent to a global supplier has been built ona strategy of leveraging state-of-the-art technology

and the expertise of international oil companies
using successful joint venture arrangements. Qatar
has established a reputation as a reliable and flexible partner with both co-investors and client markets. Investments along the supply chain in transportation and re-gasification facilities have paid
off. Other ingredients of Qatar’s successful businessmodel include aggressive marketing and vigorous
cost cutting. Qatar, now one of the lowest cost producers of liquefied natural gas, also benefits fromthe production of liquids, condensates and ethane.
Qatar’s infrastructure spending has been unprecedented. Over 2005–2009 average spending on
infrastructure for a sample of 69 countries wasapproximately 4.2% of GDP; it was 10% for Qatar.
In U.S. dollar terms, infrastructure spending in
Qatar increased 57.8% a year (figure 2.3). Qatar’s
spending on infrastructure in recent years has also
outpaced that of other countries (such as China
and India) experiencing accelerated growth.
Achievements and economic outlook 2011–2016

45

Figure 2.2 Qatar is a global leader in liquefied natural gas production
Liquefied natural gas production, by country,
2009

Qatar’s liquefied natural gas production
since 2005

Million tonnes per year
250

Million tonnes per year
50
68

200

Compound annual growth rate, 2005–2009, 17.5%
40

150

40

30

20

32

21
22

100

20

27
29

50

25

25

2006

2007

21

10

40

0

0
Qatar
(18)

Malaysia Indonesia
(13)
(12)

Algeria(10)

Nigeria(9)Australia
(9)

Other

2005

2008

2009

Note: Numbers in parentheses are percentage of world total of 227 million tonnes.
Source: International Monetary Fund Qatar Article IV report and Statistical Appendix January/February 2010; Cedigaz database.

The exceptionally high saving rate—total nationalsaving averaged approximately 60% of GDP during 2002–2009—has underwritten investments
in physical and financial assets. Investments indomestic capital projects have been significant,with gross investment consistently running justover 30% of GDP. Qatar has been investing heavily not only in economic infrastructure, but also
in social infrastructure and fixed industrial assets.
Overseas, Qatar has invested in a variety of asset
classes, including equity in private and publicly
listed companies, and has directly funded a rangeof capital projects.
Strong fiscal position

Government fiscal surpluses have been large, withthe current fiscal balance (current revenue lessoperating expenditures) on the budget averaging
18% of GDP during 2002–2009. The overall balance (revenue less the sum of all operating andcapital expenditures) has also remained firmly
in surplus, averaging about 10% of GDP over the46

Qatar National Development Strategy 2011–2016

same period. The “nonhydrocarbon fiscal balance”, which excludes hydrocarbon revenues, is in
deficit. Although this deficit has been shrinking,it is still large: 9.2% of GDP in 2009. The share oftaxes in total government revenue has been inching up. However, these fiscal metrics do not include
income that accrues to the state from the activitiesof the Qatar Investment Authority or its affiliates.
Nor on the other side of the ledger does it include
state spending outside of mainstream governmentor spending by state-linked commercial entities.
Government spending is tightly linked to hydrocarbon revenue. Although the budget is planned
based on conservative assumptions about hydrocarbon prices, which are normally well below prevailing market prices, government spending is strongly
correlated with realized oil prices and government
revenues (figure 2.4). Large year-on-year increases
in aggregate spending challenge the capacity ofsome ministries and agencies to absorb additional
resources while ensuring efficiency, value for money
and adequate social returns on public investment.

chapter

2

Infrastructure spending (US$ billions)

20

20

10

2005

2006

2007

2008

10

0

2009

2005

2006

Infrastructure spending (US$ billions)

Infrastructure spending (US$ billions)

20

20

Oman

Saudi Arabia

0

10

0

United Arab Emirates

KuwaitInfrastructure spending (US$ billions)

2005

2006

2007

2008

2005

2006

Infrastructure spending (US$ billions)

Infrastructure spending (US$ billions)

20

20

10

0

2005

2006

2007

2008

2009

2007

2008

2009

2007

2008

2009

2007

2008

2009

10

0

2009

Bahrain

Qatar

Figure 2.3 Qatar’s spending on infrastructure over 2005–2009 has outpaced that of other countries
experiencing accelerating growth

10

0

2005

2006

Note: Infrastructure spending based on awarded development projects in power, water and transportation with a total budget of more than US$50 million over the execution period.
Source: MEED Projects database.

Recent policy improvements

Qatar’s hydrocarbon sector has long been developed through beneficial joint ventures with foreign
investor partners, particularly the major international oil companies. Outside the hydrocarbon andenergy complex the presence of foreign players has
been more limited, but this pattern is changing.
In 2000 Qatar began to accelerate the easing ofrestrictions on foreign participation in the non­hydrocarbon economy. Although domestic majority ownership is still required in some sectors,
100% foreign ownership is permitted in a growing list of sectors, including industry, agriculture,
health, tourism, education, energy, mining andservice sectors. In addition, 100% foreign ownership is permitted in the special economic zones of
the Qatar Financial Centre and the Qatar Foundation (including for tenants of the Qatar Scienceand Technology Park).
Partly to attract and retain foreign investment,
Qatar has simplified its corporate tax regulations,with foreign investors now subject to a low flat-rate
tax of 10% on their profits. Qatar’s liberal capital account regulations have long permitted free
remittance of profits for all investors.
Fledgling initiatives aim to bolster the private
sector, and support for private sector development is building. For example, the second player
Achievements and economic outlook 2011–2016

47

Figure 2.4 Government spending is strongly correlated with oil prices and government revenue
Government revenue (QR billions)
Government spending (QR billions)

Oil price (West Texas Intermediate spot price; US$ per barrel)

180

140

150

120

120

100

90

80

60

60

30

40

0

20
2002

2003

2004

2005

2006

2007

2008

2009

Source: International Monetary Fund (IMF) Qatar Article IV report and Statistical Appendix January/February 2010; IMF Qatar Medium-Term Baseline Scenario; U.S. Energy Information Agency Petroleum
Statistics database.

in Qatar’s telecommunications market representsa joint venture between Vodafone (51%) and the
Qatar Foundation (49%). The 2006 competition
law includes antitrust provisions as well as safeguards for consumers. Qatar has also drawn on
independent power producer and water agreements for cogeneration of power and desalinatedwater. In addition, private equity has been carved
out of selected state-owned companies throughseveral initial public offerings.
In 2009 the establishment of Enterprise Qatar wasannounced to catalyse services that support thecreation and expansion of small and medium-size
enterprises. For its part, the Qatar Development
Bank is expanding its activities to ensure greater
relevance and more effective delivery of services toprivate sector clients.
Institutional advances

Promulgated in 2004, the Permanent Constitution
establishes, among other things, the principles
48

Qatar National Development Strategy 2011–2016

that guide the regulation of the state and its institutions. From an economic perspective the Constitution guarantees the rights to private property
and economic freedom and establishes state ownership of the country’s hydrocarbon wealth. Under
the Constitution executive powers are vested in
the Emir, assisted by the Council of Ministers.
The Council of Ministers, headed by the Prime
Minister, manages the financial, administrative,
legal and regulatory infrastructure of the country,
deciding on and implementing economic projects
and delivering public services.
To meet new demands and strengthen performance, Qatar has embarked on a programme ofreforms to consolidate decisions of national significance about Qatar’s future within an integrated framework. At an operational level the reforms
emphasize improvement in public services anddelivery of value for money, thereby enhancing
opportunities and conditions for the country as
a whole as well as for its individual citizens. Byclarifying national development priorities andchapterdirections, these reforms aim to provide greater
predictability for the private sector and civil society, leading to better alignment of interests acrossthe country.
A significant rationalization of the functions androles of ministries and agencies is under way,
aimed at tightening policy cohesion, improving
service delivery, eliminating waste and enhancing public sector accountability and performance.
Implementation of these changes across the wholeof government is now proceeding, with the General Secretariat of the Council of Ministers having
been given the mandate for planning and monitoring performance across government. An initiative of particular importance has been expanding the role of the former Ministry of Finance toinclude economic policy support, advice and coordination. In recognition of this expanded mandate, in 2008 the Ministry was renamed the Ministry of Economy and Finance.
The need for budgetary reform has also been
acknowledged. Establishing a comprehensive legal
and regulatory framework for public finance thatis consistent with the Constitution and that incorporates good technical practices is a high priority(see chapter 3). A draft organic budget law (thePublic Services Financial Management Law) is
being prepared.
In recognition of the need to look towards thelonger run development needs of the state, theGeneral Secretariat for Development Planningwas created in 2006 and given responsibility for
managing medium- and long-term development
planning. It was mandated by Emiri Decisions
39 and 50 to formulate QNV 2030 and to support
implementing ministries and agencies in executing it. QNV 2030 was completed in 2008, and now
the recommendations of the current document,
Qatar’s first National Development Strategy, havebeen formulated and approved by the country’s
high authorities.
Other significant institutional initiatives have beenrealized. In 2005 the Qatar Investment Authority

2

was established and made responsible for managing much of the country’s wealth. Through investment in suitable foreign currency assets, the Qatar
Investment Authority aims to build and diversify
Qatar’s future income. The creation of a regulator (ictQatar) for the telecommunications sector
and the entry of a second player into the market
were also major developments, especially in thecontext of Qatar’s ambitions to expand the knowledge base of its economy.
New investment areas

The trajectory of Qatar’s economy is tightly linked
to developments in the hydrocarbon sector.
Hydrocarbons still dominate the economic landscape, but Qatar is branching out into new areas.
Cheap hydrocarbon feedstock and energy havehelped prime development of downstream industries in the petrochemical and metallurgy sectors,
with some subsectors, such as fertilizers, growing
at a fast clip.
Footholds have also been established in new areas.
Qatar Airways is taking a lead in the transport sector. Al Jazeera is now an acknowledged leader inthe regional media and communications industry.
And Qatari Diar is one of the biggest real estatedevelopment and investment companies in the
Gulf Cooperation Council countries. The Qatar
Science and Technology Park now tenants morethan 30 ventures in such areas as life sciences, oiland chemicals, environment, electronics and software engineering. Qatar’s financial sector has also
seen rapid development serving the needs of alarger and more complex economy.
Financial sector progress

Qatar’s banking sector has expanded rapidly. At
end-2000 the country had 96 bank offices (headquarters and branches); by end-2009 that number
had doubled, despite advances in electronic banking. Bank assets grew from QR 50 billion in 2000
to QR 484 billion in March 2010, a jump from 78%
to 123% in the ratio of bank assets to GDP.
Achievements and economic outlook 2011–2016

49

Reserve money and broad money (M2) have multiplied over the decade. Reserve money—the liabilities of Qatar Central Bank—has soared fromjust over QR 3 billion in 2000 to QR 50 billion in
March 2010. During the same period broad money
jumped from a little over QR 35 billion to justunder QR 243 billion. Demand deposits have been
the fastest growing component of broad money.
Credit to the private sector has taken off, becoming the fastest growing component of commercial
banks’ balance sheets. Private credit expandedfrom about 20% of GDP in 2000 to approximately
50% in 2008, but growth slowed sharply in 2009.
The upward trend in the ratio of credit to theprivate sector, along with other indicators (seebelow), mirrors steady progress in capital market
development.
Qatar’s equity market is developing rapidly. From
humble beginnings, the Qatar Exchange (formerly the Doha Stock Market) has come a long way,with market capitalization in 2009 of roughly 90%
of GDP. The number of listed companies has also
grown substantially to span banks, insurance companies, industry and other nonfinancial services.
The market index ascended rapidly through 2005
and then declined but has been recovering recently. The Qatar Exchange is classified as a “frontiermarket” and aims for “emerging market” status in
the near future.
The Qatar Financial Centre, having attracted
many of the world’s leading financial institutions
to Qatar, is now taking a more focused role in promoting the development of Qatar’s financial sector. In addition to providing a window on banking and investment opportunities, the centre’s new
strategy seeks to develop core business strengths
around asset management, captive insurance andre-insurance.
Investments catching up with needs

Physical investments have fast caught up withneeds. Bottlenecks in infrastructure have contributed to high project costs and inefficiencies in the50

Qatar National Development Strategy 2011–2016

past, perhaps deterring investment. High-quality
and reliable infrastructure services will be important in determining the economy’s overall competitiveness and opportunities for diversifying its productive base. Accommodating future expansion
are completion of the new industrial area, significant investments in power generation and desalinated water production, upgrading and expansionof road networks and construction of the new Doha
airport. Investments by Qatari Diar, Barwa andDoha Land will have a strong impact on Qatar’s
built environment and on the spatial arrangementof economic activity within the country.
Investments in healthcare have been significant,supporting workforce productivity and fostering social cohesion. Thanks to the heavy investments in high-quality health services and delivery
systems, mortality rates have declined markedly,
and prospects of survival at vulnerable ages have
improved. A diverse complex of health facilities
now meets widely divergent and often highly specialized needs, supported by more than 13,000
personnel, almost all with specialist medical andtechnical skills.
Recognizing gaps in the education system and inbroader capabilities within the country, Qatar has
invested heavily in education and training. Government education expenditure has increased
steadily to about 5% of GDP in 2008, making
Qatar second only to Saudi Arabia among Gulf
Cooperation Council countries on this metric. Initiatives in tertiary education include expanding
the Qatar Foundation Campus, reforming Qatar
University, creating a new community college andintroducing vocational and technical education
streams.
Corporate training centres have expanded, facilitated by government-owned companies such as
Qatar Petroleum, to support continued learning.
These initiatives are complemented by scholarships and other incentives to encourage young people and professionals to improve their skills. And
at the interface of the public and private sectors,
the Qatar National Research Fund constitutes anchapterearly initiative in Qatar’s efforts to mobilize 2.8%
of GDP to support research and development.
Although these new directions support QNV 2030
and are expected to be beneficial, they are sometimes poorly integrated and aligned. In addition,some measures exist only on paper, and implementation of others lags.
While Qatar National Development Strategy 2011–2016 will leverage existing initiatives, it also provides a framework that can fill gaps and provide
effective integration and alignment across sectors.
Before turning to the details of that strategy in thechapters that follow, the next section presents theoutlook for 2011–2016.

Outlook for 2011–2016
Qatar’s economic prospects in the medium term
remain favourable, though uncertainties loom.
The global recovery from the recent economic andfinancial crisis, though uneven, is continuing, bolstered by continued robust growth in emerging
markets (mainly in Asia) and a rebound in global
trade. However, the rapid global growth seen in theyears before the crisis is unlikely to return in thenext few years. Fiscal consolidation is under way inEurope, Japan and the United States, and private
demand remains guarded. Households are building savings and attempting to recover from income
losses. Overall, employment prospects in Organisation for Economic Co-operation and Development
countries are still shaky. Returns on investments
are expected to remain low for some time, andmore pronounced risk aversion can be expected.
However, global growth is likely to be more broadly
distributed, with large emerging market countries
accounting for a greater portion of expansion.
In the short to medium term Qatar will continue
to make its own way. Economic development in
the next few years is likely to be driven more bydomestic factors than by global factors. The country’s economic trajectory will be heavily influenced
by investments for which funds are already earmarked and by structural reforms that authorities

2

will begin implementing in that time. But over the
longer term Qatar’s prospects are enmeshed inbroader global circumstances, particularly in the
dynamics that drive prices for oil and gas and in
the global investment outlook (box 2.1). Qatar’s
successful bid for the FIFA World Cup 2022 will
also have significant impacts, but the main ones
will be in the latter part of 2011–2016 and beyond.
A sea-change in hydrocarbon income growth

Under plausible assumptions about the future,and existing plans of Qatar Petroleum and otherstate-linked entities, Qatar’s economy is seen registering double-digit real GDP growth in the nearterm. But beyond 2011 real GDP growth is likely toshift down (figure 2.5) as the current programmeof investment in hydrocarbons reaches completion, and output plateaus. The boost to activity
generated by FIFA World Cup 2022 preparations
is expected to be concentrated in the period after
2016, though modest effects could be felt earlier.
This sea-change in the country’s growth dynamics is programmed in the moratorium that limits
Figure 2.5 Beyond 2011 real GDP growth islikely to shift down
Real GDP growth (%)
25

20

15

10
Nonhydrocarbon GDP

5

Real GDP

0

Hydrocarbon GDP

–5
2011

2012

2013

2014

2015

2016

Source: Box 2.1.

Achievements and economic outlook 2011–2016

51

Box 2.1

Glimpsing the economy’s future

A statistical summary of Qatar’s economy has been
constructed for 2009, the latest year for which com‑plete data are available (as of early 2011). This sum‑mary aligns and reconciles major economic accounts
to create a reference point from which possible futurechanges can be measured. However, this snapshotof the economy may not be completely representativefor other years. In 2009 Qatar’s economy experienced

a sharp slowdown in nominal income growth, whichdisproportionately affected some sectors, such as
construction and manufacturing. To get a glimpse ofwhat the economy might look like in future years, thebaseline data for 2009 are extrapolated using scenar‑
ios to (numerically) describe the possible evolution of
externally relevant drivers (such as oil and gas prices)
and internal forces (such as government spending).

Medium-term baseline scenario, 2011–2016
Indicator

2011

2012

2013

2014

2015

2016

Arithmetic average,
2011–2016

National income and prices
Real GDP (% growth, 2009 prices)

15.7

7.1

4.0

4.7

4.7

5.1

6.9

Hydrocarbon GDP

22.2

5.2

–0.9

0.0

–0.2

0.0

4.4

Nonhydrocarbon GDP

9.5

9.0

9.0

9.0

9.0

9.0

9.1

Real GDP per capita (% growth)

13.8

5.4

2.4

3.1

3.3

3.8

5.3

Total GDP deflator (% growth, period average)

3.9

4.2

3.5

2.3

2.9

–2.9

2.3

Nominal GDP at market prices (QR billions)

547

611

657

704

759

775

676

Nominal GDP (% growth)

20.2

11.6

7.6

7.1

7.8

2.0

9.4

Population (millions)

1.73

1.76

1.78

1.81

1.84

1.86

2.1a

38.8

36.8

36.1

33.3

32.5

33.5

35.2

Consolidated government operations (% of GDP)
Total revenue and grants
Hydrocarbon revenue

26.1

24.7

23.4

21.0

19.7

19.2

22.4

Crude oil revenue

12.2

11.0

10.3

9.8

9.3

9.5

10.3

Liquefied natural gas revenue

7.4

7.4

7.0

6.5

6.0

5.9

6.7
5.3

Investment income

6.5

6.4

6.1

4.7

4.5

3.8

Nonhydrocarbon revenue

10.1

9.4

9.9

9.3

9.7

10.8

9.9

Tax revenue

4.7

3.9

4.1

4.1

4.2

4.6

4.3

Total expenditure and net lending

26.9

26.0

25.4

26.2

26.4

27.9

26.4

Current expenditure

16.8

15.7

15.5

15.6

15.8

16.8

16.0

Capital expenditure and net lending

10.1

10.3

9.9

10.5

10.5

11.2

10.4

Overall deficit (–) or surplus (+)

12.1

11.0

10.8

7.3

6.3

5.7

8.9

Nonhydrocarbon balance

–14.0

–13.8

–12.5

–13.8

–13.4

–13.5

–14.0

Growth in broad money supply (%)

20.2

11.6

7.6

7.1

7.8

2.0

9.4

Investment

27.2

24.8

23.2

23.2

23.0

26.7

24.7

Public fixed investment

10.1

10.3

9.9

10.5

10.5

11.2

10.4

Private fixed investment

17.2

14.5

13.4

12.6

12.5

15.6

14.3

Hydrocarbon fixed investment

7.0

4.1

2.3

0.9

0.8

0.8

2.6

Investment and saving (% of GDP)

Nonhydrocarbon fixed investment
Gross domestic saving

52

10.2

10.4

11.1

11.7

11.7

14.8

11.6

59.2

54.7

49.4

46.9

43.6

45.4

49.9

Total saving

27.2

24.8

23.2

23.2

23.0

26.7

24.7

Foreign saving

–24.1

–24.0

–21.1

–19.2

–16.7

–15.2

–20.1

Gross national saving

51.3

48.8

44.3

42.4

39.8

41.9

44.8

Qatar National Development Strategy 2011–2016

chapterBox 2.1

2

Glimpsing the economy’s future (continued)

Indicator

2011

2012

2013

2014

2015

2016

Arithmetic average,
2011–2016

Public

22.0

21.1

20.6

17.6

16.7

16.7

19.1

Private

29.3

27.7

23.7

24.8

23.1

25.2

25.6

External sector
Current account balance (% of GDP)

24.1

24.0

21.1

19.2

16.7

15.2

20.1

Exports of goods and services (US$ billions)

89.4

96.6

96.9

98.4

98.5

100.0

96.6

Hydrocarbon exports (oil and gas)

78.9

84.5

83.6

84.0

83.2

83.7

83.0

Exports of goods and services (% of GDP)

59.5

57.6

53.6

50.9

47.2

47.0

52.6

Imports of goods and services (US$ billions)

41.3

46.4

49.6

52.5

55.6

60.3

51.0

Hydrocarbon imports

12.1

9.6

7.9

6.5

6.5

6.6

8.2

Imports of goods and services (% of GDP)

27.5

27.6

27.5

27.1

26.6

28.3

27.5

Gross international reserves (US$ billions)

20.4

24.2

25.9

27.5

29.1

31.5

26.4

Equivalent months of imports

5.5

5.8

5.8

5.8

5.8

5.8

5.8

Total external debt

62.3

69.4

77.8

82.7

84.6

91.3

78.0

Public external debt

9.9

9.0

8.5

8.5

8.3

8.7

8.8

Total external debt service

1.8

1.9

2.1

3.2

4.3

5.5

3.1

External debt (% of GDP)

Memorandum items
Exchange rate (QR per US$, average)

3.6

3.6

3.6

3.6

3.6

3.6

3.6

Crude oil priceb (US$ per barrel)

79.8

83.3

85.9

87.1

88.9

90.7

86.0

Natural gas, Japanese pricec(US$ per millions of British thermal units)

9.8

9.6

9.6

9.5

9.5

9.6

9.6

a. Compound annual growth over 2011–2016, based on end-2010 population of 1.64 million.
b. IMF forecasts as of November 2010; other agencies may have different figures.
c. World Bank forecasts as of November 2010; other agencies may have different figures.
Note: Totals may not sum exactly from components due to rounding.
Source: National Development Strategy 2011–2016 estimates.

further gas production from the North Field until
at least 2015 and possibly beyond. When gas production hits full capacity, growth of gas sector
output will reach 39% in 2011 but will flatten as2013 approaches. Declines in crude oil production could be expected during this period, though
efforts are under way to stem them.
Although the slowing of aggregate growth is sharp,
this is not a reversal of fortunes, as income levels will remain high. Healthy growth of the non­hydrocarbon sector is also expected and will help
keep overall GDP growth buoyant (figure 2.6).
Growth of nonhydrocarbon output is expected toaverage 9.1% during 2011–2016.
Services are seen as a major driver. Transportationand communications, as well as business and financial services, may grow vigorously over the period.

World Cup–related activity may provide new opportunities in tourism and other areas. Completion of
the new Doha airport is expected to provide a morevibrant air transport hub in the country. Amendments to the foreign direct investment law enacted
in early 2010, allowing 100% foreign ownership inservice-related sectors (such as business consulting,technical services, information technology, culture,
sports, leisure services and distribution services)
may also contribute to growth in services. By 2016
the service sector could account for 40% of total
output, up from 36% in 2009 (figure 2.7).
Growth in construction is expected to keep pacewith the broader economy. In the early part of theperiod, large investment spending, particularly
on megaprojects, will support construction sector
growth. Construction may account for about 8%
of total output by 2016, up from 7% in 2009.
Achievements and economic outlook 2011–2016

53

Figure 2.6 With hydrocarbon growth decelerating, robust expansion elsewhere in the economy will help keep
overall GDP growth buoyant
Contribution to nonhydrocarbon GDP growth (%)

Nonhydrocarbon GDP growth

Construction

Manufacturing

Services

15

10
1.3
1.6
6.4

1.3

1.3

1.3

1.3

1.3

1.5

1.5

1.5

1.6

1.6

6.1

6.1

6.2

6.1

6.1

2012

2013

2014

2015

2016

5

0
2011

Source: National Development Strategy 2011–2016 estimates.

Figure 2.7 By 2016 the service sector may accountfor nearly 40% of total output, up from
36% in 2009
Output share (%)
50

2009

40

2016

39.7
36.1

30

29.2

The share of hydrocarbons in total output may
decline to about 42% by 2016, from 46% in 2009.
Though gas may expand its share, this is unlikely
to offset the declining share for oil in aggregate
output.

24.5

20

10

21.7

12.3
7.2 8.1

9.0

9.9

0
Oil

Gas

Construction Manufacturing

Services

Source: National Development Strategy 2011–2016 estimates.

54

Manufacturing growth is forecast to accelerate. Although manufacturing has posted modest growth in recent years, continued expansion
in such industries as fertilizers, petrochemicals
and metallurgy are expected to boost performance. Forthcoming policy initiatives focusing
on enterprise creation, export promotion andinnovation in science and technology are also
expected to deliver payoffs in the years ahead
and to support a rise in the share of manufacturing output.

Qatar National Development Strategy 2011–2016

Although this baseline scenario anticipates rapid
growth outside hydrocarbons and a declininghydrocarbon share, the overall level of economic
concentration remains pronounced. In 2016 Qatar
will still be heavily dependent on hydrocarbon
activity and income.

chapter

Population

Further, but modest, increases in population are
anticipated. In the baseline scenario the total
population of Qatar grows steadily at an annual average of about 2.1% during 2011–2016, withthe total population rising from just over 1.64
million at the end of 2010 to just under 1.9 million in 2016 (figure 2.8). The rapid population
growth of the recent past is not expected to besustained. This assumption aligns with the conjectures on output growth (see above) but sees
some advances in productivity, reducing employment per unit of output. At the same time, theassumed structural shift to higher valued economic activity presupposes steady advances inthe skill level of the labour force and further
capital deepening.
A shift in the demographic structure is expectedto accompany the projected move towards higher productivity activity. There will likely be anincrease in the share of high-skilled, high-paid
immigrants in the labour force, with a larger
number of dependent children and spouses. The

2extent and speed of these changes will dependon policies governing immigration and operation of the labour market. Policies that accelerate
the shift towards high value-added, capital- andknowledge-intensive activities suggest a trajectoryin which total population might be in the rangeof 2.2–2.8 million by 2030. But a persistence of low
wages in the private sector would entrench the bias
towards labour-intensive technologies and push in
the direction of a larger but less skilled population. The timing and scale of activities related to
the FIFA World Cup 2022 preparations add to theuncertainty.
Investment

On the expenditure side, the baseline scenario
assumes that domestic demand will remain buoyant, fuelled by household spending and strong
domestic investment. Robust private demand islikely to be sustained by higher income and themodest population increase.
The investment pattern will reflect the decline inhydrocarbon capital spending. During 2011–2016

Figure 2.8 Qatar’s population is expected to grow steadily, at an annual average of about 2.1% during 2011–2016
Population (millions)
1.9
1.86
1.84

1.8

1.81
1.78
1.76

1.7

1.73

1.6

1.5
2011

2012

2013

2014

2015

2016

Source: Box 2.1.

Achievements and economic outlook 2011–2016

55

total real gross domestic investment might reachalmost QR 820 billion (figure 2.9), with perhaps
half that coming from the nonhydrocarbon sector. Central government investment is estimated at
QR 347 billion.
Private investment outside hydrocarbons is seen
taking the helm in driving growth. The baseline
scenario anticipates that nonhydrocarbon investment is driven by spending from largely government-linked Q-companies, such as Barwa, Qatar
Diar, Qatar National Bank and Qatalum. With
steady growth, the ratio of nonhydrocarbon private investment to total GDP could reach 15% by
2016, nearly double its share in 2009.
On current plans, public infrastructure spending
will peak in 2012, though the profile of the spending pipeline will change if large new investments
related to the FIFA World Cup 2022 and other initiatives are approved and commissioned prior to
2016. In the baseline, estimated real growth of
public investment may well peak in 2011–2012,settling to an average annual growth of about 5%
thereafter.
Figure 2.9 During 2011–2016 total grossdomestic investment might approach
QR 820 billion
Cumulative gross domestic investment, 2011–2016 (QR billions)
400
389
347

300

200

100
85

0
Public, central
government

Private, hydrocarbon
sectorPrivate, nonhydrocarbon
sectorNote: Investment in the nonhydrocarbon sector includes investment of state-linked and -invested
companies and private investment.
Source: National Development Strategy 2011–2016 estimates.

56

Qatar National Development Strategy 2011–2016

National saving and fiscal balances

National saving will remain high. The ratio ofgross national saving to total GDP would, underthe baseline assumptions, remain above 40%
through 2014 but might edge down in the later
years (figure 2.10). As a share of nominal GDP,government saving (current revenue less expenditure) is expected to trend down.
The baseline suggests that the overall government
fiscal position (total revenue less current and capital spending) remains healthy, with a surplus of
5.7% of GDP by 2016, but tighter than before (figure 2.11). The decline in the surplus reflects slower growth in nontax revenue than in major current and capital expenditure components. The
government’s share of revenue streams of both oil(where the take is large) and gas (where the current take is more modest) is assumed to remain
stable. If these shares were to rise, the surplus
might remain in double digits throughout.
Current account balance

Aggregate export growth will fall with slowing
growth in hydrocarbon export volumes. Baselinehydrocarbon export revenue projections assume
an average oil price of $86 per barrel during
the period (IMF November 2010 forecast) andan average (cif) price for liquefied natural gasof $9.60 per million British thermal units (figure 2.12). Overall growth of exports of goods
and services would, in the baseline scenario, slow
sharply from 2012 to an average of about 1%
through to 2016. Nonhydrocarbon exports are
expected to show strong gains. With the projected decline in capital spending in the hydrocarbon sector, hydrocarbon-related imports are
estimated to contract for most of the period.
Nonhydrocarbon imports will keep pace with theoverall growth of the nonhydrocarbon economy.
With a declining trade surplus, net factor income(supported by income receipts generated frominvestment in foreign assets) helps maintain ahealthy current account balance. In the baselinechapterFigure 2.10

2The ratios of gross national saving to total GDP and government saving to GDP are expected to
decline but remain substantial% of GDP
60

50
Gross nationalsavings

40

30
Private savings

20
Government
savings

10

0
2011

2012

2013

2014

2015

2016

Source: Box 2.1.

Figure 2.11 The overall government fiscal positionis expected to remain healthy, with asurplus of 5.7% of GDP by 2016

the current account balance may peak at about
24% of GDP in 2011–2012, and although possibly
declining in the later years, it could still be as highas 15% of GDP in 2016 (figure 2.13).

% of GDP

Hydrocarbon swing factors

15

12.1
11.0

10

10.8

7.3
6.3
5.7

5

It is important to understand, especially for policy
planning, the boundaries within which economic
outcomes could occur given changes in the framework’s key assumptions. The baseline underlying
the preceding discussion works within one set ofassumptions. But several swing factors could materially shift the baseline trajectory. Two scenarios
are of particular relevance: lower oil prices andlower gas prices.
Oil at $74 a barrel?

0
2011
Source: Box 2.1.

2012

2013

2014

2015

2016

For a hydrocarbon-based economy like Qatar, afuture of low oil prices (at least in the mediumterm) would have a considerable impact on thefinancial resources available, with implications forAchievements and economic outlook 2011–2016

57

Figure 2.12 Oil prices are projected to rise, gas prices to remain range boundQatar, export oil priceJapan, liquefied natural gas import price

US$ per barrel

US$ per million British thermal units

100

10.00

75

9.75

50

9.50

25

9.25

0

9.00
2011

2012

2013

2014

2015

2016

Source: International Monetary Fund (IMF) Qatar Article IV report and Statistical Appendix January/February 2010; IMF Qatar Medium-Term Baseline Scenario; World Bank Commodity Prices database.

Figure 2.13 The current account surplus should remain sizeable, peaking at 24% of GDP in 2011, declining
to 15% by 2016%

Goods and services export growth

Goods and services import growth

Current account balance (% of GDP)

40

30

24.1

24.0

20

21.1
19.2
16.7
15.2

10

0
2011

2012

2013

Source: National Development Strategy 2011–2016 estimates.

58

Qatar National Development Strategy 2011–2016

2014

2015

2016

chaptersustainable growth paths. As mentioned above,
while the global recovery has gained traction in
the last few quarters, medium-term global growthprospects remain fraught with downside risks.
And with the trend in commodity markets tightly
linked to global demand, a renewed softening ofcommodity prices from the peaks reached in early2011 cannot be ruled out.
This alternative scenario assumes that oil prices
fall 14% relative to their average baseline priceof $86 per barrel. Average crude oil prices havebeen on an uptrend since early 2009, after a sharp
decline in the last quarter of 2008 following thecrisis. Having peaked at over $90 per barrel in
April 2010, oil prices have since stayed mainly in
the $70–$80 range, with drifts above $90 in late2010 and towards $100 in early 2011.

2

overall fiscal balance narrows. By 2016 the assumption of lower oil prices cuts the overall fiscal balancefrom almost 6% of GDP to 4%. To the extent thatgovernment diversifies its income over the ­period,
adverse fiscal impacts would be dampened.
More pessimistic assumptions about the future ofoil prices—but certainly not outside the bounds ofrecent experience, when prices dipped to $34 in
the summer of 2009—could move the overall fiscal balance into deficit, holding spending trajectories constant. Accurately forecasting oil prices isladen with difficulty, and plausible future prices
could fall within an extremely large range. Naturally, if prices climbed substantially above the baseline assumption, this would expand fiscal space.
Gas prices down 30%?

Applying the lower oil price assumptions suggeststhat the average nominal GDP level (nominal GDP
better captures the impacts of oil price changes on
domestic income than do traditional volume measures of GDP for Qatar) would shrink 2% relative
to its baseline level by 2016. Nominal GDP growthunder the lower oil price assumption would trackslightly lower, at about half a percentage point
below the baseline. These small impacts on growth
are felt more or less evenly throughout the period.

Benchmark oil and spot gas prices used to trend
together, but no longer. Oil and gas prices havehistorically tended to follow each other quite closely, with relative prices not drifting too far fromtheir energy equivalent ratios, as measured in U.S.
dollars per barrel for oil and in U.S. dollars per
million British thermal units for gas. Periodically,significant global demand shocks, hurricanes, andunseasonal weather have driven a wedge between
the prices, but there has been a tendency for the
price ratio to revert. While some uncoupling wasevident after mid-2006, it became particularly pronounced in 2009 and 2010. Spot gas prices plummeted with oil prices in early 2009, but when oil
prices recovered, gas prices continued to sag. Prior
to 2006 the ratio of oil to gas prices had averaged
about 7.5, giving oil a slight price premium overgas (based on the energy equivalent ratio of 6.9).
By the end of April 2010 the ratio had climbed to22.1, giving oil a significant price premium.

Impacts on the budget would be pronounced. The
government budget’s take of total oil revenue hashistorically been high, and much higher than forliquefied natural gas. Lowering oil prices and oilrevenue, therefore, has significant knock-on effects
on government revenue and saving. With expenditure more or less tracking as in the baseline, theThe dynamics underlying the evolution of thelink between spot gas and benchmark oil prices
are not easy to predict. Uncoupling appears tohave occurred for three main reasons. First, gas
and oil are competing less in the same end-use
markets and so are not close substitutes—oil’s
major use is in transportation, and natural gas is

A view that average crude oil prices during 2011–2016 will remain at around $74 per barrel alters thebaseline results. This lower oil price scenario resultsin both less aggregate income and a slower growthtrajectory relative to the baseline. In this scenario
gas prices are held at their baseline values, eventhough Qatar’s liquefied natural gas price basket islikely to be linked to benchmark crude prices. This
treatment will tend to dampen estimated impacts.

Achievements and economic outlook 2011–2016

59

used mainly for power production, where it competes with cheap and sometimes subsidized coal.
Second, there have been significant new discoveries of “unconventional gas” (mainly shale gas),
which have boosted supply, particularly in the
United States. The initial impact of added supply was confined to the U.S. spot market, but assurpluses found their way to Europe, spot prices
have dropped there too. Third, the global recession appears to have had a differential impact on
demand for oil and gas. Pundits are divided on
the longer term future of the link, but few seemto expect any reversion to historical price parities
soon.
Looking ahead, the International Energy Agency
expects global demand for gas to broadly maintain its share in total energy demand through2030. The penetration of gas in some large markets, such as China, is still at low levels. And Qatar
is particularly well positioned to take advantage of
emerging opportunities as its investments along
the supply chain and its extremely competitive
production costs continue to give it the flexibility to compete in markets globally. But there arealso uncertainties. On the demand side, opportunities for gas to displace fuel oil in power generation have just about been exhausted and, in theabsence of a carbon tax or an end to subsidies forcoal, coal could remain a cheaper and favoured
source of fuel for power generation in China andIndia. On the supply side, large additions to liquefied natural gas supply, particularly from Australia, are coming onto the market and could toughen conditions for Qatar, particularly in the Pacificbasin market.
This scenario assumes a 30% fall in the baselinegas price after 2010, bringing the gas price to an
average of $6.9 per million British thermal units,
which in energy terms is broadly equivalent to $48
for a barrel of crude oil.
Negative income and fiscal impacts follow.
Because the share of liquefied natural gas in total
output will rise over the period, the impact of falling prices on income is large. The assumed 30%
60

Qatar National Development Strategy 2011–2016

fall in the price of Qatar’s liquefied natural gas
basket reduces nominal GDP in each year (figure2.14). Cumulative income losses over the period
are QR 357 billion, a 9% reduction from the baseline level of cumulative GDP. This is a large effect,
especially given that actual falls in U.S. (HenryHub) and European (Balancing Point) spot markets have been well in excess of the 30% drop
assumed here.
Fiscal saving impacts are also heavy. Government saving, under these assumptions of lower
gas prices and steady expenditure, could be
reduced to 3.4% of GDP by 2016. This is almost
2 percentage points lower than the baseline,
despite a modest fiscal take from gas. Because
the fiscal take from liquefied natural gas revenue has been historically modest and is assumed
to remain so in this scenario, this dampens thereverberations on the government’s budget.
Raising the fiscal take from gas would generate larger surpluses in the future, but it would
also make fiscal balances more responsive to gas
price movements.
Figure 2.14 An assumed 30% fall in the prices of
Qatar’s liquefied natural gas basket
reduces nominal GDP
Change in GDP (%)
0

–2

–4

–6.3

–6
–8.0

–8

–8.7
–9.5

–10

–10.7

–10.6

2011

2012

–12
2013

2014

Source: National Development Strategy 2011–2016 estimates.

2015

2016

chapterFIFA World Cup 2022 and higher government
investment spending?

Hosting the FIFA World Cup in 2022 presents
Qatar with new opportunities. Over the early partof 2011–2016 the economic impacts of the World
Cup are likely to be modest, but Qatar must prepare for sizeable infrastructure investments to follow. These investments will be significant relative
to the size of the economy, and their macroeconomic and longer term development impacts warrant close attention. Well beyond 2022, the World
Cup may present opportunities to strengthen the
structure and performance of Qatar’s nonenergy
sectors.
In the immediate future (2011–2012) the World
Cup could affect trading and speculative investment activity. The impacts would likely be temporary, and the government will monitor themto prevent abuse of market power and protect thebroader public interest.
From the perspective of the country’s economic
diversification ambitions, the World Cup presents
new opportunities for Qatar. Public-private partnerships may benefit some projects and should beconsidered within wider public investment decision processes. On the business front the World
Cup will create opportunities for domestic enterprises to form strategic alliances externally andto connect to global value chains. The World
Cup will also accentuate some challenges. Qatar
should leverage the World Cup to close gaps in its
capabilities. For example, investment agreements
could include mechanisms that secure knowledge
and technology transfer.
As mentioned, though some World Cup–related
investment projects may be commissioned during
2011–2016, the added impact of World Cup activity during this period is likely to be modest. A sizeable pipeline of investments is already in place. In
general, the macro-fiscal framework suggests that
additional investment spending (whether public
or private) is likely to have only a moderate shortrun demand impact on local output and income.

2

After 2012, when the current expansionary phaseof hydrocarbon development ends, the macrofiscal framework suggests that the structure of
Qatar’s economy will be such that 5 percentage points of additional public sector investment
spending would be needed to generate a 0.5 percentage point temporary acceleration of growthin nonhydrocarbon output. The domestic income
generated by added capital spending is diluted
both because a high proportion of the spendingis likely to be on imports (capital goods and materials as well as consumption) and because a large
share of wage income earned by expatriate workers is likely to be remitted rather than spent locally. The fiscal impacts of higher public investment
spending could be significant because it is unlikely to generate much of a tax offset. There is also
a risk of inflationary pressures if the phasing oflarge-scale projects creates or aggravates supply
bottlenecks.
During the period covered by the National Development Strategy 2011–2016, preparations for theWorld Cup will gather momentum. Institutionalarrangements for overseeing and managing World
Cup–related activities will be established, and thepipeline of investments to deliver needed infrastructure services will be prepared. From a planning perspective the World Cup is best consideredwithin the broader framework of national development and not as a one-off event. Integrating planning and funding arrangements within broader
frameworks for the overall fiscal and budgetary
management of the economy will be important.
A beneficial legacy will require scrutiny of large
World Cup–related capital projects for their longterm socioeconomic and environmental impacts.

Supporting the National Development
Strategy 2011–2016
As this chapter shows, Qatar’s economic prospects
remain favourable under plausible assumptions.
In 2011 the economy should register double-digit
growth, but after that real growth is likely to shiftdown. The growth of hydrocarbon income will slow,
but robust expansion elsewhere in the economy
Achievements and economic outlook 2011–2016

61

should keep overall GDP growth buoyant, with services as a major driver and manufacturing edging
up. The government’s fiscal position is expected toremain strong and will be adequate to support the
programmes of the National Development Strategy
2011–2016. Gross national savings are likely toremain above 40% of GDP through 2014 but mightedge down in the later years. The overall fiscal balance would narrow from current highs to just below
6% of GDP by 2016, still very healthy.
Presenting larger challenges are the constraints
on human and institutional resources, a recurrent
theme in the chapters that follow. Qataris, witha labour force participation rate of around 50%,
constitute only 6% of the labour force, heavily
concentrated in the government and state-linked
companies (95%). Efforts that equip Qataris withthe skills required to attain their maximum potential in both the public and private sectors warrant
close attention, and their success will be vital tocreating a vibrant nonhydrocarbon economy andbroader societal capabilities.
Qatar also needs strong public sector institutions
to achieve the goals of QNV 2030 for social progress, human development, a sound and diversified economy and a sustainable environment.
That will require institutional and organizational capacity building, efficient and transparent

62

Qatar National Development Strategy 2011–2016

delivery of public services, fruitful public-private
cooperation and partnerships, a vibrant climate
for business and a larger space for civil society.
Credible, client-focused and capable institutions
that deliver timely and accountable services to citizens and respond to their concerns are the keys toimprovement.
In policy and planning, public sector institutions need to become more forward-looking andfocus on outputs and results rather than inputs.
This will require linking the national budget up
to national goals and down to the output-based
operational planning in line ministries and agencies. Institutions need to move beyond a silo mentality, with little accountability for outcomes, toactive cross-institutional collaboration. In humanresources management the lack of performancestandards and management systems needs to be
remedied by developing career paths tied to performance. And institutional processes, centred on
departments and implemented manually, need to
be streamlined and customer driven through onestop windows enhanced by integrated information
systems.
These themes and issues are taken up in the chapters that follow. In chapter 3 attention turns first to
the challenge of creating the conditions that can
support the achievement of sustainable prosperity.

Part 2
The four development pillars

Chapter 3
Sustaining economic prosperity

3

Sustaining
economic prosperity“Sustaining prosperity over the long term requires wise management of
exhaustible resources to ensure that future generations inherit ample
means to meet their aspirations.”­— ­Qatar National Vision 2030

Qatar National Vision 2030 (QNV 2030) articulates
three interrelated goals for the economy. It looks
to sustain a high standard of living, to expand
innovation and entrepreneurial capabilities andto align economic outcomes with economic andfinancial stability.
QNV 2030 defines sustainability as meeting theneeds of the current generation without compromising those of future generations. There aremany paths to sustainability; the goal of prosperity
clarifies the development path the country wants
to pursue and the ones it wants to avoid. While
this broad perspective does not specify a particular set of operational rules, it provides clear direction for the economy.
To embed sustainability in Qatar’s economy, progress is needed in three parallel, mutually reinforcing directions (figure 3.1). First, the country will enlarge the value of the productive base,which is necessary to sustain prosperity in an economy with a growing population and to expand thepotential for future generations. Second, the government will guard against economic instability
and promote increased efficiency. Third, the government will work in partnership with the private
sector to diversify the economy and foster a culture of discovery and innovation.
The “productive base” is the value of all the country’s resources: its man-made capital (plants
and buildings, machinery and infrastructure),human capital, natural resources, technology and68

institutions (defined broadly to include markets,
systems, rules, organizations and social capital).
When the value of the productive base grows, there
are more opportunities for the average citizen, andwhen it shrinks, there are fewer. To be sustainable,
an economy with a growing population must havean expanding productive base. Sustainability also
requires that depletion of any component of the
productive base be compensated by investments ofat least equal value in its other components.
The pace at which the value of the productive
base expands depends on how stability and efficiency influence the volume of investment and thereturns to that investment and on how economic discovery and diversification expand opportunities. Links run in the other direction, too, withthe capabilities embedded in institutions and people (which are vital parts of the productive base)determining the economy’s ability to navigate
a stable path, allocate resources efficiently anddiversify into new activities.
Mutually reinforcing relationships also exist
between economic structure and economic efficiency and stability. In particular, the underlying structure of economic activity influences the economy’svulnerability to shocks at an aggregate level, withmore diversified economies being less prone to risks
and displaying less volatility. At the same time, thedegree and pace of diversification of the domestic
economic base depend on how efficiently resources
are allocated within the economy. Inefficiencies canhobble diversification efforts by undercutting cost

chapter3

Figure 3.1 Sustainability and the economic framework

e,
ur ls
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ie
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o
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“i no
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gu Enhla an
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an ins
d tit
ca ut
I
pa ion
an nc
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ex s
ie
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s
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ed se
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Expandingthe productivebaseEnhancingstability andefficiency

Reduced distortions, lesswaste, lower costs, improved
investment allocation
Reduced risks andgreater economic resilience

competitiveness and by allocating resources to activities that yield low returns or are not viable.

Expanding the productive base
“Converting [hydrocarbon] assets into financial wealthprovides a means to invest in world class infrastructure;build efficient delivery mechanisms for public services;
create a highly skilled and productive labour force; andsupport the development of entrepreneurship and innovation capabilities.”­— ­Qatar National Vision 2030
The first challenge for Qatar will be expanding
its productive base. The concept of the productive
base is comprehensive (see previous section). The
focus in this chapter is on what sustainable prosperity means in operational terms, how it relates
to where Qatar is going and how Qatar can best
direct its development path to achieve this goal.
The human, social and environmental dimensionsof sustainability are investigated in chapters 4–6.

Promotingdiscovery anddiversification

Setting speed limits on depletion and consumption

In managing the economy and the nation’s productive base, Qatar must address two fundamental
questions:• At what speed should it deplete its hydrocarbon
resources?
• How should it divide the value it captures
between consumption and saving?
In theory, optimal depletion (essentially a choice
about how much wealth to keep in the groundand how much to convert to financial resources)
means selecting the path of consumption andsaving that generates the maximum social benefit. But in practice, choices are limited. Previous
investment decisions in the hydrocarbon sector,
essentially irreversible, place boundaries arounddepletion options. For example, Qatar’s joint venture agreements with international oil companies and long-term purchase agreements with
Sustaining economic prosperity

69

customers for gas set the pace at which hydrocarbons can be exploited.
A moratorium on further production of gas fromthe North Field is also in place until an investigation of its reservoir characteristics is completed(not expected before 2015). Future rates of depletion would be decided based on the outcomes of
the investigation, taking into account reservoir
conditions and estimated gas reserves, cost andtechnological factors, domestic market needs andexpected market conditions. But wider sustainability considerations also mean that the capacity ofthe economy to absorb and productively deploy
the financial resources from hydrocarbon wealthwill influence decisions about the rate at which
reserves are depleted.
Given boundaries around depletion parameters
and the expected value of the income flowing
to the state, the next layer of decisions revolves
around how much to consume and how muchto save. The government understands that thesedecisions lie at the crux of economic sustainability. Sustainability requires adequate saving to support investments that expand the productive base.
Unsustainable outcomes occur when there is toomuch consumption and the value of the productive base fails to keep up with population growth.
These concepts can help define boundaries on
consumption. The dividing line between sustainable and unsustainable consumption levels can beascertained by considering how much consumption
Qatar’s hydrocarbon wealth can permanently support. In theory, this is equal to the annuity equivalent of the expected present discounted value of thestate’s hydrocarbon income stream (net of all costs),
calculated over some suitably long planning horizon. This annuity value sets a ceiling on the averagelevel of consumption that can be sustained while
preserving the value of the nation’s wealth (hydrocarbon and financial) at the end of the planning
period. With a growing population, the calculation
is a little trickier, and sustainability requires additional saving to support steady per capita consumption. Box 3.1 discusses aspects of these calculations.
70

Qatar National Development Strategy 2011–2016

The calculations in box 3.1 are illustrative but
underscore the fact that sustainability places
boundaries on what the country can consume
while preserving wealth for future generations.
As Qatar’s hydrocarbon income tapers off (either
through declines in production or reduced unit
rents), alternative sustainable sources of incomemust be created to support public consumption
and cover Qatar’s import bill.
So, where is Qatar headed? On the one hand, highsavings rates are reassuring; gross national saving over 2011–2016 is expected to average 45% of
GDP (see chapter 2). On the other hand, continued high dependence on hydrocarbon revenues
to finance both fiscal and import spending suggests that fiscal and balance of payments stability deserve continuous and close attention. The
nonhydrocarbon fiscal deficit is expected to average 14% of GDP over 2011–2016, a reduction fromthe deficit of 19% in 2009. Sustainability requiresthat this deficit eventually be eliminated and thatthe nonhydrocarbon income base be adequate
to fund fiscal spending and meet import needs.
Box 3.1

Discounting the future—calculating
limits on consumption

Based on UN environmental accounting methods, a
range of estimates of sustainable consumption lev‑els emerge depending on assumptions about the fu‑
ture volume of hydrocarbon production and the real
rents it generates (revenues less all costs, including
an allowance for the cost of capital, all measured
in real terms) and the rate at which society’s future
wealth is discounted (the social discount rate). To
simplify, imagine that over some relevant planning
period the projected net income from Qatar’s hydro‑
carbon reserves has an expected discounted valueof QR 1.5 ­trillion. At a real return of 3.5%, whichis broadly the long-term return on a fixed-income
portfolio, this equates to an annuity value of about
QR 54 billion a year. But with a growing population,
the preservation of initial per capita wealth would
require additional saving and lower spending to sup‑port a larger future population.

chapter

The government will examine required structuraladjustments as part of the wider reform of fiscal
and budgetary processes. Already, government has
taken decisive steps to diversify its sources of foreign investment income (see the section on building a diversified economy later in this chapter).
A national investment framework for Qatar

Another question follows logically from depletionand consumption decisions­—­how should Qatar
invest? The form of investment matters, and once
made, many investments are not easily reversed.
The concept of “genuine investment”, which is
the measured change in the value of the productive base over a relevant interval, embraces investments in man-made assets, in human capital, in
natural capital and in social technology (such ascapabilities, knowledge, research and development, and institutions). This part of the National Development Strategy 2011–2016 focuses oninvestments in man-made assets and on financial
claims against assets that generate a future streamof income. Such investments take three basic
forms: investments in the industrial and commercial development of the country, in national infrastructure and in foreign assets.
Planned investment spending
Sizeable investments are planned over the period covered by the National Development Strategy
2011–2016. Gross investment is expected to average 25% of GDP over 2011–2016. Significant additional investments in the gas sector will await decisions on the moratorium, which will not occur
before 2015.
The state is heavily involved in Qatar’s industrial sector, largely through the interests of thegovernment-­linked Industries Qatar and the useof state resources to fund other businesses. Manyof these ventures leverage Qatar’s natural advantage in hydrocarbons and energy and have a successful commercial track record, often with the
involvement of foreign joint venture partners.

3

Such partners bring technology, know-how andaccess to markets and global supply chains. What
the partners find in Qatar is access to cheap feedstock and energy, favourable profit-sharing agreements, low taxes, freedom to remit profits andother benefits. State-linked investments­— ­often
through Q-companies, with significant ownership held by the government of Qatar or related entities­— ­w ill inevitably continue to support
Qatar’s industrial expansion and growth.
The investment plans of Q-companies (excluding Qatar Petroleum and related companies) for
2011–2016 amount to over QR 130 billion. These
include about QR 100 billion in investments by
Barwa and Qatar Diar for residential and businessconstruction projects. Next most significant areinvestments in health and education by the Qatar
Foundation, with Sidra Hospital and Education
City committing about QR 19 billion.
For Qatar Petroleum and related companies,
2010 was a pivotal year when a series of liquefied
natural gas projects culminated. Nevertheless,investments will remain relatively strong over the
medium term, amounting to about QR 88 billion during 2011–2016. These investments include
plans for about QR 7 billion in expanded capacityof Industries Qatar companies in the petrochemical sector, including producers of low-density polyethylene, ammonia and urea.
The government also plans more than $65 billion in infrastructure spending through 2016 (figure 3.2). Current plans envision improvementsin the power and water sectors, the new Doha
port and the information and technology sector.
Investment in road infrastructure will be criticalto reducing inefficiencies and assisting regional
integration. An internal rail network and a Doha
metro system are also being considered. The pipeline of planned infrastructure investment raises
issues of priority-setting and efficiency. Looking
to the future, the government will work to ensurethat the nation develops a world-class infrastructure backbone, with projects set out in an integrated national infrastructure master plan.
Sustaining economic prosperity

71

Figure 3.2 The government plans more than $65 billion in infrastructure spending through 2016
Expected infrastructure spending (US$ billions)
25

20

15

10

5

0
2011
Qatari Diar
Port

2012
Roads
Wastewater

Sidra Hospital
Barwa

2013

2014

Qatar-Bahrain Causeway
Metro and rail

Airport
Power

2015
Water
Education City

2016
Qatar National Bank

Source: MEED Project database.

In several areas additional infrastructure investments beyond those already planned could contribute to national development objectives. The costof these projects­—­between $8.5 billion and $12.5
billion­—­is relatively modest, but the resulting contribution to sustainable resource management could
be significant. This portfolio includes extension of
the treated sewage effluent distribution system, sothat it can reach agricultural areas; new facilities forthe treatment of industrial wastewater; repairs andimprovements to the distribution system for desalinated water; upgrades of wastewater treatment
plants for production of high value-added treatedsewage effluent; and upgrades of selected power generation facilities. (The specific rationale for thesetargeted investments is explained in the next section
on enhancing technical and economic efficiency.)
Targets for 2013
• Formulate a national infrastructure strategy
and master plan and strengthen coordination
functions.
72

Qatar National Development Strategy 2011–2016• Review the feasibility of additional infrastructure
investments to promote sustainable resource use.
Economic rents and investment
Because Qatar’s hydrocarbon assets are the property of the state, the government has a responsibility to maximize the value it captures from their
exploitation. It may do this through fiscal measures, contract arrangements or some combination of both. In principle, the state will strive tocapture all rents embodied in the hydrocarbon
assets it owns and to ensure an adequate return on
any capital that it invests. If hydrocarbon rents are
efficiently targeted, the volume of private investment should not be affected (investment neutrality) because private investors will still earn theirrequired risk-adjusted rate of return.
In practice, hydrocarbon rents captured by thestate are unlikely to be maximized. One reason
for this is that maximizing them would requirechaptertailoring fiscal and contractual arrangements toeach investment. The information needed to calibrate optimal contracts is unlikely to exist, andimplementation capabilities will get stretched overa large number of such investments. So while theprinciples of optimal rent capture and investment
neutrality serve as a useful guideline, pragmatism
requires the application of frameworks that reflectrealities and can be implemented.
In the future, as in the past, the government will
ensure that the structures governing hydrocarbonlinked investments, upstream and downstream, provide adequate flexibility to deal with project specifics
and changing cost or market conditions. Equitablerisk-sharing arrangements will also be important.
While the state will take steps to eliminate all sources of risk within its control, the elimination of operational or commercial risks through state guarantees or other means will be detrimental if it dilutes
incentives for the private sector to perform. In circumstances where hydrocarbon rents are sharedwith private investors, the state will seek to ensurethat these rents are compensated by other benefits
that flow to the country (such as the acquisition oftechnology, infrastructure or knowledge and skills).
Investment and sustainability
No isolated investment is permanently sustainablebecause all capital projects have a finite life. New
technologies, changing tastes, new sources of competition, reassessments of risks and exhaustion of
resource inputs can bring to a close what was oncea good business. Therefore, what matters for sustainability are the net resources that a project canmake available directly or indirectly to support
future well-being.
Qatar will leverage its cheap domestic feedstockand energy to contribute to long-term economic
diversification and the expansion of the productive base. The relevant test is that associated investments provide an acceptable risk-adjusted returnon the totality of the resources committed by thestate. Industries that gain advantage by eliminating transport and distribution costs and locating

3

closer to sources of energy and feedstock provide
one avenue for investment.
Another opportunity is to integrate along the energy supply chain. One possibility is to export surplus
power generated from gas to the region and beyond.
But this will require additional cross-border investments and cost-efficient technologies. High-voltage
direct-current cables are one option. They lose very
little energy in long-distance transmission (about
3% per 1,000 kilometres) and perform efficiently
under water. High-voltage direct-current transmission lines already connect the French and U.K. grids
as well as the grids of Scandinavia, the Netherlands
and northern Germany. The capital costs of suchinvestments are continuing to fall.
Sustainability can also be given a stricter definition that equates viability with the ability to export
without the benefit of temporary location costadvantages or direct or hidden subsidies. Economic activities that meet hurdle returns with all
inputs priced at border prices would enjoy such along-term competitive advantage.
Other countries provide examples of activities
that meet this robust test of sustainability. Petrochemical production in Singapore, which relies
completely on imported feedstock, is sustainable
in this sense. Likewise, the Norwegian oil services
industry, which exports globally, would be viable
even if the country had no domestic oil production. The challenge for Qatar is to carve out its
own niches of advantage in the hydrocarbon supply chain, exporting services and knowledge toother countries. One promising area is the processing, transportation, distribution and storageof liquefied natural gas. Qatar has an establishedadvantage in production and transportation and apotential advantage in vertical integration of connected activity in distribution and storage.
Currently, Qatar lacks a focal point for investment
and industry development. Qatar Petroleum andrelated companies as well as other entities in theenergy sector have performed well in spearheading
investments, but as Qatar diversifies its economy
Sustaining economic prosperity

73

beyond carbon (discussed later in this chapter), a
stronger policy and coordination function may be
useful. In some countries, high-level independentagencies have had a central role in advising government and implementing investment and industry
development policies. Examples include the Industrial Development Agency in Ireland and the Economic Development Board in Singapore (box 3.2).
Qatar will review its institutional arrangements todetermine which can best support its objectives tosustain growth and diversify its economy.
Target for 2012
• Review institutional arrangements to support
growth and diversification of the economy.
Qatar’s investments in foreign assets
Investments in foreign currency assets help
sterilize the liquidity impacts of hydrocarbon
income inflows (discussed in the next section on
Box 3.2

Economic Development Board ofSingapore

The Economic Development Board of Singapore­‑—a one-stop shop for investment and industry­—
has pursued its mandate through various av‑
enues: promoting investment and co-investment
with foreign multinational companies, providing
post-investment services, facilitating access toserviced industrial land, supporting the immigra‑
tion of skilled workers, funding research anddevelopment, identifying strategic sectors for its
co-investment activities, brokering joint ventures
between local and foreign firms, establishing tech‑nical training institutions and offering support pro‑grammes for local suppliers. The board also acts
as a forum for private sector and foreign investors
to elevate their concerns to the government.
The board’s functions did not spring up over‑night but evolved over time in response to shift‑
ing national development needs and perceived
constraints. Its role in fostering Singapore’s
development is generally considered to have beensignificant.

74

Qatar National Development Strategy 2011–2016enhancing economic stability), provide income
for the future and diversify Qatar’s income base.
Decisions on how much to allocate to investment
in foreign currency assets ultimately rests with
the Supreme Council for Economic Affairs andInvestment.
Decisions on financial investments for the country will address its specific needs: foreign currency reserves to support management of the currency and to meet payment obligations; liquid assets
to support stabilization goals; longer term investments to diversify income and provide funds forthe future; and strategic investments to accelerate the acquisition of knowledge, technology andcapabilities that can expand and diversify Qatar’s
productive base. These matters and responsive
strategies will be carefully considered within thewider context of the design of the nation’s economic policy architecture.

Enhancing economic stability
The second challenge for Qatar will be “to choose andmanage a pathway that delivers prosperity yet avoids
economic imbalances and stresses.”­— ­Qatar National
Vision 2030
Economic stability is needed if investors are goingto make long-term commitments to expanding the
productive base. While every economy encounters bumps in the road, excessive or prolonged
volatility­—­w ith radical swings in demand, steep
inflationary trends or financial convulsions­—
erodes business confidence, deflecting attention
from strategic investments and choking off accessto credit and longer term sources of finance.
The causes and consequences of instability

Chronic economic instability discourages investment, local and foreign. It eventually becomessocially corrosive, undermining trust. Althoughsome people find ways to generate gains fromthe distortions and fluctuations, ordinary citizens usually find managing their uncertain economic future difficult and revert to narrowlychapterself-­interested coping mechanisms. With social
trust fractured, there is little space for participation in broader efforts to advance the public good.
Qatar has been susceptible to considerable measured volatility­— ­among a sample of 57 countries
it displayed the highest level of nominal income
volatility between 2002 and 2007. Inflation accelerated sharply from 2005, hitting a high of about
15% in the first quarter of 2008 (figure 3.3). The
run-up was caused by a rapid expansion in credit
fuelled by booming hydrocarbon income aggravated by supply-side bottlenecks. Inflation cooled
when the deep global recession of 2008 and 2009
depressed global and domestic demand.
Hydrocarbon dependency exposes Qatar to gyrations in global energy markets, leaving economicplanning prey to high uncertainty. In June 2008
oil sold for $114 per barrel; six months later, in
December 2008, the price had declined to just $41
per barrel. For a hydrocarbon-exporting economy such as Qatar, energy price shifts hit the fiscal revenue stream directly, creating ripple effects
throughout the economy (figure 3.4). The inherent unpredictability of energy prices makes it

3particularly difficult for policy-makers to judge
the most constructive fiscal stance (figure 3.5).
There is always a risk that errors in fiscal calculations will accentuate volatility. Given the unpredictability of global oil prices, it is virtually impossible to know whether price changes are temporary
or lasting. An oil price rise that is thought to bepermanent might reasonably justify support forincreasing services to citizens. But if the rise istemporary, the higher transfers might generate a
range of unintended consequences, including a
structural funding gap. Even if the price increase
holds, caution is needed. If the economy is alreadyoperating close to capacity, ramping up spending
in the short run could lead to inflation.
To some extent, Qatar is shielded from gyrations in international hydrocarbon prices. Mostof Qatar’s gas is sold on long-term purchase andsales agreements whose prices are set according to a moving average benchmark price for oil.
This approach somewhat reduces the volatility
in Qatar’s liquefied natural gas (LNG) revenue
stream. But the protection is only partial because
LNG prices still track oil prices, and some of

Figure 3.3 Inflation accelerated sharply from 2005, hitting a high of about 15% in the first quarter of 2008
Consumer price index and inflation

Consumer price index composition

Consumer price index (2006 = 100)

Inflation rate (annual % change)
15

160

15
14
12

131

10

5

82

77

120

114

9
7

124

100
89

80

2

40

0

–5

–5
2003

2004

2005

2006

2007

2008

Category

WeightFood, beverages and tobacco

0.13

Clothing and footwear

0.06

Rent, utilities and related housing services

0.32

Furniture, textiles and home appliances

0.08

Medical care and health services

0.02

Transport and communication

0.20

Entertainment, recreation and culture

0.11

Miscellaneous goods and services

0.07

Consumer price index

1.00

Consumer price index is influenced most by rents andhousing-related expenses, which fell sharply in 2009.

0

2009

Source: Qatar Statistics Authority (http://www.qsa.gov.qa/eng/index.htm).

Sustaining economic prosperity

75

Figure 3.4 For a hydrocarbon-exporting economy such as Qatar, price shifts hit the fiscal revenue stream
directly, creating ripple effects throughout society
Nominal GDP (QR billions)Hydrocarbon

Nonhydrocarbon

West Texas Intermediate spot price, quarterly average (US$ per barrel)

150

124

118

98

100

91
75

34
32

65
58

68

29
52
46
33

30

38

59

58

65

63

28

26

50

41
34

38

43

41

41

38

31

31

Q1

Q2

40
36

0
Q1

Q2

Q3

Q4

Q1

2007

Q2

Q3

Q4

2008

Q3

2009

Source: Qatar Statistics Authority (http://www.qsa.gov.qa/eng/index.htm); U.S. Energy Information Agency Petroleum Statistics database.

Figure 3.5 The volatility of oil prices makes it
difficult for policy-makers to judge themost constructive fiscal stance% of GDP
25

Qatar’s LNG contracts provide for periodic renegotiation or adjustment in volumes purchased.
Pressures for downward adjustments to contract
prices would grow if there were a prolonged period of price weakness in the spot market for LNG(see chapter 2).
The policy of pegging the Qatari riyal to the U.S.
dollar can create challenges for economic management. Particularly when demand conditions in
Qatar and the United States diverge, Qatar Central Bank has little leeway in pulling domestic
monetary levers in the desired direction. All told,
the monetary arrangements required by the peg
create another element beyond the government’s
control­— ­similar to the exposure to global oil
prices­—that ­could generate instability in Qatar’s
economy.

20
Government saving

15

10
Overall fiscal balance

5

0
2002

2003

2004

2005

2006

2007

2008

2009

Source: International Monetary Fund (IMF) Qatar Article IV report and Statistical Appendix
January/February 2010; IMF Qatar Medium-Term Baseline Scenario.

76

Qatar National Development Strategy 2011–2016

Fortunately, Qatar’s episodes of volatility have not
had the viral effects that have sapped some economies tied to natural resource exports. But there
is no guarantee that the future will resemble thechapterpast. As Qatar moves from a capital-intensive
spending phase of its development, the operations
and maintenance of its capital assets will make significant budgetary claims that need to be carefullyplanned and managed. The government recognizes, too, that as growth in the hydrocarbon sector
slows, sound macroeconomic policies supportinga stable environment will be critical in helping thenonhydrocarbon sector prosper and expand.
A reformed budget framework

Notwithstanding the uncertainties surrounding
world oil prices, budget planning and execution
are central to economic management. Indeed, theannual budget is the government’s main instrument for short-run economic management. Currently, ministries submit spending plans, basedlargely on historical expenditure parameters, andthe Ministry of Economy and Finance puts together a recommended budget for approval by the cabinet. Although the budget preparation and disbursement processes are administered efficiently,
the present arrangements have some limitations.
The budget emphasizes inputs and spending controls, not functions, outcomes or impacts. Using
historical benchmarks to guide allocations leads
to inertia, since it is difficult to wind down old programmes and make space for new ones.
As such, the budget is framed without full attention to the future trajectory of revenues andexpenditures. In particular, the preparation process does not completely factor in spending obligations that extend into the future, as when capital investments entail commitments to operations
and maintenance for decades ahead.
Sizeable outlays of state resources also occur outside the government budget. Although these outlays are not considered within the core budgetaryplanning process, they affect the macroeconomic
environment in the near term and influence development prospects in the long term. These statelinked expenditures also make claims on otherresources, including land and the environment.

3

In recognition of these challenges, the government will launch a budget reform programme,
built around a reorganization of the Ministryof Economy and Finance as mandated by Emiri
Decree 31. The key goal is a comprehensive legal
and budgetary framework governing publicfinance, consistent with Qatar’s Constitution.
Target for 2016
• Establish a forward-looking and coordinatedbudget process, linked to the National Development Strategy 2011–2016 and to the operational
plans of spending agencies (see also chapter 7).
A fiscal transformation programme will support
this goal with five core elements:• A new budgetary law embodying the principles
of efficient public finance.
• A functional classification for all spending
based on the UN Classification of Functions ofGovernment.
• A “macro-fiscal” framework that helps decision-­makers analyse the relevance of critical planning parameters and the fiscal and macro­economic implications of commitments they
are considering.
• A public investment programme to ensure that
capital projects deliver the highest social worth
and are well coordinated.
• A new monitoring and evaluation function.
The first three of these elements are in process.
A decision has also been made to establish a debt
management function in the Ministry of Economy
and Finance. But successfully addressing implementation over 2011–2016 will require significant
institutional adjustments and concerted capacitystrengthening programmes as well as the recruitment of seasoned technical experts in the Ministry of Economy and Finance, line ministries andother agencies.
Partly because of limited expertise in Qatar in
macro-fiscal policy and in strategic and operational planning, the programme will be rolled out
gradually and at a pace that the Ministry of Economy and Finance and other arms of government
Sustaining economic prosperity

77

will be able to manage. Experience worldwide,
including that of advanced Organisation for Economic Co-­operation and Development (OECD)
countries, underscores the technical and political complexity of budget reform and demonstrates
that full programmatic and performance budgeting systems take many years to establish. In thelonger run, and looking towards monetary unification within the Gulf Cooperation Council, thegovernment recognizes the need to consider harmonizing its fiscal policy framework and reporting systems with those of partner countries.
A public investment management framework

Within the reformed budget framework the government will direct special attention to the capitalbudget, which historically has functioned as a compilation of separate investment requests. The government’s new approach will align major investment
projects with the country’s overarching development
goals, closely considering the underlying macroeconomic and fiscal conditions. Initial improvements
have already been made in coordination, but thesewill need to be supported by strengthened technical and analytical functions. The public investment
programme will be the government’s first significant step towards a more comprehensive programmatic budgeting approach, and it will firmly embed
a forward-looking results orientation in the budget.
Because public investment is a core component of
the country’s growth and development strategy, thegovernment will require a systematic assessmentof all significant state investment commitments,
including analyses of the quality of individual projects. This will be necessary for linking large statefunded investments “up” to the National Development Strategy 2011–2016 and “down” to annual
budget allocations and wider funding decisions.
A coordinated public investment programme
will strengthen the government capital budget by
ensuring that project objectives are aligned with
the National Development Strategy 2011–2016,
linking the strategy to specific budget allocations.
It will preserve and expand national wealth by78

Qatar National Development Strategy 2011–2016

selecting capital projects that create lasting social
worth. It will address trade-offs among potential
investments, committing resources where they canmost benefit the country. It will also evaluate project concepts and proposals from financial, economic, environmental and social perspectives, withQNV 2030 and the National Development Strategy
2011–2016 providing directional guidance.
Certain projects managed within the public
investment programme might be best structured
as public-­private partnerships. The government
believes that an increased private sector role, considered case by case, could improve project andinvestment planning, management and operations and add real public value. By providing a
new framework for public-private partnerships,
the government will ensure that they fit within thelarger investment plan and provide a pathway forthe transfer of skills and knowledge to the country and wider options on financing. Steps havealready been taken to put in place a framework for
public-­private partnerships under the auspices ofthe Ministry of Business and Trade, and the needfor new legislation is being considered.
Targets for 2013–2016• Establish a public investment programme thatanchors all sizeable public investment decisions
in a systematic assessment of their benefits andcosts relative to broad national development
priorities.
• Enable private sector collaboration in public
investment projects within a coherent framework that delivers development benefits to thestate, including knowledge and skill transfers.
Five basic steps are needed to establish a functioning public investment programme:• Formalizing the programme through laws andinstruments and identifying the location ofdecision-making functions within government.
• Creating programme units within suitableagencies, with capable staff.
• Establishing supporting processes and systems,
including technically sound appraisal and evaluation techniques.

chapter• Introducing capacity-building initiatives tostrengthen project preparation, implementation and evaluation skills.
• Conducting pilot projects to test and refine key
features of the programme’s system.
The requirements to establish an effective public
investment programme are similar to those to support budgetary reform. New systems and processes
are required both in the central functions of government and in the line ministries and other agencies where major capital spending decisions orimplementation responsibilities are located. New
legal and regulatory infrastructures are needed tosupport new roles, decision processes and institutional relationships. Decision-makers require support from competent technical advisors and experts
with relevant implementation experience. Designing and setting up the programme architecture may
take two years. Afterwards, there would be a pilot
phase, followed by adjustments and full roll-out.
A stabilization mechanism

Several endowment funds already help government
plan and meet its spending commitments. But aspart of a wider programme of fiscal reform, the government will consider other possible mechanisms tohelp cushion the potential impacts of hydrocarbon
price volatility on government revenues and spending. One possibility would be to set aside financial
resources for investing in a fund of safe and liquid
assets that could be drawn down to supplement government revenues when they are squeezed by unanticipated falls in hydro­carbon prices. In times of rising hydrocarbon prices, excess revenues could beallocated to top up the fund. In this way, government would smooth out revenues, avoiding the large
swings caused by shifts in global energy prices.
Although stabilization funds require careful management, they are preferable to other means ofmanaging revenue dips, such as selling possibly
illiquid assets at a discount to fair value, ad hoc
borrowing in international capital markets or
reducing expenditures on an unplanned basis.
A review of global experience with stabilization

3

funds­—­used in countries ranging from Chile to
Oman­—­makes it clear that they cannot substitutefor stronger budgetary discipline. A technical study
would be a first step in outlining possible approaches to smoothing out swings in fiscal revenue flows
and considering implementation challenges.
Target for 2013
• Review options to stabilize fiscal revenue andexpenditure flows
Enhanced liquidity management and deeper
capital markets

Qatar Central Bank has three responsibilities:
formulating and implementing monetary policy;
licensing and regulating commercial banks; andmanaging domestic debt (in coordination with the
Ministry of Economy and Finance). In the future
this mandate will be expanded to include regulating the wider financial system.
Monetary stability is a critical challenge. Because
the riyal is tied to the U.S. dollar and Qatar operates an open capital account, Qatar cannot run afully independent monetary policy. Qatar Central
Bank also faces challenges in coping with the monetary outcomes of fiscal spending. Currently, Qatar
Central Bank controls domestic liquidity conditions through the Qatar money rate mechanism,
reserve requirements for banks, active open market
operations, administrative controls on banks consumer credit activities and certificates of deposit.
The government recognizes that more effective
management of domestic liquidity is importantfor overall macroeconomic stability. While Qatar
Central Bank can issue certificates of deposit withmaturity of up to one year, the Ministry of Economy and Finance has yet to issue treasury bills.
Because the government runs perennial fiscal surpluses, treasury bills are not needed to fund public
spending. However, some surplus countries, suchas Norway, issue government securities to support
the development of the domestic money and capital markets and to facilitate the central bank’s
liquidity management. These developmental
Sustaining economic prosperity

79

benefits entail a fiscal cost—equal to the difference between what the government pays holdersof treasury bills and what it receives from investing
the proceeds.
Together, the Ministry of Economy and Financeand Qatar Central Bank will consider steps toaccelerate the development of money and domestic bond markets with the goal of improving
liquidity management in the short term and supporting the development of debt markets over the
longer term. The government will also look at
options to better calibrate the domestic liquidity
implications of fiscal spending and asset management decisions.

Bank and will require close coordination at thehighest levels of government.

Enhancing technical and economic
efficiency
Sustainable prosperity requires “open and flexible economic structures capable of competing in a changing
world”.­— ­Qatar National Vision 2030

Targets for 2014
• Introduce an extended range of instruments to
help manage domestic liquidity.
• Prepare a strategy to guide broader domestic
capital market development.

Opportunities for efficiency gains proliferate, cutting across sector boundaries. Improvements intechnical and economic efficiency involve using
scarce resources more effectively in a given activity or use. Improvements in market efficiency
focus on allocating resources among alternative
uses to maximize social benefits. Where markets
do not function well, regulatory interventions canimprove efficiency. Figure 3.6 illustrates how thesefour elements of efficiency fit together and link to
sectors and focus areas.

Again, achieving these goals will place significant
technical and operational demands on the Ministry of Economy and Finance and Qatar Central

By attacking inefficiency in technology, physical infrastructure, institutions and processes, thegovernment can make a lasting contribution to

Figure 3.6 Elements of efficiency interact and link to sectors and focus areas

Power
Infrastructure

ic

Te
c

om

hn

on

ica

l

Ec

Water
Power
Land
Infrastructure

Efficiency

Qatar National Development Strategy 2011–2016

M

ry

to

la

80

ar

ke
t

gu
Re
Land and buildings
Infrastructure
Business climate
Trade

Subsidies/user charges
Trade and investment liberalization
Competition

chapter

improved resource use over time. With an abundance of hydrocarbon resources but a scarcity
of other vital resources such as water and arable
land, a drive for efficiency is central to creating
and capturing value, preserving and expanding
the productive base and encouraging the private
sector to develop through discovery and economic
diversification.
Improved efficiency has other benefits, too. By
improving the use of capital assets, efficiency
measures save fiscal resources by deferring or
eliminating the need for replacement investments
or capital expansion. Some efficiency gains reduce
waste and unwanted by-products such as carbon
dioxide emissions and waste water, contributing toenvironment goals.
In addressing these aspects of efficiency, this partof the National Development Strategy 2011–2016
focuses on how Qatar uses its natural resources and delivers infrastructure services. Particular attention is given to desalinated water, whichis coproduced with power in a process that uses
large amounts of land and natural gas. Related
environmental dimensions of resource use andmanagement are examined in chapter 6.
Efficiency metrics

Efficiency can be measured by the quantity andquality of services provided for a given set of inputs(technical efficiency) and by the cost of delivering
a given quantity and quality of services (economic efficiency). Other proximate indicators of technical and economic efficiency used here include
levels of waste and service coverage and quality, aform of operating efficiency.
As noted in chapter 2, Qatar has made large infrastructure investments in recent years, including in
power and water production. They have supported high-quality services, with further improvements expected as a result of initiatives pursued
under the National Development Strategy 2011–2016. Figure 3.7 provides a snapshot of Qatar’s
infrastructure capacity, quality and cost.

3

Enhanced use and conservation of water

Few tangible aspects of Qatar’s life and economy
need efficiency reforms as much as water­— ­crucial
to all human activity but in scarce supply. With
one of the world’s lowest levels of rainfall, Qatar
relies on water from three sources: desalination,
groundwater and recycled water, all subject toinefficiencies that may create stresses and eventually pose a threat to water security or require large
investments to ease shortages (figure 3.8 and figure 6.3 in chapter 6).
Desalination, which accounts for about half thewater used in the country, depends on a costly
and energy-intensive cogeneration process thatuses large swathes of coastal land and requires
sea­w ater that does not exceed set levels of salinity. With rapid population growth and urbanization, the use of desalinated water has tripled
since 1995, reaching 312 million cubic metres in2008.
Losses of desalinated water due to leakage arehigh by international standards. Some estimates
put network losses as high as 30%–35%, compared with an OECD average of 18%. Leakage inthe distribution system for desalinated water costs
as much as QR 1 billion a year. The government’s
strategy for improved water management calls foran aggressive five-year programme to cut network
losses. Over the long term the government will
also be investigating the feasibility of applying newreverse osmosis technologies that do not consume
as much power and that can tolerate higher salinity levels than current processes.
Fresh groundwater drawn from natural aquifers
accounts for about 36% of water use, but efficiency problems are again evident. An estimated 250
million cubic metres of groundwater are extracted each year, mostly for irrigation, five times the
50 million cubic meters of freshwater rechargethat comes from Qatar’s meagre rainfall. With
demand far exceeding the recharge rate of aquifers, Qatar’s freshwater reserves are under stressand at risk of exhaustion.
Sustaining economic prosperity

81

Figure 3.7 A snapshot of Qatar’s infrastructure in capacity, quality and cost
Meeting Qatar’s needs by 2016?aService quality

Power supply

2020

Water supply

2020

If RAF A in operation until 2020, nofurther capacity additions required

Quality of water in line with benchmarks;
98% network coverage; water stock
limited to 1.5 days

High network losses (30%–35%);high per capita demand

Networks being developed; treatment

Wastewater+2030 capacity additions in 2011 satisfying

River quality of treated water;investigation of water quality upgrade

Limited treated sewage effluent use (60%);
low expected treatment plant use after 2011

Roads

+2030 expansion plans based on very highLowest perceived quality of road in
the Gulf Cooperation Council (World
Economic Forum); need to strengthen
public transport

Construction cost in line with Gulf
Cooperation Council average but low use if
network realized based on current population
projections

Seaports+2030 new Doha port expected with large

Current port congested; new Doha
port expected in line with international
standards

Expected low use of new port; high share of
total cost incurred in phase 1 (+70%)

Current airport congested: 3 stars(out of 5) Skytrax rating; new Dohainternational airport expected in linewith international standards

New Doha international airport with highcapital expenditure per passenger; highshare of total cost incurred in phase 1–2(70%–80%)

Service quality expected in line withinternational standards

Expected low use;
expected high lifecycle cost

Network covering main hubs in Qatar

Service quality expected in line withinternational standards

Low number of passengers per kilometre ofrailway compared with EU average

Limited penetration gap in Internet;
national broadband network expectedwith 95% coverage

Bandwidth performance below
international benchmarks; new national
broadband network to increase
performance to 50 megabits per second

Planning in preliminary stage

population projections

Current port operating beyond capacity;
excess capacity if phases 2–3 realized
Current airport operating beyond

Airports

2020b capacity; new Doha International

Airport phase 1–2 required—phase 3
expansion could be postponed (from2015 to 2020)
Very large network (85 kilometres)

Metro+2030 relative to Doha transportation

Rail

+2030

Information andcommunication
technology

Limited number and duration ofinterruptions; approximately 100%
network coverageHigh power generation CAPEX; low plant
use after 2011 (60%); transmission anddistribution losses in line with benchmarks

needs beyond 2030

Current network congestion, but road

Transportation

Efficiency

Committed capacity significantly
exceeding demand

Megaprojects

Power and water

Focus area

demandna

Adequacy of supply, quality and efficiency

Attention point

Critical issue

a. Current or planned capacity is adequate and is not expected to reach saturation until the year indicated.
b. Refers to phases 1 and 2.

Groundwater supplies are subject to extensive
waste and loss, notwithstanding their scarcity.
Much of the groundwater is used for flood irrigation of open fields, with high levels of evaporation.
Farmers pay a small pumping charge but otherwise have free use of groundwater, providing little
incentive for conservation.

could leak, contaminating the limited supplies ofgroundwater (see chapter 6). Qatar could makefar more extensive use of recycled water, which isa quarter as expensive to produce as desalinatedwater.
Inefficiencies are also evident on the consumption side of the water equation. Qatar’s per capita
water use is one of the world’s highest. Agriculture
makes heavy demands on water, disproportionate
to the value created by the sector.

Recycled water, or treated sewage eff luent,accounts for the remaining 14% of the water usedin Qatar. But because supply currently outstrips
demand, about 40% of treated sewage effluent isdischarged into septic lagoons. Some wastewater­ Excessive water use stems partly from technical—­p articularly from industrial users­—­
i s not and economic inefficiencies. The government istreated but is discharged or stored in tanks that already addressing some problems. Projects to82

Qatar National Development Strategy 2011–2016

chapter3

Figure 3.8 Qatar relies on water from desalination, which is subject to inefficiencies that may threaten
water security or require large investments to ease shortages
Desalination water supply and demand, actual and projected, 2009–2030
Desalination supply
Million cubic metres per year

Status quo desalination demand, average
Reduced loss desalination demand, average
Technology demand-side management and reduced loss desalination demand, average

750

Network loss
reduction
Comprehensive
demand side management500

Expected shortage pushed
out 10 years to 2030

250

02009 2010

2012

2014

2016

2018

2020

2022

2024

2026

2028

2030

Note: Demand curves represent average of two projection scenarios from Population and Employment Projections, 2008 to 2030: A Framework for National Planning (QSA/GSDP). Projections are approximate and use themost reliable data available. Treated sewage effluent is not considered a substitute for desalinated water due to current social and infrastructure-related limitations. These projections assume network loss reduction fromapproximately 30% to 18% (OECD average) by 2015 and change in behaviour and technology reaching 60% adoption by 2020 for commercial and residential entities and by 2015 for government entities.
Source: National Development Strategy 2011–2016 estimates.

seal leaks are under way, with plans to accelerate
the work on pipes, pumps and flow meters. The
government aims to bring the loss rate down to
10%.
The government will also be spearheading aseries of water-saving initiatives. Substantial
amounts of water would be saved by equipping
faucets with “water savers”, which the government
will consider installing. The government is also
weighing the best ways to encourage drip andsoak watering of gardens and increased use ofcovers for swimming pools. Other initiatives willencourage water saving by commercial users. To
monitor the impacts, the government will extend
the current programme of installing water metersand examine the benefits of “smart meters”.
In agriculture, a new approach is needed. Irrigation methods that involve flooding fields­— ­w ithhigh losses from evaporation­—­need to be
replaced with drip irrigation systems, which use
much less water for a given yield. Over the longer
term, solutions to agricultural water issues need to
be formulated in a wider framework of the commercialization of sustainable farming methods
and domestic agrofood products.
Increased treatment of industrial and household
wastewater would create recycling opportunities
while removing environmental hazards (see chapter 6). The government will consider investments
in both areas, looking for opportunities to expand
both the collection and the distribution networks for recycled water. By distributing recycledwater to more users, the government can relieve
demands on other sources of water and reduce
discharge. The government will also look closely at options for infrastructure for collecting andtreating industrial wastewater. By extending the
Sustaining economic prosperity

83

domestic collection and treatment of wastewater,
the government can reduce dependence on septic
tanks, an environmental priority.
Targets for 2013
• Cut network leaks of desalinated water to 10%
or less from the current estimate of 30%–35%.
• Ensure that all water consumption is metered.
• Support installation of water-saving technologies for households and other users.
• Develop a programme of water-saving measures in plans for agricultural development.
• Expand treated sewage effluent networks toincrease the use of recycled water.
• Examine the feasibility of industrial wastewatercollection and treatment systems.
The implementation challenges of water-saving
initiatives vary. Stemming distribution losses
involves technological fixes. Introducing watersaving devices to households is fairly straightforward, as Abu Dhabi and Canada have shown.
Encouraging the use of water-saving appliances
will require effective communication, but mightalso need supporting incentives (see below on
economic efficiency). Regulations that are difficult and costly to enforce (such as bans on hosepipes for washing cars) may be unnecessary if
the government can popularize a water-saving
mindset.
Changing water consumption patterns in agriculture is vital to an integrated approach to water
management. It will require a fundamental andprolonged reorientation of farming, involving a
range of factors including government subsidies.
Recharging aquifers with treated sewage effluent(if shown to be technically feasible) would easethe looming water scarcity problem. But withoutchanges in irrigation methods and crop mixes,
farming will continue to make heavy demands
on Qatar’s precious water resources. The government is committed to addressing this challenge
and finding solutions within a wider programmeof agricultural reform and development of thedomestic food industry.

84

Qatar National Development Strategy 2011–2016

Improved efficiency in energy and gas use

Power distributed through Qatar’s grid isco­produced with desalinated water using gas turbine technology. The gas used to produce domestic power has an opportunity cost in forgone
export revenues. For a few large industrial users,
power is provided through standalone generation
facilities.
Although the country’s power needs are fully
served by a high-quality and reliable service, Qatar
could achieve greater efficiencies through technical enhancements. Such changes could save 5% ofdomestic gas consumption—and possibly more.
Even though Qatar’s abundant gas supplies are
expected to last well into the future, improved efficiency would yield both environmental and economic gains. Savings would have the added benefit of providing a buffer for the supply of gas,
which is ample in the long run but constrained
over shorter periods of time. By burning less natural gas, Qatar would support the national goal oflowering carbon dioxide emissions (see chapter 6),
reducing the country’s contribution to global climate change. Gas saved domestically can be soldoverseas, increasing national income.
The government also recognizes potential technical efficiency gains in power production.
Upgrading power plant turbines brought onprior to 2000 would increase thermal efficiency
by 4%–6%, enabling total gas savings of about
2% of estimated local demand by 2016. The government will work with producers to quantify the
expected savings and to find ways to share thecosts of upgrading.
With air conditioning accounting for 67% of residential power consumption, a shift to modern
energy-efficient systems would bring significant
savings. Cutting heat emitted by other appliances
would lower air conditioning needs. Government
will look at ways to encourage the use of energy-­
efficient technologies, such as automated sensor
lighting systems that cut power demand directly,

chapterwith the extra payoff of reducing the demands on
air conditioning when the heat from light fixtures
is lowered. Wider use of district cooling systems on
domestic and commercial premises would save on
power and further the environmental benefit ofexpanding the market for recycled water. For new
structures, gains will come from efficient design,
backed by government-mandated green building codes, setting standards for such elements
as better insulation and increased shading andreflection.
Kahramaa, the country’s power and water distribution company, acquires power under long-term
purchase agreements with independent power andwater producers. From a sustainability perspective,
the state should aim to minimize the cost of thegas consumed in producing power and water. Dispatching the most efficient combined power andwater generation facility to the grid first and adding incremental supply according to gas efficiency might yield further economies. Kahramaa will
study possible opportunities for enhancing theefficiency of power dispatch.
Finally, renewable energy presents opportunities
for Qatar to enhance its future energy mix, conserve gas and reduce carbon emissions, once technologies become cost efficient. The greatest potential lies in solar energy, but other technologies
may play a part depending on still-­evolving technological and economic parameters. The Ministry of Energy and Industry will create a committee to examine the potential of renewable energy
resources in Qatar.
Targets for 2013
• Study opportunities to lower gas consumption
per unit of combined energy and water produced through enhanced dispatch.
• Improve thermal efficiency in power production.
• Advance the adoption of energy-saving
technologies.
• Keep Qatar’s green building code implementation on track.
• Establish a committee on renewable energy at
the Ministry of Energy and Industry.

3

Interventions to achieve these goals should follow
an assessment of their costs and benefits, drawing on the experiences of other countries. Whereadvantageous, the private sector should participate in the design and implementation of initiatives, helping shape incentives to encourage sustainable energy use. For independent power andwater producers, more efficient dispatch arrangements might require contractual changes, but
aggregate savings to the country could be sufficiently large to make investors whole again under
any revised arrangements.
For conservation efforts in water and power to succeed, the government needs effective communications and stronger regulatory capacities. A key
part of the robust demand management architecture will be the establishment of an independent
regulator covering power and all aspects of water(see below and chapter 6).
Adding value to infrastructure

Investment decisions by the private sector are critically influenced by the availability and quality of
infrastructure services, which influence costs, productivity and asset returns.
Qatar’s significant infrastructure investments inthe past decade (see chapter 2) are paying off. Its
capacity across all infrastructure subsectors is likely to be adequate through at least 2016, and thequality of services is expected to be generally high.
While infrastructure service quality is below par insome areas, plans for upgrading are well advanced(see figure 3.7). In one or two subsectors, there
might be a need to reconsider current proposals
as a result of changed circumstances.
AirportAfter completion in the next two years of phases
1 and 2 of the new Doha international airport,
service quality will meet the highest international
standards, with capacity likely to remain adequate
at least until 2020. A decision on the commissioning of phase 3 will be assessed subsequently within
Sustaining economic prosperity

85the wider context of public investment planningparameters and based on realized traffic flow.
Information and communications technology
Currently, there is a quality gap in informationand communication technology services, withbandwidth below international standards. Investments in a national fibre-optic network will soonclose the gap, and the government will support
private providers in ensuring that the new network reaches all parts of the state (see below).
Seaport
The port of Doha, which is operating at full
capacity, is congested, with delays the norm. The
planned new port, to be located at a distance fromthe Corniche, will relieve the congestion. The
plan is to construct the new port in three ­phases:
phase 1, scheduled for completion by 2015, willaccommodate up to 2 million 20-foot container
equivalent units a year; phases 2 and 3, scheduled
for completion in 2018 and 2025, will each add
2 million more. These plans were formulated in
2008, when global trade was booming and growthlooked set to continue.

only half the capacity created. It also seems likelythat the planned capacity additions in 2018 and2025 would widen this gap. To saturate planned
capacity by 2030, direct shipment demand would
have to grow at an average annual compound rateof 15%, which far exceeds the assumptions built
into the baseline in chapter 2.
Other factors also suggest that growth is likely
to fall short of that required to saturate capacity. Doha’s location, distant from internationalsea lanes, limits the potential for growth in transhipment traffic. In addition, the 2008 design isunlikely to have factored in other recent developments, including the planned expansion of the
nearby Mesaieed and Ras Laffan port facilities
and prospective investments in a regional rail network. All would divert traffic from the new Doha
port. Although the need for a new and larger port
is compelling, the design and intended phasing of
the commissioning of the new Doha port will now
be reviewed.
Target for 2011
• Expedite a review of phases II and III of the
new Doha port.
Roads

In mapping infrastructure investments, planners
make assumptions about the future, recognizing
the unknowns. A trade-off typically exists between
providing capacity ahead of need and delaying
capacity additions until demand materializes. In
building ahead of time, planners lose the optionof leveraging future design advances and technology. But deferral risks supply bottlenecks andlarger costs in the future. If the expected costs of
inadequate capacity outweigh those of temporary
oversizeing, planners should opt for early investment and overcapacity in the short run.
More recent projections of global growth andtrade anticipate a significant slowing of growthover the optimistic forecasts made in 2008. These
new projections suggest the risk that the new Doha
port would have substantial excess capacity on its
scheduled opening in 2015, with traffic requiring
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Qatar National Development Strategy 2011–2016

Qatar, ranking 41st worldwide in the quality of
its roads according to the 2010 World Economic
Forum survey, is looking to upgrade its road infrastructure, now congested and inefficient.
Traffic congestion stems largely from a fast-rising
population, limited public transportation services, suboptimal traffic management and disruptions from road upgrading and expansion. Current plans to extend the road network are foundedon assumptions of continuing high population
growth to 3.8 million by 2030, which now seems
implausible. Recent projections by the Qatar Statistics Authority and General Secretariat for Development Planning suggest that Qatar’s population may
be substantially less than this projection, in whichcase the proposed road network would be underutilized, particularly outside Doha city centre.

chapterIn the city centre, where congestion is worst, spatial constraints limit the building of new roads
and the expansion of existing ones. Here, better traffic management initiatives (such as better signalling) and more attractive public transportation (say, through increased bus network
coverage and service quality) are two alternative
solutions.
Rail
Planners are already at work on Qatar’s national rail network of about 350 kilometres, a project budgeted at approximately $9.1 billion. Targeted for completion by 2017, the network willlink Qatar’s main industrial and residential hubs
through high-speed passenger rail and freight
services. The network will be connected to thecommon Gulf Cooperation Council rail network,
also expected to be operational in 2017. Because
Qatar is served by only one, often congested landborder crossing to Saudi Arabia, the completionof the rail network will significantly improve connectivity to Qatar’s hinterland in the Gulf Cooperation Council countries. Benefits from theimprovement will depend on achieving a good
match between the supply of services and potential demand, as well as providing the appropriate
level of service.
For rail demand to be realized, the planned rail
networks in the other Gulf Cooperation Council countries must also be developed. Challenges
might arise in interoperability, regulation, technical capabilities and financing among the Gulf
Cooperation Council countries. Greater coordination within Qatar is also required among theentities involved in road and rail planning, including Qatari Diar, the Urban Planning and Development Authority and the Qatar–Bahrain Causeway
Foundation.
Doha metro
Plans for the greater Doha metro system are
in place. Qatari Diar and Deutsche Bahn haveformed a consortium to manage this megaproject.

3

Plans call for the system to be built in three phases, with expected completion around 2025 and an
estimated cost of $27 billion.
While the need for improved urban transportation infrastructure in greater Doha is indisputable (see above), the scale and scope of the project are based on implausibly high populationand passenger-­traffic projections. There is a risk
under the current design that costs per passenger
journey could be exceedingly high. As is the casefor the planned new Doha port, the assumptions
underlying the design of the metro and its economic and social benefits merit close review.
Target for 2011
• Review the planned Doha metro system inlight of realistic population passenger-traffic
assumptions, costs and wider economic, socialand environmental impacts.
Improved efficiency of land use

Agriculture accounts for 4% of available land in
Qatar, and the Qatar Programme for Food Security estimates that 15% of the country’s food is supplied domestically. Agricultural yields are generally lower than those of other Gulf states, partly
because of farming methods that are outdated
or badly matched to local conditions. Low use offertilizers and modern farm machinery reduces
efficiency further. Significant expansion of agricultural production will be possible only with the
adoption of different crop mixes and farming
methods that are water efficient.
The government has requested that the Qatar
National Food Security Programme and theMinistry of Environment study farming methods
and land-use patterns and work towards a new
strategy for food and agriculture. This plan musttake into account the full economic and environmental costs of the country’s system of farm
support.
Industrial land use is subject to fragmented regulation and procedural encumbrances, and theSustaining economic prosperity

87

associated infrastructure services are of variable
quality. Some efficiencies and improved services
have been realized through programmes designating specific areas for industrial uses, including
a number of “industrial cities” to serve the hydrocarbon sector and related industries. Qatari Diar’s
three economic zones, once approved, will represent a significant step forward in the availability ofhigh-quality industrial land.
Efficient land-use planning needs to be integrated
across uses­—­industrial, residential, commercial,recreational and infrastructure. Qatar’s National Master Plan and the related Integrated Transportation Plan, currently in process, will set out adetailed blueprint for physical land use and transport planning through 2032. Optimal use of land
resources and sustainability are key themes of the
Master Plan (see the subsection on land regulation below).
Target for 2011
• Approve and implement a National Master Planfor integrated land use and transport planning.
Target for 2013
• Establish well serviced and efficiently managed and regulated special economic zones forindustrial land.
Target for 2016
• Achieve sustainable improvements in agricultural productivity.
Implementation of some of these programmes isalready under way, and further progress is anticipated. Decisions are awaited on the establishmentof new economic zones. Preparation of Qatar’s
National Master Plan is in its final stages, andapproval is expected in 2011. The public investment programme and Qatar’s National Master
Plan will need to be closely coordinated on issues
linked to megaprojects. But the reform of agriculture will take more time and involve a range ofcomplex issues, including access to and use of land
and water, application of subsidies and changes in
the mix of crops and livestock.
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Qatar National Development Strategy 2011–2016

Enhancing market efficiency
Market efficiency is about putting scarce resources to their best use. But markets do not always do
this well. Where there is scope to exercise market power­— ­a nd where there are externalities,
information gaps or forbidding transaction costs­—­markets may be inefficient or may not work atall. In such circumstances there may be a role fordirect regulation to protect the public interest.
Although government regulation can improve theoperation of markets, government failures andinterventions can add to problems, throwing gritinto the working machinery of the marketplace.
Alignment of user charges with economic costs

Qatar provides citizens free health and education
services. Farmers rely on free access to groundwater, natural fertilizers, pesticides, vegetable seeds
and veterinary services. Land­— ­for farmers andmany commercial ventures­—­is available at subsidized levels. Subsidized credit is provided to somecommercial firms, and investors often enjoy tax
holidays. Water and power are free for citizens,and most infrastructure services are available
without charge. State employees are promised a
generously supported pension as well as financial
assistance for housing.
Although there is ample economic and social justification for some subsidies (such as those forhealth and education), others are at odds with theaspirations of QNV 2030 and Qatar’s sustainability objectives. In particular, user charges for water,
power and fuel warrant scrutiny.
Today, consumers in Qatar have little information about the wider impacts of their consumption
behaviour. Voluntary restraint by a more sensitizedand socially aware public, along with water-saving
technologies, could result in significant savings.
But water subsidies still eclipse the scarcity andtrue value of the resource and contribute to overconsumption and waste. User charges that betterreflect full economic costs could make a significant contribution to redirecting Qatar’s preciouschapternatural resources to higher value uses. Such efforts
might initially be targeted to the non-Qatari population and industrial and commercial users.
Similar public awareness efforts, coupled withconservation-­oriented tariff structures, could
boost efficiency in power and fuel consumption.
These measures would not only have fiscal benefits for the state but would also be environmentally
beneficial.
Target for 2014
• Phase in user charges for power, water and fuelthat better reflect the full economic costs ofproduction.
The review of user charges should be part of awider campaign to improve demand management for water, power and fuel. The benefits ofhigher user charges need to be clearly communicated ahead of time, and the introduction ofhigher charges can follow measures that generate
gains in technical efficiency. If user charges areextended to Qatari households, households thatface hardship can be compensated through direct
income transfers. And a set level of services could
be exempted from charges for Qatari householdswith low income. To support these measures, thecreation of an integrated power and water regulator will be important (see below).
Preservation of fish stocks

Where economic incentives fail to protect common or open access resources, those resources cancome under pressure. The problems with water
use in agriculture described earlier occur partly
because no individual farmer has an incentive to
reduce water consumption. But collectively, farmers’ steady depletion of freshwater aquifers will
eventually hurt all society, starting with the farm
sector. Qatar’s fishing industry presents a similar
challenge. As in many other parts of the world,fish stocks are being seriously depleted, because
there is no incentive for any one fishing boat tolimit its catch. The environmental dimensions of
this problem are considered in chapter 6.

3

To serve the public interest in ensuring the sustainability of fish stocks, the government will
explore effective limits on both the fishing fleet
and the catch, including restrictions on the size
and age of fish that can be caught and sold. The
government will develop enforcement capacities
to ensure that new regulations are followed. It will
also consider opportunities for the developmentof aquaculture to meet future demand.
Target for 2014
• Increase fish stock levels, apply effective regulation and create a domestic aquaculture capability.
Effective implementation will require stronger regulation both at fishing sites and onshore, where fish
catches are landed. A specialized function would
support sustainability objectives, as would better
information systems. The development of a local
aquaculture capability might first require state support for technical and financial feasibility studies
and possibly targeted and temporary financial assistance for new ventures. But the objective must be toestablish commercial viability at the soonest point,
so any financial subsidies must be temporary.
A more competitive economy

Increased competition could make a great contribution to market efficiency. As a member of theWorld Trade Organization, Qatar maintains comparatively low tariffs on tradable goods. H­ owever,a number of services, including ground transportation, food imports and district cooling, lackcompetition and the discipline that follows.
In 2006, Qatar enacted a law protecting competition and prohibiting monopoly practices to enable competition to benefit both consumers andbusinesses. A limitation of the law is its exemption of entities controlled or owned by the state.
In addition, implementation of the law, centred in
the Qatar Chamber of Commerce and Industry,has focused on responding to specific consumer
complaints. The government intends to provide
resources to ensure effective implementation of
the wider antitrust provisions of the law.
Sustaining economic prosperity

89

Reducing barriers to entry strengthens competition. The government intends to continue its programme of progressive liberalization of restrictions on foreign direct investment and to add tothe list of sectors where foreign equity participation is not restricted. The government recognizes that administrative and procedural processes should not thwart the intention of theseprovisions.
Targets for 2012–2014• Design a robust implementation programme
for the existing competition law, supported by
the necessary capabilities.
• Expand liberalization of trade in services under
the General Agreement on Trade in Services.
• Continue the programme of foreign investment liberalization.
Although comparatively straightforward commitments, their effective implementation will requirethat Qatar have access to policy, technical andadvisory skills that are in short supply locally.
Gaps include expertise and knowledge to support
developing an agenda and liberalizing trade inservices.

Regulation and efficiency
Governments regulate to improve efficiency inallocating society’s resources. Regulation may also
influence noneconomic, social or cultural goals.
The focus here is on economic regulation.
There are many forms of regulation. Most workby restricting behaviour or choice in circumstances where markets cannot be expected to lead tothe best outcomes. Markets may not work properly
because of information gaps, externalities (benefits or costs incurred by third parties) or forcesthat thwart competition. In such cases, the government may regulate in the public interest. The
normal arenas for government regulation include
finance, the environment and natural resource
access and use. But regulation can also be a sourceof inefficiency, and regulatory agendas sometimes
stray.
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Qatar National Development Strategy 2011–2016

Better business regulation

The World Bank’s Doing Business studies point toseveral regulatory encumbrances that investors in
Qatar face when trying to establish a business orconduct business operations, ranging from inefficient licensing processes to burdensome customs
regulations. The Ministry of Business and Tradeis now looking at ways to remove unnecessary red
tape and to streamline other regulations that hobble commerce.
Target for 2011–2014• Streamline business and trade regulations andachieve a significant improvement in the WorldBank’s Doing Business scorecard.
Significant improvements in the business environment will depend critically on coordinating andimplementing capabilities within the Ministryof Business and Trade and its ability to promoteneeded regulatory and procedural changes inother parts of government. These issues warrant
careful consideration as the ministry develops its
own operational strategies.
Improved infrastructure regulation

Plans for Qatar’s infrastructure anticipate a larger role for private investment and public-private
partnerships (see the section on promoting stability above). A balanced regulatory framework will
safeguard the public interest while allowing for a
sufficient return to attract investors.
Regulation of infrastructure in Qatar is uneven and somewhat haphazard, with little cross-­
fertilization of ideas or cooperation across sectors.
Some areas suffer from a lack of regulation whileothers experience inefficiencies because of too
much red tape. The absence of a single regulator
for water resources contributes to inefficient use
in the midst of water scarcity. The rules governingindustrial land often conflict or change, increasing costs for business and inhibiting private sector
expansion. Some licensing procedures serve little
or no purpose but cost businesses money and time.

chapter

In designing regulatory functions, it is helpful tostudy experience and use the most effective models. There is a strong consensus that independent regulators or regulatory functions can best
address the multiple goals of regulation. Thismodel locates regulation below the policy andlegislative functions of government and above
the operation of markets, with each layer separated from the others. Ministers, accountable tothe political leadership, set the broad direction,
including the laws under which regulation andmarket operations function. Regulatory agencies
are accountable to ministries but are functionallyindependent, setting standards, tariffs or rules toensure that services meet the required standards.

Focus area

Power, water andwastewater

Independent regulators can also settle disputes or
impose penalties for violations of rules. Operators
should be commercially motivated, disciplined bymarkets as well as accountable to regulators, andprotected from political interference.
Qatar lacks these separations (figure 3.9). Agencies in the infrastructure sector often mix thethree functions of policy-maker, regulator andoperator. In other areas, such as land regulation,
there are multiple, overlapping regulators.
Most of the overlaps are between regulatory andoperational functions­— ­a potential source of
inefficiency. The risk for reduced service levels

Operators should be commercially motivated, disciplined by markets as well as accountable toregulators, and protected from political interference, but Qatar lacks these separations
Current agency

Policy-maker role

Regulator role

Operator role

Kahramaa• Defines requirements for power andwater infrastructure• Builds, manages and operates
power and water transmission
and distribution networks

Ashghal• Defines requirements for drainage
network and construction standards• Builds, manages and operates
wastewater and drainage
systems• Tariff and pricing management• Requirements and use of treatedsewage effluentc

No agency identified

Roads

Airports

Urban Planning andDevelopment Sector

Oversees urban planning at
the state level

Ashghal• Sets safety and construction
standards

Civil Aviation Authority• Sets standards for aircraft
equipment manufacture andmaintenance• Licenses pilots and engineers• Sets standards for airport safety
and operations• Sets standards for air traffic control

Port Management Companya• Vessel performance, regulation
regarding loading and offloading ofcargo from vessels, tariffs and port
charges

Department of General
Transport Affairsb• Classification and maintenancestandards, licensing of seamen
and personnel, ship and small craft
registration, maritime regulation

Seaports

Information andcommunications
technology• Defines standards for road design

ictQatarDefines policy and directionof information andcommunications technology
infrastructure in Qatar(primary driver behind Qatar
National Broadband Network)

Functional separation in Phase 2

Figure 3.93• Performs spectrum management,
type approval, satellite broadcast
regulation, consumer billinga. The former Customs and Ports General Authority has been split into the Port Management Company and the Department of Customs.
b. Previously known as the Department of Maritime Affairs; it has recently moved under the Ministry of Business and Trade.

• Constructs and maintains road
networks• Supervises the management ofDoha International Airport• Oversees air freight operations• Manages civil ports and port
operation standards• May participate directly indevelopment of Qatar National
Broadband Network

Primary role
Secondary rolec. Regulatory functions not currently being handled by any agency.
Note: The rail and metro sectors are not addressed because they are not yet operational (and therefore not in need of regulation).

Sustaining economic prosperity

91

rises when one entity is providing a service, setting the required standards for its delivery andmonitoring compliance with those standards.
The potential consequence of such an arrangement is reduced service quality for end users
and, possibly, lower service standards in some
sectors.
In Qatar some regulators carry out certain operational functions, and some operators regulate
their own service. The Civil Aviation Authority falls into the former category. The Supreme
Council of Information and Communication
Technology, in addition to being the primary regulator for all activities pertaining to telecommunications and information technology, may also
invest directly in specific initiatives, such as theinfrastructure for the Qatar National Broadband
Network.
Some operators function as regulators. Ashghal,
Kahramaa and the Port Management Company
are operators that regulate their own activities.
Although not a formal regulator, Kahramaa monitors service levels and sets performance standards
for infrastructure assets while operating transmission and distribution networks. Ashghal’s role inroads and drains has similar overlaps. The Port
Management Company is responsible for setting
port operation standards and for regulating vessel
performance, loading and offloading cargo andtariffs and port charges.
Integrated water management requires regulatory independence and unification and will require
closely coordinated regulation of both water andwastewater from production, distribution and consumption to reuse and recycling. Given that waterand power are co­produced and depend on eachother, a single regulatory authority could oversee all activities related to these sectors. Ideally,such a regulator would be independent, drawing
on specialized technical expertise. Abu Dhabi hasestablished an integrated and independent regulator for power, water and wastewater. Regulatory
reform could improve efficiency and service delivery in other sectors.
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Qatar National Development Strategy 2011–2016

Target for 2014
• Establish an independent and integrated waterand power regulator.
Once regulatory and operational functions are
separated, policy and regulatory independence
could follow and may be important for supporting competition. When private sector involvement
is introduced in an infrastructure sector, it is vitalthat the regulator of that sector not be responsible for policy as well. For example, a state-ownedmonopoly operator should not be regulated byan agency under the same ministerial organization. The regulator’s links to the incumbent stateowned enterprise could put any aspiring private
participant in the market at a disadvantage.
Some steps have already been taken to strengthen
the regulatory infrastructure. The Supreme Council of Information and Communication Technology has a high degree of independence. In thefinancial sector steps to unify regulation are at anadvanced state, with the newly created regulator
to come under the wing of Qatar Central Bank.
Stronger land regulation

Qatar has no specific planning law or comprehensive legislative framework for the preparation,
approval and implementation of development
plans. No single agency has specific responsibility
for the implementation of land-use planning for
Qatar, resulting in considerable inefficiency.
The government intends to respond to these challenges in four ways. First, it will formulate a robust
land-use policy for developing a spatial hierarchyof coherent plans. Second, it will strengthen theregulatory processes for standardizing systems,
codes and controls. Consideration will be given
to institutional arrangements that can support
improved and integrated regulation. Third, tosupport new arrangements, the government will
foster collaborative mechanisms among all the relevant players. This must include integrating theplans of entities that operate outside the current
system. Fourth, the government will need to directchaptermore resources to strengthening planning andimplementation capabilities in municipalities andat the centre.
Target for 2011–2016• Approve and execute Qatar’s National Master
Plan.

3

Taking stock of the hydrocarbon legacy

Qatar’s dependence on oil will continue todecline even if production rates are sustainedby investments in enhanced and incremental oil
recovery.

Qatar’s reliance on gas exports is set to continue. But extraploating today’s production and
Building a diversified economy
cost parameters far into the future would be hazQatar intends to build “a diversified economy that grad- ardous. While they may provide a reliable guideually reduces its dependence on hydrocarbon industries, for the next 25 years, feasible production rates
enhances the role of the private sector and maintains its thereafter may be lower, and costs could be higher. Beyond the expiry of existing purchase andcompetitiveness”.­— ­Qatar National Vision 2030
sales agreements, the commercial value of distant
Having achieved enormous gains by develop- future deliveries is also uncertain. While Qatar’s
ing the hydrocarbon sector, the government is gas wealth is considerable, given these uncertainpoised to take on another significant challenge­ ties and the lengthy process of economic discov—­diversification. A diversified economy is more ery entailed in broadening the country’s economic
capable of creating jobs and opportunities for the base, Qatar has good reasons to act now.
next generation and is less vulnerable to the boom
Investing hydrocarbon income in foreign assets
and bust cycles of oil and natural gas prices.
is one important avenue for diversifying Qatar’s
Diversification is also essential since Qatar will income. But relying exclusively on foreign asset
need renewable sources of wealth creation to gen- income would not constitute a viable, long-term
erate income and support consumption after its development strategy. It would create new types
hydrocarbon reserves are depleted. Economic of risk, for example, leaving Qatar exposed to thediversification is a common thread in the strategy vicissitudes of international capital markets, and itof many resource-rich countries, but success has would not address Qatar’s ambition to become an
been elusive for many and has come only gradu- inquiring, innovative and creative society. A more
ally for others. Some countries target priority sec- diversified domestic economic base, in whichtors and try to direct resources to them. Others knowledge activities play a prominent role in geninvest in an enabling environment that encour- erating productive and remunerative jobs, is necages investment and creates opportunities for essary to expand capabilities and support wider
the private sector to branch into new areas. Many societal objectives.
countries follow a mix of both approaches.
Because a diversified economy takes decades toDiversifying the domestic output base is not a establish, the process should get under way now.
stroke-of-the-pen shift. Entrepreneurship and Identifying competitive advantages, acquiring new
innovation need to be learned, embedded in the capabilities and developing new product lines andeducation system and in the surrounding culture market links all require a long period of experiand supported through business friendly poli- mentation, discovery and learning.
cies and regulations. Qatar’s private sector willneed strengthening, with support and incentives Tackling the challenges
that encourage acquiring relevant capabilities
and participating in a wide range of economic The absence of a ready formula for diversificaactivities.
tion means that Qatar will have to develop a more
Sustaining economic prosperity

93

varied economy through economic discovery. To
date, the capacity for discovery has not generated significant results. Little by way of diversification of output has occurred over the last decade(figure 3.10). A study of new exports from Qatar
reveals that only 41% survive one year after theirintroduction (figure 3.11).
Moreover, the scope of Qatar’s exports is limited,
especially when compared with that of successful
outward-­looking economies. Singapore, for example, exported a diverse array of about 4,590 separate products in 2008, compared with about 1,630
from Qatar, 98% of them (in value terms) linked
directly to hydrocarbons or such energy-intensive
industries as metallurgy. In various surveys, few
Qatari businesses report plans to expand beyond

Figure 3.10

Transport and telecommunications
Finance and real estate

4
6

4
6

7

7

5

75

9
13

3

6
8

50

Construction
Hydrocarbons

7

7

8

9

5

5

10

6

9

5

6

9

7

6

6

5

5

9

13

5
9

9

10

11
11

12

57

Trade and hospitality
Manufacturing
Government and social services

5
6

11
57

Often new product introduction grows out of
research efforts. Today, Qatar has only a small
pool of scientists, engineers and technical workers. The path-breaking work of the Qatar Scienceand Technology Park as a “research accelerator”
demonstrates great promise. But this experimentis still in its infancy, and even with opportunities
for quick commercial wins, creating a research
culture and forging links back to the wider economy will take time. Basic research initiatives underthe Qatar National Research Fund have started,but there is normally a substantial lag between
university research and the development of commercially viable propositions.

Little diversification of output has occurred over the last decadeShare of GDP (%)
100

core businesses or move to the next level in thevalue-adding chain.

54

10
54

12

52

9
8

9

10

51

50

13

50

25
Nonhydrocarbon real output contracted
in 2008–2009 due to crisis, raisinghydrocarbons as a share of real GDP
and lowering the diversification index.

0
2002

2003

2004

2005

2006

2007

2008

2009a

65.9

70.0

115.3

124.1

143.2

186.5

233.9

254.2

Diversificationindexb
2.75

2.81

3.00

2.99

3.15

3.32

3.37

3.42

Real GDP(QR billions)a. Based on growth for hydrocarbons and nonhydrocarbons as per International Monetary Fund Article IV from 2008 levels.
b. Inverted Herfindahl­- Hirschman Index for key economic sectors.
Note: Sectors are regrouped for uniformity across countries.
Source: International Monetary Fund (IMF) Qatar Article IV report and Statistical Appendix January/February 2010.

94

Qatar National Development Strategy 2011–2016

chapter

To diversify, Qatar must overcome several interrelated challenges:• Entrepreneurship is not yet solidly establishedin Qatar. Small and medium-size enterprises constitute a fledgling part of the economy.
Despite the success of a relative handful ofcompanies such as iHorizons, the sector is considered weak. Fewer than 40% of the existingsmall and medium-size manufacturing enterprises were established after 2000.
• Qatar’s domestic economy is too small to
attract significant foreign investment focusedon internal markets, and smallness also limits
the economy’s usefulness as a training groundfor local companies hoping to expand regionally or globally.

3• Geography imposes limits. Qatar is poorly connected to its hinterland in the Gulf Cooperation Council countries and is a three-day trip
from major international sea lanes.
• Qatar’s development model, with a low-wage
private sector coexisting with a high-wage public sector, limits opportunities for Qataris andprovides little incentive for investment in homegrown capabilities. Labour productivity is falling across most sectors (figure 3.12).
• Like other natural resource–rich countries, Qatar
is vulnerable to underlying pressures for realexchange rate appreciation, making its exports
more costly and less competitive­—­the economic
pathology known as Dutch disease (figure 3.13).
Finding the best approaches for Qatar

Figure 3.11 Only 41% of new products exported from
Qatar survive until the next year

Diversifying Qatar’s economy will require collaboration between the state and the private sector,
each focusing on what it does best. Deciding on

Number of products
1,200
1,035
159

Figure 3.12 Labour productivity is falling acrossmost sectors

7

900
159

Real GDP compound annual growth rate, 2006–2009 (%)
70

301

600

60
455
62
72

312

300

4

Increased productivity

50

174

Decreased productivity

40

0

80

115

17

Number of new
products exported

3

25

Number of products thatsurvived until the next year

30

OtheraTransport and telecommunications

4%

20

Total
GDP

Trade andhospitality

Finance andreal estate
Construction

7%

Survival rate, 2005–2007

10

Hydrocarbon
Hydrocarbon derivatives
Metallurgy
Machinery and precision instruments
Other manufacturing products
Other mineral products
Other

55%
39%
43%
54%
33%
39%
31%

Total

41%

5%

5%

8%

9%

Manufacturing

0
0

10

20

30

40

50

60

70

Employment compound annual growth rate, 2006–2009 (%)
a. Includes agriculture, fishing and utilities. Productivity growth is due mainly to agriculture andutilities that are subsidized by the government.
Note: Size of bubble indicates the relative size of the sector as a percentage of GDP in 2009.

Source: UN COMTRADE database and International Trade Centre Trade Map database.

Source: National Development Strategy 2011–2016 estimates.

Sustaining economic prosperity

95

Figure 3.13 Qatar is vulnerable to underlying pressures for real exchange rate appreciation, making its
exports more costly and less competitive
Real effective exchange rate (Index: 2000 = 100)
150

140

130

120

110

100
2000

2002

2004

2006

2008

2010

Source: Institute of International Finance (IIF) Data Retrieval database.

business investments is best left to those who understand the relevant markets, production systems andvalue chains and to those who are putting theircapital at risk. But only government can regulate in
the public interest, determine policy direction andorchestrate the exploitation of Qatar’s hydrocarbon wealth and the use of the financial resourceshydrocarbons create. Given existing private sector
weaknesses, government will also play an importantrole in spearheading the development and growthof private sector capabilities, through financial support and other means. But government has to guard
against featherbedding an inefficient private sector
or undermining incentives for high performance.
Government must also promote a level playing field
for the private sector, avoiding practices that givestate-linked entities an unfair advantage. Box 3.3
summarizes design principles that can guide state
support for industry and the private sector.

around the world have tried and are trying toreach a similar outcome. Among Gulf Cooperation Council countries, Bahrain and Saudi Arabia
are working on strategies for encouraging morediverse economies. Abu Dhabi also has a comprehensive plan.
The fact that other countries are pursuing
diversification strategies creates opportunities for cross-country learning. But there arealso risks. Many of the Gulf Cooperation Council countries are focusing on diversification in
the same areas, including petrochemicals, airtransport, logistics, real estate, knowledge services, finance, life science and telecommunications. Depending on how these strategies evolve,
the Gulf countries face the risk of channelling
resources into the same sectors, with each country falling short of achieving an efficient scale ofproduction.

Setting the national diversification agenda

Qatar is not alone in seeking a broader economic base. Other natural resource–based economies
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Qatar National Development Strategy 2011–2016

Qatar, like other countries seeking diversification, will build on areas of existing and emerging
strengths and clear potential. But beyond thesechapterBox 3.3

3

Calibrating government involvement in industry

Because government support will be needed­— ­even
for funding certain start-up activities­— ­guidelines
should be adopted to prevent lasting distortions or
government-funded failures. The following designprinciples can help guide government actions in sup‑port of private sector development:• Provide incentives and subsidies only to truly newactivities, which would face information and co‑ordination challenges that markets alone would
not solve.
• Set development targets that can be monitored.
• Build in automatic sunset clauses for ending
state support.
• Target specific economic activities not entire
sectors.
• Subsidize activities with clear spillover effects
and demonstration value.

•

Place authority for carrying out industrial policies
in agencies with demonstrated competence.
• Place involved agencies under the authority of ahigh-level political authority to ensure commit‑
ment and accountability.
• Make sure that implementing agencies maintainchannels of communication with the private sector.
• Understand that failures are possible since it is
impossible to eliminate all risks or bring in all
relevant information.
• Enable activities to renew themselves so that thecycle of discovery can continue.
These principles have been identified and dis‑tilled from cross-country experiences in East Asiaand Latin America by economist Dani Rodrik as com‑
mon success factors associated with state support
for economic discovery.

Many separate initiatives are already under way. It
is important to take them into account, link themwhere possible and address gaps that may undercut future success. A variety of institutions will be
engaged in Qatar’s diversification drive. These
Actions to open the economy, streamline rules include Enterprise Qatar; the Qatar Foundation,and strengthen the legal framework for enterpris- which houses the Qatar Science and Technology
es support the broader diversification goal. For Park; the Supreme Council of Information andexample, government has enacted a series of laws Communication Technology; Qatar Financial
affecting banking, customs and commercial law­—­ Centre; and Qatar Development Bank. The broad
all of which help establish a predictable environ- roles expected of these institutions in spearheadment for doing business. The government also has ing Qatar’s diversification efforts are identified
liberalized the laws governing foreign direct invest- below in the context of their own mandates andment, allowing majority foreign ownership in such strategies.
sectors as agriculture, manufacturing, health andmining. Although foreign investment outside the To accelerate the diversification agenda, the govhydrocarbon sector remains meagre, the enabling ernment will address the constraints that impedeeconomic discovery and the birth of new economconditions for growth are being created.
ic activities. The government fully recognizes that
Other steps support the diversification drive. Three to stimulate investment it must ensure macroecomajor industrial cities­— ­Dukhan, Mesaieed and nomic stability, regulatory efficiency and coherRas Laffan­—­house a mix of energy-­related indus- ence, and effective delivery of infrastructure sertries. The anticipated establishment of special eco- vices (all examined above). In addition, the pushnomic zones offering high-level infrastructure to build a more diverse economy will require speservices and freedom from regulatory and other cial attention to four areas that frustrate innovation and enterprise start-ups: low demand for skills
burdens is expected to stimulate new investment.
areas, Qatar will focus primarily on building capabilities in the private sector and on supporting
efforts to lift productivity growth across the whole
economy.

Sustaining economic prosperity

97

amid surplus labour, a weak private sector and low
levels of entrepreneurship, limited capabilities of
discovery and innovation, and weak regional integration and connectivity.
Creating demand for skills and high-wage jobs

Qatar’s low demand for skills emerges as a criticalfactor limiting opportunities within a more varied economy. Emphasizing production based on
low-wage, low-productivity labour and following adevelopment model dependent on highly labourintensive production methods in the property andinfrastructure sectors have created obstacles toan economy driven by innovation and knowledge-­
based services. Today, a low-wage private sector
closes off opportunities to Qatari citizens. As aresult, many seek positions in the public sector,
taking jobs where their potential may not be fully
realized.
Breaking out of the current low-wage configuration may raise costs in the short run and will
require adjustments that may be difficult. But
over the longer term dynamic efficiency gains andthe accelerated productivity growth that follows
will more than compensate for any rise in costs
and will create incentives for innovation and theacquisition of knowledge. Supply-side investments
alone will be insufficient. Through modern education and training, citizens might qualify for successful careers in a knowledge-oriented economy.
But possessing those skills does not guaranteethat there will be jobs­—­particularly if employers
can still orient their recruitment and production
strategies around the availability of a large pool ofcheap, unskilled immigrant workers.
For its part, the private sector operates with thedistortions that flow from labour policies. Somefirms focus on earning rents from leasing workers or collecting fees from businesses that are
owned locally but operated by foreign lessees. The
options of building low-risk business around thesetypes of activities leave little incentive to invest in
more demanding, riskier enterprises that would
have greater benefits for the larger economy.
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Qatar National Development Strategy 2011–2016

The presence of a pool of cheap labour creates abias towards labour-intensive technologies that provide few opportunities for discovery or productivity advances. Only when cost structures change willbusinesses want to invest in new, less labour-intensive production methods and will job-seekers alter
their expectations. Each of these shifts will nurture
the other, but the larger economic transformation
is likely to take a generation or more. To expand
quality opportunities for Qataris, and to reverse
the factors retarding productivity growth, the government will review policies that might have fostered dependence on low-wage, low-skilled labour(see chapter 5 for targets on labour markets).
Strengthened private sector and entrepreneurshipA strong culture of private sector initiative is normally characterized by a robust layer of small andmedium-size enterprises. Qatar’s small and medium-size enterprise sector is underdeveloped, constituting about 15% of the economy, with mostfirms focused on the domestic economy.
Enterprise Qatar, an early initiative linked to
QNV 2030, will provide a focal point for stimulating services for small and medium-size enterprises. Its programme will be performance based,catalysing the delivery of services by the private sector to small and medium-size enterprises
through vouchers and targeted grants. Businessskills development, incubation, marketing andother services would be supported. Enterprise
Qatar will also share risks with the private sector,
through support for guarantees and participationin equity. Although no sector would be excluded
from its support, it will direct its energy towards
knowledge-­intensive businesses, focusing particularly on developing entrepreneurial skills among
young Qatari men and women. Enterprise Qatar
is expected to open for business early in 2011.
The Qatar Development Bank is cultivating a new
portfolio of financial and business support services
to encourage private sector development, including a renewed drive to support small and medium-size enterprises in targeted sectors. It has also

chaptercreated an export promotion function to expand
the private sector’s space and market share. It is
expected, too, that the Qatar Development Bank
will partner closely with Enterprise Qatar and with
the Qatar Science and Technology Park in a varietyof enterprise and knowledge business initiatives.
The Ministry of Business and Trade is working
with the World Bank to identify and implement
improvements in the climate for doing business in
Qatar. Challenges exist within the ministry and inother agencies in supporting implementation. It
is important to establish clear precedence among
objectives and to consider the readiness of people
and systems for any proposed changes.
Privatization can be an important pathway fordeveloping private sector capabilities, but tocontribute to a supportive ecosystem, it must go
beyond divesting equity from state-controlled
companies. Increasingly, privatization initiatives
will be designed to build competitive strengths
through acquisition of knowledge, technology,
management skills and operational expertise.
The government, for its part, will endeavour toboost small businesses through changes to procurement and outsourcing rules that will reduce
onerous transaction costs. One problem in Qatar
today is the heavy working capital requirements
needed to meet bidding bond regulations. These
requirements are particularly difficult for small
companies to meet. Qatar’s agreement under the
General Agreement on Trade in Services allows
for favourable treatment within transparent procurement procedures to support the developmentof local enterprise.
Targets for 2011
• Make Enterprise Qatar operational.
• Introduce new products and services fromthe Qatar Development Bank that enhance its
reach and relevance.
Target for 2012
• Reform government procurement regulations
to reduce burdens on small business.

3

The efforts needed to drive progress in theseareas should not be underestimated. Movingfrom concept design and strategy to businessmodels that will gain traction requires experience combined with knowledge of local market
needs and demands. Both Enterprise Qatar and
the Qatar Development Bank will need to recruitand retain qualified and experienced financeand business professionals. Other goals will needlegislative changes, which will require effective
advocacy.
Increased capabilities for innovation, skills anddiscovery

Succeeding in a knowledge-based economy entails
moving beyond improvements in existing production. New product lines, applications and connections are necessary in an environment where technology firms, innovation institutes, research anddevelopment centres and corporate innovation
units are all looking for ways to create genuinely
new products and services that potential customers will value.
Patents, one way of measuring a society’s level ofinnovation and discovery, show significant spacefor improvement. Over the past five years Qatar
has filed about 14 patents annually, comparedwith more than 5,000 for such countries as Norway and Singapore.
Qatar is committed to advancing research anddevelopment and has targeted 2.8% of GDP to
support research. Research institutions havelaunched potentially important initiatives. The
Qatar National Research Fund is now in its fourthround of funding activities, but no centralized
body is responsible for planning and coordinating
national research and development activities. The
government will prepare a national research anddevelopment strategy to better guide the development of technology and knowledge-intensive
businesses and to promote technology and knowledge transfer. Among other things, the researchand development strategy would set high goals forresearch.
Sustaining economic prosperity

99

Target for 2013
• Develop a national research and development strategy and linked technology transfer
strategy.
The Qatar Foundation spearheads Qatar’s efforts
to become a knowledge society. Its functions
include expanding access to education among citizens, supporting the development of knowledgebased enterprises and funding research and development activities in universities, industry and the
public sector. The Qatar Foundation is also active
in other ventures, particularly in health.
Within the Qatar Foundation, the Qatar Scienceand Technology Park provides an environment forcollaboration among firms and across traditional
research boundaries to produce innovative solutions and to develop their commercial application.
It also houses an initiative to promote knowledge
based businesses­—­businesses whose assets reside inknowledge and information rather than in the physical product space. Together with the Qatar Development Bank and General Secretariat for Development Planning, the Qatar Foundation will pioneer
an incubator programme for knowledge businesses. This will combine the development of top-down
strategy with bottom-up pilot projects that could
be funded by the Qatar Development Bank, Qatar
Foundation, Enterprise Qatar and the Supreme
Council of Information and Communication Technology. Because the state will have an important roleas an investor, customer and regulator, a public-private partnership structure will be needed to forge
progress. The form of this structure and related governance and funding arrangements will be workedout based on learning during the pilot stage.
Target for 2011
• Establish an incubator for knowledge businesses at the Qatar Science and Technology Park.
Target for 2013
• Establish a public-private partnership framework to support development of a knowledgebased business sector.

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Qatar National Development Strategy 2011–2016

Enhancing information and communication
technology for economic development

The Supreme Council of Information and Communication Technology (ictQATAR) will actively leverage information and communication
technology (ICT) to support the realization of
Qatar’s national development goals and position
Qatar as a leading knowledge economy enabled
by ICT by 2015. A plan developed by ­ictQATAR
identifies three strategic thrusts. The first thrust
will entail initiatives to encourage the government and key economic sectors to use ICT innovatively and to provide the people and businesses of Qatar with the skills and awareness needed
to fully participate in the digital society. The second thrust will continue to build a sustainable
ICT ecosystem, creating a local ICT talent pooland identifying business opportunities involving digital content. The third thrust will provide
affordable, high-speed and secure ICT infrastructure to serve the needs of the economy andsociety. To support these initiatives, ­ictQATAR
has identified detailed projects that are wellaligned with broader national development strategy goals.
Target for 2011–2016• Approve and execute the Supreme Council ofInformation and Communication Technology’s
strategy.
Expanded financial sector activities

The Qatar Financial Centre is supporting thedevelopment of Qatar’s financial industry. In
addition to providing a window for international banking and investment in Qatar and in theregion, it is focusing on developing capabilities in markets for asset management, re-insurance and captive insurance. In a developmental
capacity, it has established the Qatar Financial Business Academy, which provides products and services to strengthen capabilities in
the financial sector and in the general business
community.

Figure 3.14 Economic prosperity is both a goal and an enabler to achieve the aspirations of Qatar National
Vision 2030

Other sectors as enablers for economic prosperity

Build knowledge andhuman capital

Enhance social capital

Caring andcohesivesociety

Raise productivity andcreate new business
opportunities

Goal

Educationand training

Create new business
opportunities

Environmental
sustainability

Economic
prosperity

Institutional
development

Population, labour
force and Qatariemployment

Healthcare

Enhance policy, analytical andtechnical capabilities ofgovernment and develop
effective regulation

Support skilledworkers

Enabler

Economic prosperity as an enabler for other sectors

Increase demand fortechnical education andvocational training

Provide funds forsocial protection

Educationand training

Caring andcohesivesociety

Improve social
infrastructure; demandfor healthcare services

Encourage efficient natural
resource use and reduction ofemissions; expand the demandfor environmental services

Environmental
sustainability

Economic
prosperity

Institutional
development

Population, labour
force and Qatariemployment

HealthcareStrengthen corporate
and public sector
governance

Create decent andremunerative jobs

101

Target for 2011–2013• Implement Qatar Financial Centre’s strategy,
and scale up the activities of the Qatar Business
Financial Academy.
Realizing the benefits of regional integration

Countries in many parts of the world have realized benefits from regional integration. By freeing the movement of goods, services, technologies
and people across borders, they have created integrated economic spaces, enabling firms to reachlarger markets and generate production efficiencies that would have been impossible if they had
remained fenced inside their own economies.
Economically integrated regions are more attractive
to foreign investors who are more inclined to open
a production or distribution facility if it serves a bigger regional market. Often, local firms first develop
an export orientation within a region before reaching out to more distant global markets. Qatar’s small
domestic market may fail to offer adequate learning
opportunities or the scale needed for efficiency.

Harmonizing regulations and laws offers benefits across a wide spectrum (including, for example, labour and finance). Coupled with lower tariffs and reductions in other formal trade barriers,
such steps could spur investment and trade within
the region and support common efforts for a morediverse and efficient regional economic base.
Cross-border infrastructure can be important inrealizing the benefits of a more integrated andenlarged economic space. The border between
Qatar and Saudi Arabia is served by just one roadcrossing. A combination of inadequate connective infrastructure and cumbersome border andcustoms procedures raises the costs of trade andcrimps efficiency.
Shared infrastructure also offers benefits. A
regional rail network connecting Gulf Cooperation Council countries would be a significant
advance in connectivity. A modern fibre optic
network in the Gulf Cooperation Council, also
under study, would support knowledge-­based sectors throughout the region. And a regional power
grid, which could support power transmission
along high-voltage direct-current cables, would
promote wider opportunities to capitalize onenergy assets.

Qatar, a member of the World Trade Organization,
operates a relatively open economy. However, stronger cooperation among Gulf Cooperation Council
countries can contribute to greater economic efficiencies and improve the potential for diversification. Gulf Cooperation Council countries are creating a number of overlaps in energy-intensive areas
such as petrochemicals, steel and aluminium. Ethylene plants are going up in three neighbouring
countries. The potential for building overcapacity isstrong. Competition is also evident in financial services, air transportation, tourism and education.

As with the other pillars of QNV 2030, sustaining
economic prosperity requires mainstreaming economic initiatives across sectors and institutions,just as those sectors and institutions will contribute to sustaining economic prosperity (figure3.14).

Cooperation and pragmatism offer clear benefits. There may be situations where Qatar could
improve its returns by investing in a neighbouring
country rather than creating underutilized capacity
at home. Likewise, other Gulf Cooperation Council
countries may wish to look at opportunities emerging in Qatar before adding to their own capacity.

Chapter 4 considers in more detail some of thethemes introduced here. Developing the capabilities that will equip Qatar to sustain its economy
and society is one important theme. Another isunderstanding how the operation and regulationof the labour market serve Qatar’s wider development interests.

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Qatar National Development Strategy 2011–2016*     *     *Chapter 4
Promoting human development

4

Promotinghuman development“The National Vision aims at transforming Qatar into an advanced country
by 2030, capable of sustaining its own development and providing for ahigh standard of living for all of its people for generations to come.”—Qatar National Vision 2030

The human development pillar of Qatar National
Vision 2030 (QNV 2030) calls for the “developmentof all [Qatar’s] people to enable them to sustain
a prosperous society” and “to meet the needs ofthis generation without compromising the needsof future generations”. Qatar will continue toinvest in its people so that all can participate fullyin the country’s social, economic and politicallife and function effectively within a competitive
knowledge-based international order. It is putting
in place advanced health and education systems
that meet the highest global standards. It is also
supporting the productive participation of Qatarimen and women in the labour force, while attracting qualified expatriate workers in all fields, with agrowing emphasis on the higher skilled.

How does Qatar fare on the global human development index? With a score of 0.803, it ranked 38th
in the world in 2010, in the group of countries with“very high” human development. Its gross national income is among the world’s highest. Its life
expectancy at birth is 76 years, approaching the81 years of Norway. Its expected level of schooling,
however, is 12.7 years, well below the 15–20 yearsof other very high human development countries.
The National Development Strategy 2011–2016
identifies the challenges in health, education andproductive work. It also presents plans for meeting those challenges by fostering a healthy, longliving population, building world-class knowledge
and skills and producing a capable and motivatedworkforce.

The notion of human development gained prominence 20 years ago, when Mahbub ul Haq, lead Under the leadership of the Supreme Council of
author of the United Nations Development Pro- Health, Qatar will develop an integrated healthcare
gramme’s first Human Development Report, called system that is managed to world-class standards, isfor a new approach to development economics, accessible to the entire population and offers serputting people, not production, at the centre. That vices through public and private institutions. A
first report called for moving beyond such narrow national health policy will set and monitor standmeasures of progress as gross national income per ards for the social, economic, technical and adminperson, then the main yardstick for development. istrative aspects of healthcare and for effective andWhile accepting the importance of income as an affordable services in accord with the principle ofindicator, the human development index added cost-sharing partnerships. The healthcare systemmeasures of life expectancy, to capture improve- will help all people in Qatar live longer and healthments in health, and measures of school enrol- ier lives. Preventive and curative care will take into
ment, to capture improvements in knowledge­—­ account the differing needs of men, women andcreating a new composite indicator of progress in children. High-quality research will focus on publichealth, biomedicine and clinical effectiveness.
health, education and income.
104

chapterAlso, under the leadership of the Supreme Education Council, Qatar will build a modern, worldclass education and training system that provides
a first-rate education comparable to that offeredin the best schools, universities and technical colleges in the world. That system will incorporate
programmes that encourage analytical thinking,creativity, innovation and entrepreneurship, while
promoting social cohesion and respect for Qatarivalues. The system will provide opportunities forstudents to develop their full potential and prepare them for success in a world with ever-greater
technical requirements. It will raise performanceat all levels and offer pathways for education andtraining beyond the secondary level, including forlifelong learning. It will also expand the capacities
of professional staff.

4

Finally, under the leadership of the Ministry ofLabour, Qatar will expand the capabilities of thelabour force, preparing it to move from a hydrocarbon economy to a diversified knowledge economy led by the private sector. Qatar will encouragesatisfying and remunerative employment in highvalue-added sectors, aligning economic objectives with the social priority of preserving national
identity. Labour market reforms will foster a productive labour force and encourage more Qataris
to work in the private sector. For the foreseeable
future, however, Qatar will not have enough citizens to meet the expanding requirements of a
rapidly growing, diversifying and technologically advanced economy. To counter this shortfall,
Qatar must attract and retain expatriates with theright mix of skills.

Promoting human development

105

Nurturing a healthy population“To improve the health of Qatar’s population, Qatar
aspires to develop an integrated system for healthcare,managed according to world-class standards. This system will meet the needs of existing and future generations
and provide for an increasingly healthy and lengthy life
for all citizens. All health services will be accessible to theentire population.”­— ­Qatar National Vision 2030
People are a country’s most valuable asset. The
human development pillar of QNV 2030 calls forinvesting in and developing all of Qatar’s people,
enabling them to participate fully in economic, socialand political life and contribute to sustaining a prosperous society. A key element of that human development pillar is health. A healthy population served bya world-class, well managed healthcare system available to all is essential to Qatar’s development.
The importance of an effective healthcare system is enshrined in Qatar’s Permanent Constitution: “The State shall foster public health; provide
means of prevention from diseases and epidemics
and their cure in accordance with the law.” Advancing healthcare is central to the larger vision for sustainable growth and opportunity. For individuals,
health and wellness contribute vitally to quality oflife. For society, a healthy population reduces social
costs and enhances economic competitiveness.
Through the National Health Strategy 2011–2016,
under the guidance of the Supreme Council of
Health, Qatar will enhance the wellness of all its
people and establish a vibrant, healthy and productive society­—­for today and for the future. This is
Qatar’s first comprehensive National Health Strategy and is the culmination of months of extensive discussion, debate, consultation, research and deliberation. The positive and unprecedented engagementof multiple healthcare and intersectoral stakeholders reflects a new momentum and genuine desire
for reform that is in the best interest of the country.
The National Health Strategy, which builds on theSupreme Council of Health’s Qatar National Health
Vision 2020: Caring for the Future­— ­Establishing a
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Qatar National Development Strategy 2011–2016

Healthy, Vibrant Society, incorporates a situational
analysis of the current state of the sector, strategic
recommendations and implementation reports.
The situational analysis identified the priority
areas using baseline analyses of Qatar’s healthcare
system and benchmarking them against relevant
best practices in other countries, both regionaland global. The implementation report outlined
initiatives and activities to support each recommendation, including core requirements, responsibilities, timelines and key indicators.
With extensive stakeholder engagement, throughboth individual interviews and multiple teaminteractions as outlined in figure 4.1, development of the strategy was led by the Supreme Council of Health, with coordination support from theGeneral Secretariat for Development Planning.
The Executive Group for Healthy Population provided oversight. The Healthcare Task Team, consisting of senior healthcare professionals, was thedecision-making body and validated findings andrecommendations. The Health Planning Teammet weekly to validate hypotheses from the situational analysis and to provide guidance on strategic recommendations and implementation plans.
Sub-Task Teams were grouped by the five following major thematic areas: Model of Care, Public
Health, Finance and Infrastructure, Regulationand Workforce, and Data, Research and Innovation. These sub-Task Teams met regularly to discuss and deliberate on key issues.
The strategy reflects the aspirations of Qatari citizens and residents and the resolve of their political leadership. Qatar is committed to building an
integrated healthcare system that meets the needsof its population. In addressing known risks, providing treatment, preventing disease and maintaining wellness, Qatar will support the long-term
objectives of QNV 2030. The far-reaching effort isa crucial part of the human development pillar.
The National Health Strategy provides a practicaland realistic guide for reforms, with far-reachingchapter

4

Figure 4.1 Links between the National Development Strategy 2011–2016 and the Supreme Council of HealthNational Development Strategy
Oversight Committee(Higher Authorities)
National Development Strategy
National Steering Committee

Supreme Council of Health
Board
Supreme Council of Health
Executive Committee
National Development
Strategy Executive Group—
Healthy Population
Healthcare Task Team

Health Planning Team

Model of care
Healthcare service model• Access to care
• Scope of care

Public healthPrevention• Risk factors• Chronic diseases• Infectious diseases
Public health areas• Occupational health• Road safety• Food safety• Environmental health• Emergency preparedness• Mother and child health

Finance and infrastructure

Regulation and workforce

Data, research and innovation

Healthcare financing• Cost and control tools• Insurance prerequisite

Regulation• Healthcare professionals• Facilities• Healthcare products• Patient rights

Data• Clinical database• Standardization

Infrastructure delivery• Infrastructure master planand fundamental changes envisioned across theentire healthcare system. It seeks to improvehealth outcomes by establishing a world-classhealthcare system with effective and affordable
services for the entire population. The system
will provide a full continuum of care through apatient-centred approach, addressing both physical and mental health needs. The system willencourage prevention but ensure the availabilityof evidence-based curative healthcare services.
High-quality services will be offered through public and private institutions operating under the
direction of a national health policy that sets andmonitors standards for social, economic, administrative and technical aspects of healthcare. Highcalibre research will be directed at improving
effectiveness and quality.
Universal access to the needed levels of healthcare
remains a cornerstone for the Supreme Council of
Health and its six guiding principles while inspiriting QNV 2030:

Workforce• Workforce planning• Recruitment and retention• Education• Skill mix

Research• Regulatory framework andgovernance• Innovation
E-health• E-health strategy

First, focus on people, with policies and caredesigned to meet the needs of all people living in
Qatar, through a carefully balanced and fully integrated model of high-class service delivery.
Second, enable people’s full potential, by concentrating on improving physical and mental wellness.
Success will be measured by reliable performanceindicators. Policies will encourage and empower
the people of Qatar to take more responsibility for
their own health.
Third, ensure sustainability, through sound fiscal
leadership and stewardship to obtain the greatest
health gain for money spent.
Fourth, stimulate continuous excellence and innovation, through positive competition to improve
efficiency, quality and patient satisfaction.
Fifth, base health policies and services on the latest scientific research and evidence. The Supreme
Nurturing a healthy population

107

Council of Health will encourage medical researchat the frontiers of science in Qatar’s centres of
excellence while conducting high-quality healthservices research itself, including collecting appropriate data to guide policy and monitoring andevaluating progress against specified objectives.
Sixth, achieve the highest quality and safety, promoted by an environment that expects and supports international benchmarking to continuously
monitor, evaluate, and improve quality and safety
in all aspects of Qatar’s healthcare system.
The National Health Strategy defines the projects
and related targets for achieving the seven ultimate goals for the health sector:
Build a comprehensive world-class healthcare system by shifting the balance of care towards a preventive and community-based model focusing on
the patient and providing a full continuum of careanchored on a capable primary care system.
Establish an integrated system of high-quality
healthcare through effective use of information,communication and process improvements.
Embed prevention and early detection into all
facets of the system and empower people to participate actively in wellness, care and disease prevention to help shift the system from a focus ontreating the acutely ill to addressing chronic diseases and their underlying risk factors.
Recruit, retain and educate a high-quality
workforce­— ­a modern, learning and supported
workforce­— ­and overcome the constraints posedby a shortage of healthcare professionals.
Establish a robust policy and regulatory framework to guide the health sector and ensure quality
and accountability.
Coordinate the planning and control of healthcare infrastructure and finance to ensure effective
and affordable services based on the principle ofpartnership in cost sharing.
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Qatar National Development Strategy 2011–2016

Support high-quality research for improving theeffectiveness and quality of healthcare through continuous knowledge-led innovation and research.
The case for reform is compelling and commands
the full commitment of Qatar’s leadership. The
availability of financial resources and the manageable size of the country, coupled with reform
efforts already under way, create the opportunity to build a system that will provide the population with safe and effective healthcare and help
them lead long and healthy lives. The recommendations to achieve these outcomes are the fundamental building blocks of a modern healthcare
system and deserve priority and full support. Not
all of the proposed objectives and activities arenew. Some have been discussed or recommended
before, and some are already under way. However,
implementation is more crucial now than ever.

Challenges for healthcare
To achieve the QNV 2030 goals for the health sector, Qatar needs to overcome multiple challenges:
An imbalanced model of care, which must shift
from hospital-based care to delivery of a full continuum of care by enhancing primary healthcare and community-based services, while ensuring that acute care services meet the needs of the
population.
Limited national integration, quality guidelines
and performance monitoring.
Morbidity and mortality patterns that reflect ahigh prevalence of noncommunicable diseases,
including chronic diseases and diseases linked tolifestyle and behaviour, as well as a high rate of
injuries, primarily from road traffic accidents andworkplace-related incidents.
Rapidly increasing and fluctuating population,with a large influx of single male workers, increasing demands on the healthcare system, accentuating the mismatch between healthcare needs andthe current system.

chapter

Shortages in a high-quality workforce across thesector, with ineffective recruitment and retention
strategies.
A regulatory and policy framework, which must be
strengthened to ensure effectiveness and efficiency throughout the healthcare system.
Underlying all the key healthcare needs in Qatar
are behaviour patterns that should be addressed
through a strong preventive approach and a robust
primary care system. A recent government survey
identified primary healthcare as the number two perceived public service needing improvement. Qatar’s
primary care system is strained by the challenges of
preventing, monitoring and treating disease. Overthe past decade, the number of Primary Healthcare
Centres has remained essentially unchanged, while
the population has grown threefold.
Studies show that 70% of deaths in Qatar result
from chronic illnesses, injuries and congenital diseases. The emerging integrated healthcare system
will address these three principal causes of mortality, along with the underlying risk factors.
Chronic diseases account for more than half ofdeaths. Of particular concern, 16.4% of Qataris suffer from diabetes, well above the global average of
6.4%. This burden of disease­—­the fourth highest
in the world­— ­generates long-term disabilities for
those afflicted, as well as high costs for the government. Studies have found high prevalence rates ofasthma and cardiovascular disease. The prevalenceof other chronic conditions, particularly mental
health conditions, is thought to be high as well, but
could be underdiagnosed for cultural reasons.

4high population growth, with a large influx of single male workers. This has overloaded the system,
exacerbating the overemphasis on hospital-based
acute care over longer term wellness programmes
and disease prevention.
Qatari healthcare spending has risen fivefold since2001. Population growth is one obvious explanation, but other factors contribute. Improved monitoring and control, with appropriate national
healthcare accounting standards and budgetingsystems, will strengthen efforts to control costs. A
functioning health insurance system could contribute to efficiencies in delivering care, but Qatar
first needs to work on the building blocks for sucha system.
A workforce plan must be a key component of thecountry’s health strategy, focused on increasing
national capacity. Qatar relies heavily on an expatriate healthcare workforce with wide variation inskills; it needs to increase its medical education
capacity and motivate more Qataris to pursue professions in all areas of the health system.
Because a quality health system workforce is thecritical factor for success, this workforce plan
must include a robust recruitment and retention
plan that ensures that people with the proper skill
set are attracted to professions within the healthsystem.
In recent years, Qatar has modified the governance of its healthcare system several times, but it
still needs to strengthen the overall governance,
policy, planning and regulatory framework.

Realizing Qatar National Vision 2030 for
Injuries from roadway and workplace accidents are a healthy populationcommon among single male workers, who makeup about two-thirds of the population. Qatar
needs to address the roots of these health risks
and those of communicable diseases that tend toincrease with a growing migrant population.
The mismatch between healthcare needs and thecurrent system is accentuated by the country’s

To reach the seven goals for the health sector outlined in QNV 2030, the government will implement
35 projects, each with clear objectives, outputs andmeasurable targets. These internationally benchmarked targets will be reviewed and refined asnecessary by project owners at the beginning of
programme and project implementation.
Nurturing a healthy population

109

A comprehensive world-classhealthcare system

Establish primary care as the foundation for
healthcare

To deliver integrated services for the country, Qatar’s health sector will shift the balance
towards a preventive, community-based modelof care, focusing on the patient and ensuring
access to the right care, at the right time, in theright setting, by the right team. The model will
provide a full continuum of care anchored oncapable and trusted primary care providers in ahealthcare system providing the highest quality
standardized diagnostics and treatment (figure
4.2).

To achieve this outcome, the government will:• Develop a model of primary care with sufficient
capacity, funding and appropriate coverage ofthe entire population, providing high-quality
services and enjoying public trust.
• Strengthen the primary care system as the cornerstone for comprehensive care that emphasizes wellness, bringing together health promotion, early detection and intervention, andevidence-based quality treatment for acute andchronic conditions.
• Ensure adequate and adequately trained primary healthcare staff.
• Define the scope of primary healthcare services using evidence-based guidelines, and ensure
adequate budgets.

Primary care should be the cornerstone of afuture people-centred health system. It shouldbe the first medical point of contact, providing
appropriate quality health services and acting asa patient advocate throughout a person’s journey
within the healthcare system. Coordination willbe the norm in an integrated healthcare system,with healthcare providers working together tomeet patient needs. This will require the designof national programmes for maintaining wellness,managing disease and establishing care pathways
across the sector.

Targets• Increase the number of general practice physicians from 0.193 per 1,000 people to 0.555.
• Ensure that the percentage of patients seen atsecondary and tertiary healthcare facilities only
after referral from primary healthcare facilities
is 50% for outpatients and 40% for inpatients.

Figure 4.2 Current and future models of healthcare
Current model of care

Treatment
abroadPrimarycare

Acute care

Future model of care

Continuum of care
Prevention• Preventive orientation—screening programmes andprevention guidelines

Primary• World-class primary care—first point of contact forpatients

Secondary• Competition to enable customer choice• Standardization of quality and care pathways

Tertiary• Targeted tertiary care
• Optimized treatment abroad

Continuing
Health promotion and prevention

110

Qatar National Development Strategy 2011–2016• Robust referral systems and e-health

Quality standards• Enhanced provision of continuing care
• Quality management systemchapter

Improve the configuration of hospital services

4

Improve mental health services design

To achieve this outcome, the government will:
To achieve this outcome, the government will:• Identify tasks that are relevant to the scope • Implement the approved model of care forand administration of hospitals and efficiently
mental health services in Qatar, based onorganize hospital services to avoid unnecessaryenhanced community-based services, integraduplication in order to meet the future needs
tion and decreased stigma.
for health services.
• Protect the rights of people with mental health• Define hospital designations under a regional
conditions under a national mental health act,
model, establishing the scope, governance andensuring access to appropriate, high-quality
services to meet future health needs within acare in a suitable setting.
clinical services framework applying best practices in delivering care.
Targets• Reduce the length of hospital stays based on a • Ensure that the number of psychiatric beds iscontinuum of care model.
at least 12.5 per 100,000 people.
• Enhance opportunities for same-day proce- • Implement the approved model of care by 2016.
dures, relying more on minimally invasive technologies whenever possible.
Improve the provision of emergency and trauma• Ensure evidence-based provision of high-­ services
quality secondary and tertiary services.
• Avoid unnecessary duplication, specifically for To achieve this outcome, the government will:procedures or services where critical mass is • Establish an integrated national framework
required for quality and safety.
for emergency services, detailing the scope of• Establish national centres of excellence for priservices for each type of provider, along withority areas.
standards and operating protocols.
• Ensure adequate geographic coverage based
Targets
on use and on a hub-and-spoke model.
• Prepare a national clinical services framework.
• Establish national centres of excellence for Targets
three of the top five priority areas.
• Ensure that the response time for emergency medical services calls from patients withpotentially life threatening conditions is
Improve continuing care design
within 10 minutes for 75% of calls and within 15–20 minutes for 95% of calls in urban
To achieve this outcome, the government will:
areas, and within 15 minutes for 75% of calls• Provide a clear and comprehensive framework
in rural areas.
for continuing care, involving community- andhome-based programmes and reflecting socie- • Keep the number of deaths among patients
reporting to the emergency department with aty’s changing needs.
diagnosis of heart attack below 77.5 per 1,000.
• Address emerging challenges involving rehabilitation services and the need to integrate services for the elderly.
Improve the efficiency of and access tocommunity pharmacies
Targets• Increase the number of rehabilitation beds to To achieve this outcome, the government will:
25 per 100,000 people.
• Establish a community pharmacy network, sup• Increase the number of continuing care beds
ported by appropriate policy and processes,
to 8.23 per 1,000 people.
that reduces reliance on hospitals for filling
Nurturing a healthy population

111prescriptions, leading to increased efficiency
and enhanced access.
Target• Bring the number of community pharmacies to
0.17 per 1,000 people, with a 70% dispensing rate.

An integrated system of healthcare
The current healthcare system in Qatar needs
improved coordination and standardization, toreduce fragmentation of care and system inefficiencies. An enhanced primary care system, implementation of electronic healthcare informationexchanges and a focus on providing a continuum of care through wellness and disease management programmes will increase integration ofcare. Improved communication will enable holistic
decision-making by healthcare providers, reducing
clinical risk and raising the quality of patient care.
Systems that provide integrated access to medical data are needed for clearer communicationand data analysis. This requires digitizing patient
records, including clinical histories and archives
with diagnostic imaging results, and standardizing
disease coding. It also requires electronic prescriptions, to provide access to crucial patient information and increase prescription safety.
Qatar’s healthcare system will provide a full continuum of care. Greater integration will create
coherence and synergy in the healthcare system toimprove the efficiency and quality of care.
Improve quality of care

To achieve this outcome, the government will:• Establish a culture of continuously enhancing
quality throughout the healthcare system anda framework for improving clinical processes.
• Define and disseminate evidence-based national clinical guidelines, patient pathways andstandard procedures for referral and discharge.
• Establish performance agreements withhealthcare providers that link outcomes toaccountabilities.
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Qatar National Development Strategy 2011–2016

Targets• Establish protocols for priority conditions(cardiac, asthma, diabetic emergencies), andachieve a compliance rate of 100% by 2014.
• Implement Performance Agreements in 100%of hospitals, 100% of Primary Healthcare Centres and 50% of major polyclinics.
Develop and implement disease management
programmes

To achieve this outcome, the government will:• Establish a system of coordinated healthcareinterventions that address the needs of individuals with priority chronic conditions such as
diabetes and cardiovascular illnesses.
• Emphasize prevention of complications
through evidence-based practice guidelines,
patient empowerment strategies and regularpatient monitoring.
Target• Ensure that 75% of diabetics enrolled in a disease management programme have a haemo­
globin A1C level less than 9.0.
Ensure access to accurate healthcare data

To achieve this outcome, the government will:• Establish a programme that defines requirements to ensure the availability of comprehensive and accurate healthcare data, enables
stakeholders to meet the requirements andmandates the reporting of these data.
Targets• Achieve an 80% data-compliance rate forhealthcare providers.
• Achieve coding accuracy of 80%.
• Establish disease registries for the top five priority diseases.
Capture the benefits of electronic health services

To achieve this outcome, the government will:• Establish an effective and integrated national e-health system, with a clear governancechapterframework to improve quality, safety, efficiency
and patient experience, ensuring full compatibility across all levels of care and full participation by all healthcare providers.
Targets• Raise the percentage of primary care practitioners accessing the online diabetes registryfrom 0% to 25%.
• Ensure that 100% of images taken at hospitals are digitally stored and shareable among
physicians.
• Raise the percentage of community pharmacies submitting dispensing information to thee-­prescription system from 0% to 25%.
Enhance private sector involvement

To achieve this outcome, the government will:• Formulate a strategy to enable greater private
sector involvement in providing healthcare
services while ensuring appropriate regulatory oversight. The plan will maximize desirable competition, benefiting quality, choice andefficiency.
Target• Raise the share of healthcare beds provided by
the private sector from 20% to 25%.

4

far healthier population. According to the World
Health Organization, 40% of cancers and 80% ofcases of premature heart disease, stroke and type2 diabetes are preventable. This could have a large
impact in Qatar, where more than 70% of deaths
are caused by chronic diseases, injuries and congenital diseases.
Improve the governance of public healthTo achieve this outcome, the government will:• Generate an enhanced prevention strategy enabled by a robust governance system for monitoring and evaluating prevention initiatives.
• Engage a high-profile international expert asa prevention champion and visible symbol of
the transformation. The prevention champion
should be supported by a national preventive
health task force and the Supreme Council ofthe Health’s Department of Public Health.
Target• Establish a monitoring and evaluation systemfor preventive healthcare.
Develop a comprehensive nutrition and physicalactivity programme

Qatar’s healthcare system needs to address chronic diseases and their underlying risk factors. Prevention requires a fundamental shift in mindset,
backed by a reallocation of resources. The aim isto embed prevention and early intervention into
every aspect of the health system and to empower
people to participate in self-care, prevention andwellness.

To achieve this outcome, the government will:• Establish health promotion in schools.
• Establish wellness promotion in the workplace,led by government offices with establishedhealth promotion programmes.
• Implement media awareness campaigns fornutrition and physical activity.
• Establish prevention guidelines for healthcare
services.
• Develop policies to reduce fast food consumption.
• Promote healthy food options at restaurants
and key retail outlets.

By shifting the emphasis from management of
acute illness to prevention and early detection,
the healthcare system can help people avoid themost costly, and dangerous, conditions. Experience shows that this approach will improve theeffectiveness of the healthcare system and create aTargets• Decrease the prevalence of obesity by 3 percentage points, from 32% to 29% for all residents and from 40% to 37% for Qataris.
• Achieve a 10% weight reduction for people
enrolled in dietary services programme.

A focus on preventive healthcare

Nurturing a healthy population

113

Develop a comprehensive programme to reduce
tobacco consumption

To achieve this outcome, the government will:• Increase awareness of the health risks oftobacco, including sheesha and smokelessproducts, and provide cessation support
services.
• Provide services linked to school healthinitiatives.
• Develop policies to reduce tobacco consumption, including sheesha and smokelessproducts.
Target• Reduce the rate of smoking among adult men
by 3 percentage points, from the current 32%.

Improve early detection of priority chronic
diseases through a national screening
programme

To achieve this outcome, the government will:• Implement a national screening programme
and infrastructure, including facilities, information technology, equipment and workforce.
• Develop screening guidelines for providers.
Target• Ensure that the percentage of individuals
in target groups covered by screening programmes is at least 50%.
Improve occupational healthTo achieve this outcome, the government will:• Implement educational campaigns on
consanguinity.
• Provide counselling to support mandatory premarital screening.

To achieve this outcome, the government will:• Develop national occupational health standards and regulations and enforce compliance.
• Improve health and safety conditions across all
sectors.
• Focus on reducing workplace injuries among
male workers (the third highest cause of accidental deaths).

Target• Lower consanguineous marriages among firstcousins from 34% to 27%.

Target• Reduce the rate of injuries lasting more than
three days to 3,000 or less per 100,000 workers.

Reduce the threat of communicable diseases

Improve the health of women and children

To achieve this outcome, the government will:• Set up an early-warning surveillance and tracking system.
• Routinely update the vaccination programme
for children and adults.
• Launch communicable disease prevention
efforts in high-risk areas.
• Initiate follow-up screening of high-risk
groups.

To achieve this outcome, the government will:• Prepare a comprehensive health pro gramme that targets women’s healthchallenges and identifies priority areas
for women’s health, including postpartum depression and domestic violence.
• Dedicate programmes and strategies to childhealth, including the promotion of exclusive
breastfeeding and early nutrition guidance,enhanced prenatal care services and continuing successful vaccination programmes.

Reduce consanguinity risks

Targets• Reduce tuberculosis prevalence from 1.6 per
10,000 people to 1.1.
• Implement an early-warning surveillance andtracking system.
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Qatar National Development Strategy 2011–2016

Targets• Raise the rate of exclusive breastfeeding during the first six months from 12% to 25%.

chapter• Achieve a compliance rate of more than 98%
for all immunizations under the National Children Immunization schedule for children by
age 1.
Address additional public health needs

To achieve this outcome, the government will:• Improve coordination among government bodies to avoid duplication and prevent gaps in service in areas including road safety (see chapter 5), food safety, emergency preparedness
and environmental health.
Targets• Complete a national emergency preparedness
plan.
• Implement an environmental impact healthassessment process for all projects affecting
public health.
• Establish a single Food Safety Authority.

A skilled national healthcare workforce
Just as people are a country’s most valuable asset,
the supply of skilled healthcare professionals is thecornerstone of a country’s health sector. Healthcare workers are key agents of change, reform andinnovation, driving continuous improvement inhealth service delivery. The healthcare workforce
must be thus developed, respected and adequately
resourced.
There must be strong, unified human ­resources
policies that focus on enhancing long-term national capacity but at the same time recognize thenecessity of a quality expatriate workforce, working together to achieve Qatar’s goals.
Recruitment and retention of quality healthcare
professionals are challenging, and the shortage of physicians, nurses and therapists impedesdelivery of safe, effective and high-quality healthcare. Meeting future requirements could be difficult considering Qatar’s recruitment and retention needs and the global shortage of healthcare
professionals.

4

Improve workforce planning in the short and longterms

To achieve this outcome, the government will:• Develop a national strategy on workforce planning and implement workforce-related national
policies and programmes.
• Ensure that Qatar’s health sector has adequate
skilled personnel to sustain a high-quality
health system and the right types of skills andspecialties in the service delivery team.
Target• Develop a national healthcare workforce plan.
Improve recruitment and retention

To achieve this outcome, the government will:• Reduce barriers to recruitment of a quality workforce, both Qatari and expatriate(2009 Law on Human Resources Administration), and increase retention by raising worker
morale and strengthening incentives (for example, making training and professional development opportunities available for all staff, asappropriate).
• Ensure appropriate Qatarization­— ­w ith adequate support, mentorship and training­— ­tobenefit both individuals and organizations.
Target• Ensure a voluntary turnover rate of less than 8%.
Improve professional education

To achieve this outcome, the government will:• Take a pragmatic approach to increase thenumber of Qataris and long-term residents
in healthcare and ensure that education for
health professionals contributes to Qatar’s
future healthcare needs. A multi­
f aceted
approach will reduce barriers to admission, enhance sponsorship programmes,
increase awareness campaigns on health professions and diversify the institutions available for capable students, both locally andinternationally.
Nurturing a healthy population

115

Target• Raise the number of medical school graduatesfrom 1 per 100,000 people to 3.
Optimize the skill mix

To achieve this outcome, the government will:• Support a multidisciplinary team and patient­centred approach that enhances the quality ofcare.
• Use the available healthcare workforce effectively by optimizing the range of work that canbe undertaken by different professionals.
• Recruit new classes of healthcare workers (suchas nurse practitioners) to meet changing needs.
• Foster team-based collaborative models of service delivery.
Target• Raise the number of allied health professionals
from 0.4 per 1,000 people to 4.

A national health policy
An effective healthcare system needs a robust
policy and regulatory framework to ensure quality and accountability. The government regulatory authority has changed several times in recent
years, a cause of some instability within the sector. The current authority, the Supreme Councilof Health, must deal with multiple challenges. The
key challenge is to recruit and retain highly skilled
staff, both Qatari and expatriate, amid a shortageof high-quality personnel.
Qatar’s healthcare regulations need strengthening, through a clear and comprehensive regulatory framework that monitors the healthcare
system, ensuring safety and quality without impeding progress. Changes will be needed in workforce recruitment and retention policies. The
aim should be to employ the best possible workforce, Qatari or expatriate, while also focusing on
enhancing national capacity. Qatarization should
be supported, appropriately, with Qataris receiving the required mentorship and support to fill
their roles.
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Qatar National Development Strategy 2011–2016

Build the policy and regulatory capacity of theSupreme Council of HealthTo achieve this outcome, the government will:• Strengthen the Supreme Council’s ability toestablish a national regulatory framework,
based on evidence, quality and safety standards, and to clear policies and procedures. This
will enhance the efficiency and effectiveness ofthe healthcare sector and improve health outcomes for the population.
Targets• Reduce vacancies on the Supreme Council of
Health from 30% to 15%.
• Staff key positions required for strategy implementation within three months.
Ensure the quality of healthcare professionals

To achieve this outcome, the government will:• Establish the Qatar Council of Health Practitioners as the regulator for healthcare professionals.
• Institute comprehensive regulation of healthcare professionals across the public and private sectors, to achieve safe, high-quality
care.
Target• Ensure that 100% of healthcare professionals
are licensed by the Supreme Council of Health.
Ensure the quality of healthcare facilities

To achieve this outcome, the government will:• Establish national standards and regulations
for healthcare facilities across the public andprivate sectors.
Target• Ensure that 100% of healthcare facilities arelicensed by the Supreme Council of Health.
Ensure the quality of healthcare products andprotect the public’s safety

To achieve this outcome, the government will:chapter• Ensure that healthcare products and medications are safe and meet quality standards and thatappropriate drugs are available when needed.
• Increase the capacity and fortify the roles of
the Supreme Council of Health’s Pharmacy
and Drug Control Department, and strengthen
regulation.
• Implement a national formulary.
• Centralize the purchasing of drugs and medical
supplies to enhance efficiency and control costs.
• Include registration of medical services.
Targets• Establish a national formulary.
• Regulate all medical devices.

4• Ensure that on patient satisfaction surveys, 70%of patients answer “yes” for recommending thehealth facility.

Effective and affordable services
through partnerships in bearing
healthcare costs
Qatar needs mechanisms to guarantee the provision of clinically appropriate and cost-effective services. Greater coordination, transparent
accounting, proper cost sharing and a system ofjustification through a certificate of needs process
for major healthcare infrastructure projects are allenvisioned. From a national perspective, two areas
need to be addressed: finance and infrastructure.

Support patient complaints and rights

To achieve this outcome, the government will:• Establish a patient advocacy body as a neutral,
confidential and independent third party.
Targets• Establish a patient advocacy body.

There is no single comprehensive information
source on nationwide healthcare expenses. Analysisof healthcare spending data from Hamad Medical
Corporation, the Supreme Council of Health andPrimary Healthcare Centres found that spendingrose almost fivefold from 2001 to 2008, to QR 4.3
billion (figure 4.3). The share of government

Figure 4.3	Healthcare spending in Qatar has risen almost fivefold since 2001
Healthcare spending (QR billions)
5

4.3

4
3.5

3
2.6

2

2.0
1.5
1.3

1
0.7

0.8

0.7

0.8

0.9

0.9

2000

2001

1.1

0
1996

1997

1998

1999

2002

2003

2004

2005

2006

2007

2008

Note: Hamad Medical Corporation and National Health Authority spending only (excludes spending on major projects).

Nurturing a healthy population

117

spending on healthcare surged from 6% to 15%,reflecting both a larger population and higher per capita spending­—­from QR 1,581 in 2001
to QR 4,383 in 2007. Much of the growth likely
reflects increased investment in infrastructure andworkforce. Per capita spending in Qatar is markedly below the Organisation for Economic Co-operation and Development country average of QR 8,047.
Traditionally, public health budgets in Qatar havebeen developed using linear extrapolation basedon historical spending, rather than standard practices such as programme-based, multiyear andactivity-based budgeting. The lack of national
health accounts and transparent performance- or
activity-based budgeting makes it difficult to compare costs across providers, establish cost drivers,
identify best practices or monitor costs.
Because certain specialty services are unavailable
in Qatar, some citizens are sent abroad for treatment. The amount spent on treatment abroadincreases every year. There is additional spending on treatment abroad beyond that accounted
for in the Supreme Council of Health budget.
Improvements are possible through cost efficiency and better management, without limiting
access to care.

The Supreme Council of Health has begun developing a national health accounts system, which will
also support a more accurate budgetary process.
Strengthen the budgeting process

To achieve this outcome, the government will:• Institute a comprehensive and accurate accountof healthcare spending through a healthcare
budgeting process (activity-based costing) anddefined nomenclature that enable monitoring
and control of costs.
Target• Set up a multiyear activity-based budgetingsystem.
Achieve more efficient and effective managementof treatment abroad

To achieve this outcome, the government will:• Standardize processes to optimize expenditureand enhance quality of care.
Target• Achieve a 50% follow-up rate in Qatar forpatients receiving treatment abroad.
Establish a system of health insurance

Qatar has been working to implement a national
health insurance scheme. The launch of healthinsurance will affect all elements of the healthcare system and afford Qatar multiple benefits.
It will help Qatar achieve the principle of cost
partnership outlined in QNV 2030, with employers and expatriates sharing the costs. Healthinsurance can provide the right set of incentives
across all healthcare stakeholders and can be agood source of healthcare data. Payment andreimbursement mechanisms for health insurance can promote clarity in healthcare systemspending.
Qatar must ensure that the prerequisites arein place, implementing them on an accelerated schedule to avoid jeopardizing integration of
insurance as a key element of its health system.
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Qatar National Development Strategy 2011–2016

To achieve this outcome, the government will:• Set and meet the prerequisites for national
health insurance as a tool for developing a sustainable, high-quality health system.
• Continue designing an insurance scheme that
supports the model of care and carries incentives for cost-effective care and treatments.
Target• Achieve 50% health insurance coverage by 2016.
The national infrastructure framework does not
fully reflect the healthcare needs of the population. Historically, the emphasis has been on
increasing hospital capacity rather than on providing community-based services. Needs are notalways met on the facility level, and designs maychapter

not fully reflect the requirements of the end user.
Construction of healthcare infrastructure is often
delayed, leading to outdated facility plans. Underlying these issues are limited coordination andplanning, and a focus on providing services in anacute care facility rather than through primarycare in a community setting.
A national healthcare infrastructure plan will provide the basis for healthcare infrastructure development. Once developed, the plan will need anoversight mechanism. Such a system would ensurethat infrastructure spending aligns with needs
and the chosen model of care and that decisionmaking is consistent and based on need.
Ensure health infrastructure planning

To achieve this outcome, the government will:• Provide a dynamic long-term master plan for
healthcare facilities and major equipment thatcan cope with continually changing needs. The
master plan should be based on the model ofcare and services needed for the country, as
identified in the clinical services framework.
Target• Prepare and approve a healthcare infrastructure master plan.
Manage capital expenditures

To achieve this outcome, the government will:• Establish a committee to which public providers and any private providers requesting government funds or reimbursements must present new healthcare infrastructure projects forapproval based on a business case plan demonstrating need and aligned to the model ofcare.
Target• Achieve 100% compliance by health facilities
requesting funds to finance infrastructure
and major medical equipment such that theyshould abide by the requirements of the certificate of needs process.

4

High-quality research directed at
improving the effectiveness and qualityof healthcare
Qatar has embarked on an ambitious research programme, but national coordination has been limited. Healthcare research focuses almost exclusively
on biomedical topics, with little attention to public health or policy. Meeting the QNV 2030 goals
requires national alignment of all research activities, appropriate use of resources and research
embedded in all fields of health, including primary care, clinical effectiveness, quality improvement, policy, public health and biomedicine.
Conduct high-quality research to support a worldclass health system

To achieve this outcome, the government will:• Focus research and appropriate fundingon all areas of healthcare, especially publichealth, public policy, biomedicine and clinicaleffectiveness.
• Ensure that research activities comply withinternational standards of ethics, such as thoseoutlined by the World Health Organization,
which provide guidelines on ethical standards
and procedures for research on humans. The
guidelines define the role and constituents ofan ethics committee and the requirements for
submitting an application for review, detail thereview procedure and specifics of the decisionmaking process and explain necessary followup and documentation procedures.
• Designate the Supreme Council of Health as
the national governance structure for research
providing a national regulatory framework,
national direction on research priorities andcoordination of publicly funded research.
Targets• Establish a national research governance bodyled by the Supreme Council of Health.
• Produce at least four high-quality research
papers (based on citation rate or on publication in refereed journals), per researcher, inpriority areas.
Nurturing a healthy population

119Prerequisites for implementation
Successful implementation depends on the following critical prerequisites:• Human resources is the most critical prerequisite.
The first step is identifying the human resources that will be responsible for the outcomes.
The recommended programmes will result in
substantial need for healthcare expertise andprofessional healthcare capacity. Qatar willtake aggressive steps to address this need.
• A strong leadership and a governance system must
enforce implementation plans. The Supreme
Council of Health will take this leadership andauthoritative role, either through its Board or
the Executive Committee, to provide governance for realizing the National Development
Strategy 2011−2016 initiatives for health.
• A dedicated programme management office must be
set up to support and enable implementationof the National Health Strategy. This office will
track and monitor execution, identify risks andconcerns, develop mitigation strategies, provide implementation status reports to leadership and furnish subject-matter expert support
to the project teams and departments identified to lead the projects.
• Sequencing and prioritization are paramount, given
the difficulty of carrying out the programmes.
Outputs have been prioritized to ensure that
implementation focuses on efforts that promise
the greatest impact. Any limits on implementation will arise not from budgetary constraints but
from a scarcity of skilled and qualified personnel.
• A sustained change management and communication effort is needed to provide intensive and120

Qatar National Development Strategy 2011–2016

regular communication with all the stakeholders directly involved in administering the programmes, broader outreach to the healthcarecommunity and a public relations and marketing campaign to engage the public.

Fostering cross-sectoral links
The strategy outlined here brings to life theexpectations for the healthcare sector laid out in
QNV 2030. A world-class integrated healthcare system is a critical component of the human development pillar of QNV 2030. The 2011–2016 strategy for healthcare aims to move the sector far in
the direction of achieving this vision. The recommended programmes are structured to ensurecomplete alignment with QNV 2030.
This strategy’s success will be determined throughits implementation. It will also depend on collaboration with other sectors. A healthy population isboth a goal and an enabler of QNV 2030. In thisregard it is important to highlight the most critical area of cross-sectoral linkage­—­public health.
Governments across the world have recognizedthat public health is the responsibility of all stakeholders, not just the healthcare sector. For Qatar
this means a comprehensive effort in which theSupreme Council of Health and government,
private and civil society stakeholders cooperate.
Many recommended critical initiatives (such as
school health promotion, road safety, occupational health) require multistakeholder collaboration.
These cross-sectoral links will be reflected as thestrategy moves into the next phase of validationand sector alignment (figure 4.4).

Figure 4.4 A healthy population is both a goal and an enabler to achieve the aspirations of Qatar National
Vision 2030

Other sectors as enablers for healthcare

Supportconsanguinity
risk reduction

Improveoccupational
healthFamily cohesion
and women’s
empowerment

Population,
labour force
and Qatariemployment

A healthy
population

Economic
diversificationand economic
infrastructure

Provide health facility
infrastructure

Goal

Education andtraining

Promoteschool healthSocial protection,
safety andsport

Environmental
sustainability

Promote sport activities
for a healthier lifestyle,and road safety towards acohesive society

Encourage healthier living
and working
environments

Enabler

Healthcare as an enabler for other sectors

Promote mother andchild health

Increase
attractiveness ofhealth as a profession
for Qataris

Family cohesion
and women’s
empowerment

Population,
labour force
and Qatariemployment

Encourage private
sector involvement

Education andtraining

A healthy
population

Economic
diversificationand economic
infrastructure

Social protection,
safety andsport

Environmental
sustainability

Promote higher educationin health

Provide emergency medical
services for road accident
victims; health needs ofvulnerable groups

Monitor health andsafety standards andsafeguard against risks

121

Building knowledge and skills“Qatar aims to build a modern world-class educational
system that provides students with a first-rate education.”­—­Qatar National Vision 2030
As Qatar’s economy diversifies more from its
reliance on gas and oil, success will increasingly depend on the ability to compete in a global knowledge economy. Educating and training
Qataris to their full potential will be critical tocontinuing progress.
Beyond preparing citizens to be part of the country’s economic engine, education and training
offer multiple benefits to society. Education provides a solid grounding in Qatari religious, moral
and ethical values, national identity, traditions andcultural heritage. Schools produce well rounded and engaged citizens and build more cohesiveand participatory societies. Education and training also help people make better decisions about
health, marriage, parenting and social responsibility. Finally, a successful education strategy supports
innovation in science, medicine and industry.
To help Qatar benefit from both the social andeconomic advantages of education, QNV 2030
commits to delivering world-class education andtraining opportunities to Qatari citizens that alignwith their abilities and interests and that preparethem for employment.
QNV 2030 articulates several education and training goals:• A world-class education system that enables citizens to achieve their aspirations and that meets
Qatar’s needs.
• A national network of formal and nonformal
education programmes that equips Qatari children and youth with the skills and motivation
to contribute to society.
• Well developed, independent, self-­managing
and accountable education institutions operating under centrally determined guidelines.
• An effective system for funding scientific research shared by the public and private
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Qatar National Development Strategy 2011–2016

sectors and conducted in cooperation withinternational organizations and leading international research centres.
• A strong international role in cultural andintellectual activity and scientific research.
Qatar has made great strides towards a world-classeducation system, through the Education for a
New Era reforms, which began after the Supreme
Education Council was established in 2002, andthe Qatar University reforms, which began in
2003. In addition, Qatar Foundation’s Education
City has continued to expand and progress overthe past decade, with the establishment of a cluster of top-class international universities that arestrengthening Qatar’s capacity in innovative education and research.
Qatar is also attracting renowned education
institutions, with three Outstanding Schools
already in place (Michael E. DeBakey HighSchool for Health Professionals, International
School of London and Sherborne School) andmore in the pipeline. At the technical level, in2010 Qatar opened its first community college
in partnership with Houston Community College, which complements the College of North
Atlantic Qatar (CNA-Q). All these institutions
award internationally recognized diplomas anddegrees and support Qatar’s aim to become apremier knowledge-based society.
As the agency in charge of developing educationin Qatar, the Supreme Education Council strives
to upgrade the standard of education to meet theneeds for outstanding human resources across all
sectors—which aligns with the national education
policy that is in turn linked to education goals,
plans and programmes reflecting QNV 2030.
Previous achievements were compatible with the
QNV 2030 requirements for setting the plans, programmes and monitoring needed to implement
the national education policy and its organizational structure. These changes should be compatible

chapterwith the goals of the Education for a New Era
reform agenda and provide more options, greater variety, common accountability and increased
independence.
All government schools have been transformed
into independent schools that are financed by thegovernment but managed independently according to standards, policies and systems adopted
and approved by the Supreme Education Council.
Owners of independent school licences, teachers,
parents and students are responsible for achieving
success at all levels of the education system.
To further improve education, professional standards that detail the skills and knowledge to beacquired during a career at independent schools
were established for education school principals,
leaders and teachers. The standards provide a clear
vision for performance. Professional licences forteachers and education leaders are based on thesestandards according to cumulative skill levels.

4

education mediums and conducting scientificresearch.
The goal of developing all aspects of a student’s
personality and enhancing student loyalty to thecountry has been realized. The curriculum standards also cover cognitive and skill dimensions­—
which include scientific, critical and logicalthinking as well as learning processes such as
observation, classification and measurement—inaddition to attitudes and values.
The standards spell out what knowledge and skills
students should acquire at each K–12 educationlevel and ensure that students receive an education that reflects the advanced standards used inother countries. This will qualify general education graduates to join the best universities andto compete in the local and international labour
markets. Graduates will acquire the educationneeded for a successful private and occupational
life in the 21st century, including knowledge ofArabic language, English language, mathematics,
integrated sciences, social sciences and physicaleducation.

To increase choice, under the Education for a
New Era reform agenda, parents can select a public or private school that best fits their children’s
needs. A voucher programme provides options for Community participation, an important pilthe needy to access private education. To expand lar in the education system, enhances developvariety, schools and instructional programmes ment and monitoring, which are overseen by theare encouraged to meet differing needs. To share board of every school and through public andaccountability, a transparent assessment system­ private sector participation in education—for—­the annual Qatar Comprehensive Evaluation example, in private schools that are managed byAssessment for independent school students­—­ both the public and private sectors.
holds all school leaders, teachers and parents
accountable for the success of students. To devolve Driving the reform initiatives of Education forautonomy, schools and teachers are encouraged to a New Era are the three policy and regulatory
innovate in meeting the needs of individual stu- institutes of the Supreme Education Council.
dents and parents within the framework of com- The Education Institute oversees and supports
independent schools and enforces curriculum
mon curriculum standards.
standards. The Evaluation Institute conducts
The curriculum standards are an important part student testing, monitors student learning andof Qatar’s education development plan, which has evaluates school performance. The Higher Edubeen under preparation since the independent cation Institute advises students about career
schools system was established in 2004. The plan options and opportunities for higher education
has changed the curriculum culture to one that is in Qatar and abroad and administers scholarmore student-centred and that encourages using ships and grants.

Building knowledge and skills

123

The education and training initiatives of the
National Development Strategy 2011−2016 buildon the ongoing reforms and are based on an
extensive stakeholder consultation and analysis of
the achievements and challenges facing the sector, along with benchmarking of international
best practices. This strategy for continuing reformof education and training will drive far-reachingchanges. As international experience suggests,
successful education reforms, though they may
take many years to realize their full benefits, will
be to the advantage of all who live and work in
Qatar, if consistently implemented.
Qatar’s education and training system prepares
all its people for success in a world of increasingly complex requirements, serving as a vehicle forsocial and economic transformation.
• On an individual level, it will offer Qatari citizens opportunities to realize their intellectual potential, develop their abilities and follow
their aspirations and interests. The evolving
education system also aims to motivate Qataris
to use their knowledge and skills to better society. The system will encourage analytic andcritical thinking, creativity and innovation.
• On an institutional level, it will improve
accountability and professionalism, making
best use of available resources.
• On a societal level, it will afford students a senseof belonging, responsibility and citizenship sothey can lead the way to an economic and societal vision beyond hydrocarbons. The system
will promote social cohesion and respect for
Qatari values and heritage and advocate constructive interaction with other countries.
The needs for developing Qatar’s education andtraining sector to achieve these overarching goals
have been consolidated into 20 sector outcomes,
with 29 related projects, that represent the framework for education and training in the National
Development Strategy 2011−2016. Six core outcomes require integration and planning acrossall educational sectors. The others are specific to K–12 general education (1–2 years of kindergarten plus 6 years of primary school, 3 years
124

Qatar National Development Strategy 2011–2016

of preparatory school and 3 years of secondary
school), higher education, technical educationand vocational training, and scientific research.
These are presented later in the chapter.

Desired qualities of Qatar’s educationand training system
Qatar’s education and training system must becomprehensive and integrated, stretching fromearly childhood education through to higher level
education and additional training. Engrained inthis system is the concept of lifelong learning,with individuals encouraged to acquire education and update their skills throughout their lives.
This continuum spans three education sectors:
general education, higher education, and technical education and vocational training. While eachsector has a distinct identity, mission and function, the sectors need to operate within an overarching framework that embodies policy-related
principles. And both education and training needto establish stronger links with Qatar’s labour
market.
Further reform of Qatar’s education and training system will address three policy themes: quality, equity and inclusiveness, and portability andmobility. These themes will guide policy decisions, along with variety, choice and accountability. A strengthened reform programme will tackle
a number of critical challenges and opportunities affecting both supply of and demand for education and training. These include the underachievement of Qatari students in math, scienceand English language at all levels and weaknesses in education administration and the teachingprofession. The educational curriculum needs tobe more aligned to the needs of the labour market while supporting Qatari values. The systemneeds to offer multiple pathways beyond the secondary level to encourage a higher continuation
rates.
Quality is critical in ensuring outcomes that
address the needs of current and future labour
markets. The challenge arises in achievingchapter

4

consistent and sustained quality across sectors.
Quality teachers, trainers and lecturers, as well as
education planners, are a prerequisite, making it
mandatory that all sectors monitor teacher training, qualifications and professional development.
The current high turnover of Qatari and expatriate teaching staff must be reversed.

throughout their lives. Appropriate training andeducation should be available and accessible to all.
Meeting the stated aim of “accessible educational
programmes for lifelong learning”, in a context ofparticipation and inclusion, will require policies
that overcome socioeconomic barriers of age, gender and geography.

Attention to quality will be part of establishing
curricula, resourcing schools and training centres, improving information and communication
technology and managing governance arrangements. It will contribute to improving attainmentby students at all levels, particularly in science,
mathematics and languages. And it will support
increased transitions to post-secondary studies. A
major priority is to increase the share of students,
especially male students, who pursue a tertiary
education, to which returns are high.

Important for inclusiveness is further expanding private schools in line with growing demand
among Qatari and expatriate children (figure4.5). Qatari parents are increasingly paying tosend their children to international schools. Further, a school voucher programme is available foruse at selected schools, based on need. The ultimate goal is to allow all Qatari students to participate, with school fees no longer a driving factor inschool choice. Competition is expected to emerge
not only between independent schools, but also
between public and private schools, thus promoting variety and choice.

Equity and inclusiveness also cut across the education and training sector. Related to lifelong
learning, this principle should enable all people to acquire, develop and update their skills

Improved standards for private schools, initiatedby the Supreme Education Council, are one reason

Figure 4.5 With the growth in the number of school-going children in Qatar, demand for international andcommunity schools is rising
Number of students (thousands)

Number of schools

200

500
Outstanding schools
Outstanding schools

400

Private

150

100

300

International and community

International and community

Private Arabic

Private Arabic

Semi-independent0
2003/2004

2005/2006

2007/20082009/2010

PublicIndependent

All independent
from 2010/2011

50

200
Independent
100

Semi-independent0
2003/2004

2005/2006

Building knowledge and skills

2007/20082009/2010125

behind the growth in the number of school-goingchildren in private schools. However, other important factors cannot be ignored: reverse migration has increased, as a result of some indpendent
schools providing better eduation than some private schools.
Portability and mobility, another key policy theme,
also promotes variety and choice. Students andother stakeholders in education and training systems expect to have their qualifications recognized by education and training institutions andemployers and to receive credit for previous studies. In addition, students and stakeholders expect
flexible career and study pathways for enteringand re-entering the education and training system
without penalty. This approach maximizes citizens’ flexibility in planning their careers, unconstrained by life stage or location.
To realize Qatar’s vision of providing opportunities for citizens to achieve their full potential,

Qataris must be able to move easily among education and training options and between those
options and the workplace. No longer can education pathways be considered a linear progression through a vertical hierarchy of qualifications.
Both vertical and horizontal pathways are needed, within and between sectors and institutions. A
National Qualifications Framework will strengthen coordination and integration of the educationand training systems.
Qatar has invested heavily in best practice models
of education. It will continue to do so to adapt andmould basic and higher education to meet the skill
requirements of a more diversified economy, while
respecting Qatar’s cultural values and national
heritage. The share of government spending on
education has grown markedly in recent years andnow exceeds the average for Organisation for Economic Co-operation and Development countries
and for all Gulf Cooperation Council countries
except Saudi Arabia (figure 4.6).

Figure 4.6 Government spending on education and training is high in Qatar compared with benchmark countries
Government spending on education in Qatar
is now above average as a share of GDP . . .

. . . and has increased substantially as a shareof total government spending% (latest year available for 2007–2009)

%
25

8

6.8

4.8

21

20

6

15

4.8

4

13
3.6

3.7

3.6

10

11
9

2

8

5
1.3

0

0
Qatar,
2008

Oman

KuwaitSaudi United Arab
Arabia Emirates

OECD European
average Union
average

2000

Source: UNESCO Institute for Statistics, Education data set (2010); AMEinfo (2008); OECD, Education at a Glance (2009).

126

Qatar National Development Strategy 2011–2016

2005

2006

2007

2008

chapter

Growing importance of private andindependent schools and rising
enrolment of children of expatriates
Understanding the dynamics of enrolment of
Qatari children and children of expatriates isimportant for interpreting recent changes in

4

Qatar’s education and training system and planning for its future. With the rising number of expatriates, their children now constitute the majorityof students at all levels of education. Both groups ofstudents are enrolled in public and private schools,
and there has been a marked growth in international schools (figure 4.7). Future trends in the size

Figure 4.7 The share of Qataris in international schools at all levels grew markedly between 2003/2004 and 2008/2009

Qatari students

PublicPrimary

Preparatory% of schools% of schools% of schools

100

100

100

8

18

18
8

75

4
10

6

86

87
75

50

50

50

25

25

25

74

0

0
2003/2004
25,513 students

2008/2009
32,989 students

International

89

5
7
88

2003/2004
12,073 students

2008/2009
14,421 students

9

7

75

74

ArabicSecondary20
2003/2004
14,246 students

2008/2009
15,562 students

All students (Qatari and non-Qatari)
Primary

Preparatory% of schools% of schools% of schools

100

100

100

29

47

75

75
13

27

58

8

35

22

75

8
66

50

Secondary

7
70

6
58

50

50

25

25

28

6
66

46

25

0

0
2003/2004
65,351 students

2008/2009
84,668 students0
2003/2004
29,483 students

2008/2009
35,802 students

2003/2004
24,470 students

Building knowledge and skills

2008/2009
30,596 students

127

and composition of the expatriate school-going
population is necessarily uncertain and will reflect
trends in the demand for higher skilled workers.
The majority of Qatari students are enrolled inpublic schools, which all became independent
schools in 2010–2011. But while their enrolment
share in public schools has remained unchanged
since 2003/2004, when implementation of the
K–12 reforms was getting under way, their sharein private international schools has surged at alllevels (see figure 4.7). Overall Qatari enrolment
in private international schools now ranks second after public schools, ahead of private Arabic
schools. The switch reflects the increasing importance of non-Arabic schools, the majority providing instruction in English.
The increasing number of expatriate children
exposes Qatari children to their peers from adiverse group of countries and cultural backgrounds and provides the opportunity to establish
friendships with them and share experiences. It
also has implications for ensuring that the education system fulfils its role of strengthening Qatariculture and values.

effective strategic objectives, in advancing reforms
across education levels, Qatar will engage in morecohesive strategic planning. To reach the goals forthe education sector, the government will address
core education and training issues, improve K–12
general education, improve higher education,
strengthen technical education and vocational
training and enhance scientific research.

Addressing core education and training
issuesTo track education processes effectively, data need
to be more readily available and transparent.
Teacher quality needs to be raised through professional development and a compensation systemthat attracts top talent to the country and retains
it. Motivating students requires both in-school policies and outreach to students and parents, who
may harbour misconceptions about the value of
education.

Formulate a comprehensive, integrated
10-year education strategic plan for
all stakeholders, incorporating quality,
efficiency and inclusivenessFor Qataris, QNV 2030 calls for developing an education system that “equips citizens to achieve their
aspirations and to meet the needs of Qatar’s society”. An important objective relates to the role ofeducation and training in meeting the current andfuture needs of the labour market. For children of
expatriates, the aim is to meet the general commitment to fully address “their cultural rights . . . andpublic service needs” by providing access to a worldclass education system. The availability of highquality education will itself be a critical determinant in attracting high-skilled expatriates to Qatar.

Ensuring cohesion across all education phases
is essential to promoting world-class education.
Some of Qatar’s education and training institutions have already met this goal, and others havedefined a strategic path to reach it. But strategicplanning is often not aligned across stakeholders,
resulting in gaps, overlaps and unclear competencies. Forming a comprehensive, integrated 10-year
strategic plan for all education phases that promotes quality, efficiency and equity and includes
all stakeholders, would catalyse development of
the sector.

Realizing Qatar National Vision 2030 for
education and training

Ten-year education strategic plan

Despite considerable progress towards a worldclass education system that meets Qatar’s needs
and despite comprehensive strategic plans of education institutions that include integrated and128

Qatar National Development Strategy 2011–2016

To support this initiative, the government will:• Define the vision and mission of the strategicplan.
• Derive strategic goals and align with key stakeholders.

chapter• Conduct a baseline study of education sectors
and perform benchmarking.
• Integrate existing programmes across all education sectors.
• Develop an effective mechanism for evaluationand follow-up.
• Align with stakeholders from public and private sectors, civil society organizations and academia and develop a mechanism for communication and coordination.
Target• Develop and implement an integrated 10-year
strategic plan for all education phases.

Strengthen Qatari values throughout
education and training
Qatari society has been exposed to many new
influences in the last decade, including the evergrowing number of expatriates working and living in Qatar. While a large expatriate community
broadens perspectives on other cultures and lifestyles, it also threatens traditional Qatari values
founded in Arabic culture and Islam. For this reason, QNV 2030 specifies that education should contribute to “a solid grounding in Qatari moral andethical values, traditions and cultural heritage”.
Although providing academic guidance and deepening the moral values instilled by Qatari families and communities are already a core principleof the curricula and institutional missions, additional measures can support this goal through allphases of education and training.

4• Form a task team of education sector representatives and government officials to determine aroadmap for implementing new programmes.
• Implement programmes and communicate toparents and students.
• Provide input to the national curriculum
committee.
Target• Design and launch education programmes that
instil national values in Qatari students.

Develop education and training
professionals and institutions
Recent regulatory reforms have improved the qualifications and standards for professionals in Qatar’s
education and training sector. More time is dedicated to in-service professional development inpublic schools, teachers are evaluated more often
and principals need to provide proof of teaching experience. While these efforts are showing
early results, many teachers still lack formal teaching qualifications. Teacher turnover is high, andQatari boys are rarely taught by nationals. Overall, education and training professions have limited appeal­—­they are low paid and offer few options
for professional and career development.
Several levers will have to be activated to improve
principal effectiveness and accountability, teacher accountability and institutional accountability
towards stakeholders, among other issues. These
measures should open up multiple opportunities
in education and training and attract well qualified and ambitious professionals.

Support the strengthening of Qatari values

To support this initiative, the government will:• Conduct focus groups with key government
officials, experts and university representatives
on the national values to be instilled in Qataristudents.
• Assign a development expert to prepare programmes in coordination with education andtraining sector representatives and government
officials.

Educated workforce and institutional developmentplan

To support this initiative, the government will:• Prepare a professional development strategy
for K–12 teachers and principals.
• Produce an operational and management
model for the education and development ofteachers for the technical education and vocational training system.
Building knowledge and skills

129• Design recruitment, development and incentive programmes to attract talented Qataris toteaching positions within higher education.
Targets• Formulate and implement a workforce andinstitutional development plan for educationand training professionals and institutions.
• Enhance the professional capacity of teachers
and workers in K–12 education.

Integrate information andcommunication technology in education
and administrative processes
Information and communication technology(ICT) is a key enabler of successful education andtraining. Mastery of technology is required to participate in and contribute more effectively to theknowledge economy. Using ICT in teaching can
improve learning outcomes and increase effectiveness in administrative functions.
Qatar’s K–12 institutions are comparatively wellequipped with ICT infrastructure, due to large

recent investments, and many students enjoy
access to school computers comparable to that inEuropean countries (figure 4.8). Under the Education for a New Era reform, many teachers received
intensive training on integrating ICT into teaching and learning.
However, it remains unclear whether these ICT
opportunities are used to their full potential. A
continuing training programme for teachers is
likely required for students to fully benefit from
ICT-­supported learning. Also, no integrated strategy links ICT use in K–12 education with higher
education and technical education and vocational
training. Developing an integrated ICT strategy foreducation and training will be the starting point ofan even more important role of ICT in this sector.
Management strategy for using information andcommunication technology for improved learning
environment

To support this initiative, the government will:• Develop an integrated ICT strategy for all education sectors in Qatar based on international ICT

Figure 4.8 Most students in Qatar have ready access to computers at school
School type

Education phase

Number of students per school computer

Number of students per school computer

30

30

PrivateUnited Arab Emirates

20

United Arab Emirates

20
Semi-independent

Bahrain

BahrainPrimary
SecondaryInternational

10European Union

Independent0

European Union

Preparatory0
2005/2006

2006/2007

2007/2008

2008/2009

Source: ictQATAR, Qatar’s ICT Landscape (2009), chapter 4.

130

10

Qatar National Development Strategy 2011–2016

2005/2006

2006/2007

2007/2008

2008/2009

chapterbest practices to improve management, administrative processes, learning environments,
teaching methods and education outcomes.
• Prepare a detailed implementation plan forincreased ICT use in school administrationand in education services delivery, along witha set of ICT standards that are mandatory for
public education institutions and strongly recommended for private institutions.
Target• Develop and implement an ICT strategy.

Increase motivation and awareness ofthe benefits of education and training
Because the motivation to learn is a key driverof success in the education and training systemand beyond, strengthening student motivation
throughout all educational sectors has emerged asa priority.
High rates of absenteeism, little time spent on
homework and a lack of classroom discipline compared with international benchmark countries
suggest that many students, especially boys andmen, lack the motivation to take advantage of theeducation and lifelong learning opportunities
that the strategy envisions. Many Qatari students
appear to believe that they can secure jobs andmake a good living despite low academic qualifications. Moreover, students and their parents may
not fully appreciate the benefits of a high-quality
education when they make schooling choices. Thispattern continues through higher education, withmany students choosing not to enrol or discontinuing their studies early, so as to enter public sector
employment.

4

Target• Prepare and implement a comprehensive
communication plan to increase student
motivation.

Support evidence-based monitoringand policy-making by key stakeholders
Recent reforms in education and training havegreatly improved the availability of reliable data.
Additional data production and gathering activities include the annual Qatar Comprehensive
Educational Assessment and data publications
such as the annual Schools and Schooling in Qatar
report.
But Qatar lacks a model for collecting and analysing and disseminating education and training
data that can be used across all phases and institutions. Ready access to such data would increaseaccountability to the government and the public
and support evidence-based policy-making that
advances the development of the education andtraining sector.
Comprehensive education and training database

Comprehensive communication and motivation plan

To support this initiative, the government will:• Determine data needs by consulting withstakeholders.
• Establish the most efficient operational processes for collecting data from relevant institutions.
• Develop a process to periodically review theeffectiveness of the database manager in meeting informational needs.
• Establish formal links to information providers.
• Provide online access and search options to the
database.
• Include transparent performance indicators instrategic and operational plans.

To support this initiative, the government will:• Prepare an integrated, long-term effort to communicate to stakeholders, including students,
parents, teachers and principals, to raise awareness of the value of education and the consequences of education decisions.

Targets• Create a comprehensive education and training information and planning database.
• Use the database to build a monitoring andevaluation framework for the strategy, taking
into account cross-sectoral links.
Building knowledge and skills

131Improving K–12 general education
The reforms in K–12 general education haveaddressed some of the roots of low student performance, especially those related to education
inputs. But several issues remain unaddressed.
• Enrolment rates and ratios are generally highin primary and preparatory education but canstill be improved. Mandating kindergarten andsecondary schooling could increase educational achievement.
• Teachers and students are overwhelmed byreform initiatives. The concurrent implementation of curriculum standards that need to
be detailed by teachers, a student-centred
teaching approach and the use of English as
the instructional language may be burdening
teachers with so many new responsibilities thatclassroom learning has suffered.
• Many secondary school graduates are not sufficiently literate and numerate for higher education, signalling a failure of the K–12 system to prepare students for further education
opportunities.

Ensure universal access to high-quality
education for K–12
Because financial and societal returns to education rise with the duration of education, the government and citizens should strive to provide
opportunities for more schooling.
Also important is taking a holistic approach todeveloping technical and behavioural skills, fromearly childhood through adulthood. Any deficits
acquired early in life are difficult to remedy later,
so good nutrition, mental stimulation and basic
cognitive development are essential for infants
and preschoolers.
Within the framework of the Education for a New
Era initiative developed by the Supreme Education
Council, standards were set for six subjects at the
K–12 level (Arabic language, English language,mathematics, sciences, social studies and physicaleducation). Designed to help teachers provide a132

Qatar National Development Strategy 2011–2016

high level of education for every class in all typesof schools through work schemes and model lectures, the standards are the basis of unified tests
for students in Qatar.
However, the standards constituted a challenge forteachers and students, especially when accompanied by other changes, such as adopting English
as the language of instruction and introducing a
student-centred approach to teaching.
The education system in Qatar has set the foundations, standards and plans needed to upgrade themanagement of private schools, improve the quality of education in schools and support the education environment in a way that enhances Qatarivalues. Moreover, a system for evaluation, licensing and re-licensing was put in place. In addition,
private education law was developed, an education coupons programme was devised and branches were opened in Qatar for outstanding private
schools.
Preschooling has grown tremendously since the
Education for a New Era reforms were ­initiated(figure 4.9), with around half the children of
appropriate age participating. Some 9 out of 10
attend private kindergartens. Preschools are an
excellent mechanism supporting early childhood
development, which enhances a child’s futurelearning ability. Preschooling stimulates cognitive and linguistic development. Because kindergarten is not yet mandatory, some children enterschool less prepared than others. International
evidence suggests that children benefit most frompreschool when all classmates are at a similar levelof knowledge.
Participation in primary, preparatory and secondary schooling is high in Qatar comparedwith regional benchmarks (figure 4.10). However, enrolment drops considerably after the endof compulsory schooling, especially among malestudents. To ensure opportunities in higher education and training and in continuing education for all students, the government will consider making secondary schooling compulsory andchapter

4

Figure 4.9 The number of Qatari and non-Qatari kindergarten students is increasing rapidly, and mostattend private schools
Number of kindergarten
students (thousands)

Number of kindergarten
students (thousands)

30

30

25

25
Non-Qatari

20

20

15

15

10

10

5

5

PrivateQatari0

2003/2004 2004/2005 2005/2006 2006/2007 2007/2008 2008/2009

Figure 4.10

Public0

2003/2004 2004/2005 2005/2006 2006/2007 2007/2008 2008/2009

Participation in primary schooling is high in Qatar compared with regional benchmarks, but there is
scope for higher participation in secondary schooling

By education level

Primary education

Net enrolment rate (%)
100

Net enrolment rate (%)

1999

2008:

increasedecrease

United Arab Emirates

Primary male

Saudi Arabia
Oman

90

KuwaitPrimary female

Qatar
Bahrain

80

60

Secondary female

70

80

90

100

Secondary education
Gross enrolment ratio (%)

70

1999

2008:

increasedecrease

United Arab Emirates
Saudi Arabia

Secondary male

60

Oman
KuwaitQatar

0

Bahrain

1991

2004

2005

2006

2007

2008

60

70

80

90

100

Source: UNESCO, EFA Global Monitoring Report (2009); World Bank database (2011); Ministry of Education, Annual Statistics Abstract (various years).

Building knowledge and skills

133integrating vocational and technical options into
the curriculum.

that they tend to revert to old curricula andteaching methods.

Both suggestions would require increasing school
capacity­—­a need already evident in the ever-growing number of students in younger cohorts. A
school building programme is therefore a prerequisite for increasing the duration of compulsory
schooling.

One possible solution, implemented in benchmark countries, is to design a national curriculum that provides closer guidance about what andhow teachers should teach. This approach wouldease the burden on teachers to develop their own
instructional design and content to meet changing guidelines. It would also provide considerable
flexibility to teachers and schools that have alreadymastered the reforms.

Building sufficient education infrastructure
capacity

To support this initiative, the government will:• Develop an infrastructure plan to ensure adequate capacity to educate all children.
Targets• Expand school capacity in line with projected
growth of student numbers.
• Improve the quality of school buildings.
Mandatory kindergarten and secondary schoolingTo support this initiative, the government will:• Introduce measures to make kindergarten andsecondary schooling mandatory.

Updated national K–12 curriculum

To support this initiative, the government will:• Establish a high-level committee to review
national curriculum standards.
• Establish the curriculum.
• Conduct a pilot programme with monitoringand evaluation.
• Implement the national curriculum across all
schools.
• Disseminate information on the new national
curriculum and related educational resources.

Target• Raise the net enrolment rate above 95%
throughout K–12.

Targets• Design and implement a high-quality national
K–12 curriculum.
• Expand training programmes according tonational occupational and curriculum standards.

Consistently provide high-quality K–12
education

Support K–12 students to fulfil theirpotential

As part of the Education for a New Era reforms,
the Supreme Education Council has developed
K–12 curriculum standards for core subjects as
guidelines for providing high-quality education
across schools and school types. The standards
support teachers in delivering the required content for each grade and are the basis for standardized student testing. Evidence suggests thatmany teachers and students are overwhelmedby these standards, which have been introduced
alongside other major reforms. Faced with somany changes at the same time, teachers report

Most schools adhere to a standard curriculum, so
there is little variation in school profiles. Qatar
needs to provide diverse education options thatallow students to choose curricula and teaching
methods that match their aspirations and abilities.

134

Qatar National Development Strategy 2011–2016

A uniform public K–12 system neglects students
with special talents and interests, such as students
drawn to arts, music or sports. The school system
also largely ignores vocational and technical talents. International benchmarks suggest that Qatar
would be well served by offering student-oriented

chapterlearning and fostering talents outside of the standard curriculum. These goals could be achieved
through special classes or specialized schools.
Qatar’s school system must also acknowledge
weaknesses in student capabilities. On national
and international tests, many Qatari students perform below expectations in core subjects such as
math and science. Programmes should be considered to support students who are weak in theseareas, so that they can successfully continue theirschooling. The K–12 national curriculum, learning outcomes and instructional programmes mustbe aligned with individuals’ post-secondary aspirations and Qatar’s needs for a skilled workforce.
Align education programmes and student needs

To support this initiative, the government will:• Implement programmes to support less talented students.
Target• Strengthen institutional capacity to cater todiverse student needs.
Improve student language, math and scienceskills at all K–12 levels

To support this initiative, the government will
• Review and incorporate best practices of teaching math, science and English in national
curricula.
• Monitor and provide support systems for low
academic achievers.
Target• Increase the share of students approaching or
meeting national standards in math, scienceand English.
Enhance the quality of education in private
schools and attract outstanding schools to Qatar

To support this initiative, the government will:• Assess the overall condition of private schools.
• Establish a national accreditation system for
private schools.
• Test the accreditation system in private schools.

4• Apply the accreditation system to all private
schools after final refinement.
• Design a set of measures for attracting more
outstanding schools.
Target• Complete plans pertaining to developing andimproving the quality of education in private
schools.

Provide appropriate education options
for children with special needs
Qatar has adopted inclusive policies for children with special needs. Schools are encouraged
to accept these students, and more than half ofschools are equipped to meet the needs of students with physical disabilities. Several institutions
cater to students who cannot be taught in regularclassrooms, offering these students the educationneeded to help them lead a meaningful life.
As the student population has grown, however,shortages have arisen in the provision of educationand training to students with special needs. Few
teachers in government schools have been trained
how best to support such students, and experts
who can assist students with moderate and serious
disabilities are unavailable. Overall, increasing thecapacity of specialized institutions would lower thepressure on mainstream schools and reduce waiting lists for existing specialized institutions.
Specialized system to ensure high-quality
education for students with disabilities

To support this initiative, the government will:• Evaluate the infrastructure of specialized institutions and facilities, including digital access,for students with disabilities, and develop
capacity as needed.
• Develop specialized curricula for students
with disabilities, in connection with defining anational curriculum for K–12 general education.
• Invest in faculty development for teaching students with special learning needs.
• Develop Qatari specialists to provide comprehensive services for students with special learning needs.
Building knowledge and skills

135• Launch awareness campaigns for parents ofstudents with special learning needs and forother students and society at large.
• Invest in the development of institutions toenhance teaching of students with disabilities,
including identifying education and career
pathways.
Targets• Increase the share of schools equipped with
infrastructure for students with disabilities to80%.
• Increase the capacity of specialized institutions
and the number of Qatari specialists able towork with students with special learning needs.

Increase awareness of skills requiredin future work environments
Qatar’s K–12 system has only weak links with thelabour market. Many students in general K–12
schools report a lack of information about thework environment; only two technical and vocational schools provide secondary education for students with technical and vocational inclinations.
One way to tackle this issue is to integrate compulsory technical and vocational elements in curriculum standards and the national curriculum.
Initiatives can be as easy as tying textbook examples closer to the typical work environments in key
professions. Also valuable would be internships,site visits, class presentations and workplace training to increase student exposure to work environments and raise awareness of work-relevant skills.
Career counsellors in every school could guidestudents in making decisions about their academic and professional futures. Vocational schools
should be accredited based on business needs.
Improved work skills and awareness of the worldof-work at preparatory and secondary levels

To support this initiative, the government will:• Align the national curriculum with the objectives for creating effective participants in theknowledge economy.
136

Qatar National Development Strategy 2011–2016• Encourage schools to hold workshops with key
employers in Qatar to learn about their skill
requirements and gaps in the skills of new
graduates.
• Consider placing career counsellors in schools toadvise students on education and career paths.
Targets• Include work skills in the national curriculum,
including implementing initiatives to foster student exposure to work environments.
• Operationalize work skills in the national curriculum and enhance the performance of academic and vocational guidance in school.

Improve parental, community andsectoral participation in K–12 education
In recent years, school performance has become
more transparent to students, parents and thecommunity­—­important for increased school choice.
However, studies suggest that many stakeholders are
not involved in school life or knowledgeable about it.
Schools need to engage stakeholders more actively,
encouraging them to take an interest in school activities, participate in school bodies and take advantage
of informal occasions for information exchange.
Beyond having Boards of Trustees since 2006,
schools should disseminate information throughthe Internet in order to increase stakeholders’ interest in school activities, enhance their participation in school committees and benefit from informal information exchange. They should publicize
Board of Trustees and parent council policies andinvolve the public and private sectors in education,for example, by having agencies and institutions run
some independent and private schools.
Increased school communication with parents,
taking into account the education sector reform
principles

To support this initiative, the government will:• Develop a consistent communication approach at
the Supreme Education Council and school level.

chapter• Develop programmes to encourage community and parental involvement such as extracurricular activities for families, interschool
sports events and cultural and academic
competitions.
Targets• Increase communication between schools andstakeholders.
• Increase parental involvement in schools andprovide parents with information on student
and school performance.
Formalizing public and private sector participationin education

To support this initiative, the government will:• Take appropriate measures to increase quality, participation of all stakeholders in implementing the education and training sector
strategy.
Target• Increase stakeholder participation in implementing the education and training sector
strategy.

Offer a broad range of basic education
programmes for adults
While younger Qataris have enjoyed the education benefits made possible by economic growthand financial wealth, many older Qataris lacked
access to education or did not regard it as important. Many of these older Qataris now regret theirlack of education, and some have chosen to catchup through night school and other training andcontinuous education opportunities.
A range of measures can be introduced to support
basic education for adults, a diverse group: morenight schools, specialized learning centres andpathways into other education options. For adults
who have lived well and had successful careers,
programmes will recognize the sensitivities inherent in catching up on an education they shouldhave received as children.

4

Flexible literacy and numeracy programmes for adults

To support this initiative, the government will:• Offer additional literacy and numeracy programmes for adults beyond night schools­—­forexample, in specialized centres­— ­a nd create
incentives for adults to attend.
• Create flexible pathways between vocationaland general education programmes by offering
equivalence tests enabling adults with a vocational education to gain a general education degree.
Target• Increase the capacity and variety of institutions
for adult education.

Improving higher education
Higher education institutions have a mission that
extends beyond teaching students and conducting scientific research for the sake of developing
knowledge. These institutions must identify social
needs that could be met through education andresearch programmes that support government
agencies, civil society and industry. Higher education institutions should encourage the university
community—faculty staff, administrators and students—to interact with the broader Qatari society.
Higher education, the crucial link between the
K–12 system and the labour market, has undergone large-scale reforms.
Since 2003 Qatar University has implemented a
successful reform programme to, among otherthings, raise standards and grades, increase student engagement and improve teaching quality and staff morale. A critical aim is to meet theneeds of a new generation of Qataris in support of
Qatar’s economic and social development.
Qatar Foundation’s Education City continues toflourish as a centre of excellence in education andresearch, with a growing number of internationally renowned university campuses from Europe
and the United States. It is inspiring young Qataris
to achieve higher education attainment at the
Building knowledge and skills

137secondary level and producing graduates of thehighest international standards in support of QNV
2030’s aim of transitioning towards a knowledgebased economy. Education City universities offer
a wide variety of specialties and are attracting adiverse group of students from all over the world.

Figure 4.11 Average annual expenditure on
higher education per student isabove the Organisation for Economic
Co‑operation and Development
average
US$

Some areas still require attention, however. Thereis evidence that higher education does not optimize Qatari talent and capabilities:• Low enrolment rates and high dropout rates in
the higher education system as a result of more
attractive offers in the labour market or lack ofsufficient qualification.
• Misalignment between the subject matter taught
and abilities developed in K–12 and admission
requirements for higher education­—­requiring
many students to take one or two years of foundation courses before starting college to catchup in knowledge and critical thinking abilities.
• A mismatch between the qualifications students
obtain in the higher education system and theneeds of the Qatari labour market.
• Low-quality research output.

Prepare Qataris for employment in theknowledge economy
As the population grows, so does the potential for
Qataris to take a more prominent role in the economy. Higher education is the means for deliveringon this potential, by graduating Qataris capableof contributing to the sustainable development of
the knowledge economy.

20,00017,98415,00015,447
OECD average 12,336
12,845
10,84410,000

7,248

5,000

0
Oman
2002

Republicof Korea
2006

Finland2006

UnitedKingdom
2006

Qatar
Universitya
2008

a. Excludes capital expenditures.
Source: OECD, Education at a Glance (2009); World Bank, The Road Not Traveled (2008).

Alignment between higher education and needs ofa knowledge economy

To support this initiative, the government will:• Conduct studies on workforce needs andassess the gap between education output andrequirements.
• Launch a campaign aimed at increasing enrolment in courses suitable for a knowledge
economy.
• Incentivize Qatari enrolment in knowledge
economy courses.

Investments in higher education have been considerable (figure 4.11). But higher education still falls
short of its goals. Qatar has world-class institutions,but Qataris struggle to gain admission, as evidenced by their declining admission rates. Many Targets
students admitted cannot complete a degree, as • Increase the proportion of students graduating
evidenced by high dropout rates, particularly forwith qualifications needed in the knowledgemen. Even university graduates are not well preeconomy by 65%–75%.
pared to participate in the knowledge economy­—­ • Provide students with diverse post-secondary
because they lack access to a comprehensive set of
education pathways to meet labour market
courses or choose not to enrol in them.
needs.

138

Qatar National Development Strategy 2011–2016

chapterFeedback mechanism between higher education
institutions and K–12 institutions and students

To support this initiative, the government will:• Develop feedback reports on skill gaps.
• Identify higher education entities with information on student performance gaps.
• Develop monitoring mechanisms to trackchanges in the performance of higher education students.
Targets• Establish feedback channels between K–12 andtertiary education.
• Reduce the proportion of Qatari students
enrolled in Qatar University’s Foundation Program to 50%.

Offer alternative pathways to tertiary
education
An equitable higher education system ensures all
qualified students access to universities. Financial

4

considerations should not determine admission
decisions, and universities must ensure that admitted students are equipped to follow the curriculum and graduate.
Access to Qatar University was fairly open to
Qataris until 2003, but more stringent entry
requirements have since made admission difficult. Enrolment ratios have generally been low(figure 4.12). This is due not to a lack of capacity but to the shortcomings of the K–12 system
in preparing students. The same is true for theinternational universities in Education City,
whose admission requirements are even more
stringent.
Because higher education is a main driver of aknowledge economy, Qatar needs to increase
the number of nationals attending university.
Approaches to increase participation range fromreforms in K–12 education to greater access toalternative higher education options.

Figure 4.12 Gross enrolment ratios for tertiary education are low for Qataris, especially for men, comparedwith benchmark countries, 2006–2008
Men

Women

Gross enrolment ratio (%)

Gross enrolment ratio (%)

100

100
94

75

75

61

50

25

96

50

52

53

64

56

63

50

66

70

72

CanadaBelgium

54

25

28

0

0
QatarisFranceIreland

CanadaBelgium

NorwayNew
Zealand

QatarisFranceIreland

NorwayNew
Zealand

Source: UNESCO, EFA Global Monitoring Report (2009).

Building knowledge and skills

139

Extend education opportunities to students who
cannot directly enter universities

To support this initiative, the government will:• Establish a student-support office for students
unable to gain admission to universities orcomplete higher education requirements.
• Undertake a feasibility study on alternativeeducational opportunities, such as adult education, part-time education, distance learningand study abroad.
• Provide required education opportunities
based on the feasibility study.
Target• Substantially increase the gross tertiary enrolment ratio to at least 30% for men and 56% forwomen.

Strengthening technical education andvocational training
Compared with other components of the education system, Qatar has not invested as muchtime and resources in technical education andvocational training (TEVT). Qatar needs toaddress the basic infrastructure and inputs forthese educational offerings:• A coordination mechanism to maintain thequality of institutions and programmes, ensurethat course offerings meet labour market needs
and student demand, and establish clear links
between TEVT courses and labour market
requirements.
• Additional capacity to fill clear institutional
gaps (as in girls’ secondary technical and vocational schools).
• Increased accountability, by raising social perceptions of the value of vocational training andprofessional development courses.

Develop an organizational model fortechnical education and vocational
training and build needed capabilities
Qatar’s TEVT sector needs strong institutions
to ensure high-quality, appropriate and well140

Qatar National Development Strategy 2011–2016

managed offerings. The most important step is toconsolidate current efforts to develop the sector
and to establish a central body responsible for the
institutional support necessary to raise the quality and reach of this segment of the education
system.
Many countries have fully integrated TEVT into
the education system, where it serves as a bridgeto the labour market. Among other tasks, the central body could coordinate with the business sector, develop and maintain frameworks (such as a
National Qualification Framework) and introduce
quality standards.
Establish a TEVT supervisory bodyTo support this initiative, the government will:• Define key functions, such as planning, quality assurance, oversight of a National Qualification Framework and occupational standards, benchmark against similar functions
performed in comparable international institutions and determine a model appropriate for
Qatar.
• Assess institutional capacity to support identified key functions.
• Review laws and policies that establish supervisory authority that extends government licensing of private sector TEVT.
Target• Develop and implement an organizationalmodel for TEVT.
Adopt a new model for accreditation andlicensingTo support this initiative, the government will:• Benchmark international best practices.
• Develop licensing criteria for current and new
institutions.
Target• Define and implement a quality assurance system for TEVT institutions and programmes.

chapterDevelop a regulatory framework
to align technical education andvocational training with the education
sector and labour market needs
The Supreme Education Council has strict quality
assurance guidelines for education and training
providers. For example, TEVT institutions, such as
the Community College of Qatar, the CAN-Q and
Qatar Petroleum Training Institute, must provide
graduates with internationally accepted degrees.
As the education and training system has grown,parallel but conflicting qualification models andtitles have emerged. The confusion makes it hardto transition flexibly between education and work.
Pathways must be built to the education system,
through a National Qualification Framework,and to the labour market, through clearly defined
occupational standards that can be addressed by
the education system.
National Qualification Framework

To support this initiative, the government will:• Appoint an oversight body and determine theorganizations and process model needed to
conduct assigned functions.
• Determine the scope of the National Qualification Framework.
• Decide on the reference model and structure
for the National Qualification Framework.
Target• Define and implement standards for a National
Qualification Framework with all stake­holders.
Occupational standards and oversight bodyTo support this initiative, the government will:• Build on the existing Supreme Education
Council vocational education training initiative in deciding on international standards tobe adopted by Qatar.
• Customize occupational standards.

4• Appoint an oversight body and determineorganizations and process model.
Target• Develop and implement a system of occupational standards for relevant professions.

Align technical education andvocational training programmes andoutputs with the needs of society andthe labour market
Qatar has a strong base of education and training institutions and programmes that cater to theneeds of the economy and the labour market. But
to ensure that TEVT programmes adequately meetthese needs, market gaps must be closed, and different qualification models and titles reconciled.
Gaps are most noticeable at the secondary level,
where technical and vocational programmes are
missing, especially for girls. But capacity andaccess problems also characterize post-secondary
programmes and institutions. Developing a productive workforce and society requires matching
programmes to student interests and capabilities and preparing graduates for professional andsocial life. It will be important to provide more
technical and vocational pathways to employment,
especially for those students who are not academically oriented or unable to meet the admission criteria of universities (figure 4.13).
Plan to develop differentiated TEVT programmesaligned to labour market needs

To support this initiative, the government will:• Determine and prioritize needs for the different types of TEVT.
• Develop an implementation plan.
Target• Develop and implement a plan aligning TEVT
programmes with the needs of the labour
market.

Building knowledge and skills

141

Figure 4.13 Qatari students need more technical education and vocational training pathways to employment
SecondaryTechnical pathway
Preparatory

Technical

Vocational

Technical
education andvocational training
institutesa

Skill stream

Old pathways

Foundation

College of the North
Atlantic–Qatar,teacher training facilityof Qatar University
Community college

University

Employment

Academic pathway

Advanced technicaleducation and vocational
training institutes

Proposed enhanced pathways

a. Technical education and vocational training institutes have limited enrolments and are restricted to men.

Plan for industrial partnerships to further develop
TEVT

To support this initiative, the government will:• Conduct a benchmarking study on best practices related to TEVT partnerships.
• Determine key areas and projects for TEVT
partnerships with industry.
• Integrate partnership into the regulatory
framework.
Targets• Develop a industry partnership model acceptedby all stakeholders.
• Establish a first industry partnership according
to model.

Increase the prominence of technicaleducation and vocational training
programmes
TEVT institutions and programmes frequently
prepare students directly for professional activities. Because of this responsibility, the reputationof these programmes needs to be elevated. Rather

142

Qatar National Development Strategy 2011–2016

than be considered second-rate education options,they should be seen as a centrepiece of professional careers. This change would increase enrolment
and better prepare Qataris for the labour market.
To promote a positive perception of learning andachievement in the student body, a first step isto disseminate regular information about TEVT
opportunities and the relevance of TEVT programmes. This effort will inform both students
and employers of TEVT opportunities and how
TEVT programmes prepare students for jobs andcareers.
Plan to increase awareness of TEVT programmes

To support this initiative, the government will:• Conduct an international and regional bestpractices benchmarking study and determine
an awareness programme suitable for Qatar.
• Implement an awareness programme.
Target• Improve information and perceptions about
TEVT programmes.

chapter

Effective incorporation of TEVT into career guidance

To support this initiative, the government will:• Develop a TEVT career counselling system,
including the necessary legislative and regulatory systems.
Targets• Incorporate TEVT options into career counselling.
• Reduce TEVT dropout rates.

Enhancing scientific research
Qatar has recently invested considerable resources in research and development. An outstanding
infrastructure is in place for scientific research,with programmes to draw potential researchers
and build partnerships with universities and businesses. Now Qatar must use these resources effectively to attract more high-quality researchers, andFigure 4.14

4graduate more students in knowledge economy
fields (figure 4.14), to produce substantive research
results. While graduates from Education City universities are much more concentrated in knowledge economy subjects than those from Qatar University, they comprise a small proportion of thetotal graduate population.

Achieve a higher level of scientificinnovation
In recent years, Qatar, through the Qatar Foundation, has invested heavily in developing capabilities for scientific innovation and research. Some
examples:• The establishment of a broad range of research
centres within Qatar University and Education
City, including research opportunities in scientific and technical areas; policy, social and business areas; innovative design and culture andheritage.

Qatar needs to increase the proportion of science and math graduates% of graduates
100

6
5
19

8
5
9

4
6
25

9
7

12

12

26

75

4
4

14
9

21

8

35

24

31
50

27

29

41
25

26

27

Republic of Korea

Norway29

200FinlandLife sciences and physical sciences
Engineering, manufacturing and construction

Math and computer science
Social sciences, business, law and services

United Kingdom

Qatar University
2008

Health and welfare
Non–knowledge economy

Note: Following Organisation for Economic Co-operation and Development (OECD) definitions, the humanities are considered non–knowledge economy subjects. Data cover tertiary type A and advanced
research institutions for OECD countries. Qatar University graduates are used as a proxy for Qatar since Qatari enrolment in Qatar University accounts for about 90% of Qatari enrolment in higher education.
Source: OECD, Education at a Glance (2009); Qatar University, Book of Trends 2008–09 (2009).

Building knowledge and skills

143• The acceleration of quality research and development through the Qatar National ResearchFund, established in 2006, which takes a broad
approach in providing research grants to awide range of beneficiaries.
• The establishment of the Qatar Science andTechnology Park in 2009, which has alreadyattracted investments from several international businesses for frontier research anddevelopment.
• Competitive mechanisms for funding researchers and institutions.
• Education programmes on research at theuniversity and K–12 level, such as the Under­
graduate Research Experience Programme andresearch programmes and specialized mathand science tracks in secondary schools.
Gaps in research and development support, particularly in prioritizing research funding and establishing mechanisms for commercialization, arehindering scientific innovation. As a result, productivity indicators are low compared with international benchmarks.
Productive and effective scientific and researchsystemTo support this initiative, the government will:• Define national priority areas for research andpartnership opportunities.
• Develop an awareness project on research opportunities in Qatar targeted at potential researchers.
• Introduce mechanism to facilitate commercialization and practical application of research
outputs.
• Revise the framework of laws and regulations
relating to intellectual property and scientificresearch, based on a review of international
best practice.

144

Qatar National Development Strategy 2011–2016

Targets• Develop a national strategy defining priority
areas for scientific research and development.
• Increase the number of scientific research publications and patents.

Implementation challenges
The success of the education and training initiativesof the National Development Strategy 2011–2016
will depend on political leadership and resolve athigh levels. Success will also depend on implementing a comprehensive and integrated approach, bothvertically within the education and training sectors
and horizontally across sectors (education, training,
labour market, family, social protection and so on).
The proposed reforms entail more than management changes. They involve considerations ofnational values and identity. Achieving them will
require consensus among all stakeholders.

Fostering cross-sectoral links
The strategy for education and training incorporates inputs from stakeholders in the educationand training sector and beyond. The process fordeveloping the strategy was highly inclusive, basedon numerous personal interviews and more than
30 meetings of sub-task teams. This high stakeholder participation and buy-in distinguishes development of the current strategy for education andtraining from past efforts. But the ultimate measure of success is the degree of implementation.
Success also depends on collaboration outside thesector (figure 4.15). The most critical areas of crosssectoral linkage are the labour force and a caring
and cohesive society. These three sectors are interdependent, with each relying on the others’ outputs.

Figure 4.15 Education and training are both a goal and an enabler to achieve the aspirations of Qatar
National Vision 2030

Other sectors as enablers for education and training

Manage the economy to ensure
opportunities for Qataris in key
economic areas

Develop effective
institutions to support
sound social structure
including government, civilsociety and the private
sectorEnvironmental
sustainability

Educatedand capable
population

Institutional
development

Provide incentives for Qataris
to pursue education
successfully

Goal

Economicmanagement

Population,
labour force
and Qatariemployment

Increase environmental
awareness

Caring andcohesivesociety

Healthcare

Increase support toeducation outcomes andsocial values of all children

Support well-being ofchildren

Enabler

Education and training as an enabler for other sectors

Prepare Qataris for
employment in theknowledge economy

Educate and train Qataris
to be leaders ofgovernment and businessEconomicmanagement

Educatedand capable
population

Institutional
development

Educate and train Qataris tohave the necessary skills tobe productive members of
the labour force

Environmental
sustainability

Population,
labour force
and Qatariemployment

Caring andcohesivesociety

HealthcareSupport a school
environmental programme

Provide continued access to
education, particularly forpeople with disabilities

Educate children about
healthy lifestyles

145

Fostering a capable and motivated workforce“Qatar must choose a development path that is compatible with the targeted size and quality of expatriate labourthat are determined by Qatar’s leadership and people.”—Qatar National Vision 2030

diversifying and technologically sophisticatedeconomy.”Qatar’s economic structure has not changed markedly in recent years at the aggregate sectoral level,
but there has been a notable increase in the shareof construction, and transport and telecommunications. And while the composition of output has
also remained fairly stable, activity has increased
rapidly, with an average real annual growth rate ofaround 17% over 2004–2009 (see chapter 3).

Transforming Qatar into a diversified knowledge
economy with increased private sector participation depends on upgrading and deepening the
education, knowledge and skills of Qataris. Aligning these economic objectives requires a transition from the current low-skilled, low-­productivity
and low-wage economy to a high-skilled, high-­
As in many resource-rich economies, the private
productivity and high-wage economy.
sector in Qatar has thus far played a limited role.
A high-skilled and capable workforce is crucial for Estimates of the private sector share of aggregate
achieving a modern, diversified economy and for output put it at around 35%. However, the privatemodernizing public sector institutions. There are sector has a much bigger profile in employment,strong positive returns associated with an addi- with large numbers of workers, predominantly
tional year of post-secondary education, but many expatriate, in construction and retail trade. These
Qataris do not pursue a diploma or higher educa- two sectors have expanded markedly as a result oftion. While this could be due to a lack of aware- both mega-infrastructure projects and rising conness of the value of education, increasing the real- sumption demand from a rapidly growing expaized returns will likely encourage Qataris to stay triate population, more than halving the share ofin school longer and raise their level of perfor- Qataris in the labour force from 14% in 2001 tomance. Creating a more productive, skilled and 6% in 2009.
motivated labour force requires major labour
market reforms, especially for incentivizing Moving forward, there are two broad options
Qataris to participate in the private sector and to for the economy, each with consequences fortake advantage of higher education and training labour force competition. If the economy continues to rely heavily on hydrocarbons to fuel mega-­
opportunities.
development projects, with productivity levels
The labour market is highly segmented, with unchanged, some 1.6 million workers will be needheavy concentrations of Qataris in the public sec- ed by 2016. If reliance on hydrocarbons decreases,
tor and expatriates in the private sector, espe- Qatar will need just 1.2 million workers in 2016­—­
cially in construction and services. While skill much the same as in 2009 (figure 4.16).
development and more effective labour force participation by Qataris are essential, so is establish- QNV 2030 anticipates increased and diversified
ing the regulatory and legal frameworks needed Qatari participation in the labour force throughto attract and retain a skilled expatriate work- investment in education and training, incentives
force to support the nation’s development vision. for professional and managerial occupations in all
QNV 2030 acknowledges the importance of expa- sectors and measures to encourage more Qataritriate workers: “For the foreseeable future, Qatar women to enter paid employment. It supports
will not have a sufficient number of citizens to measures to improve high school education outmanage the complex systems, infrastructure comes and expand participation in post-secondaryand other requirements of a rapidly growing, education and lifelong learning.
146

Qatar National Development Strategy 2011–2016

chapterFigure 4.16

4Qataris as a share of the labour force, actual and projected under two scenarios, 2001–2016

Total labour force (thousands)

QatariExpatriate
1,558.6

1,600

6%
94%
1,265.4
1,171.5

1,200

6%

6%
94%

94%

1,242.3
7%
93%

831.9
8%
92%

800

535.8
444.1

400

322.9
14%

11%
12%

89%

88%

86%

0
2001

2004

2006

2007

Challenges for the labour market
Qatar is seeking a development path compatible with a targeted size and quality of expatriate labour. In moving in that direction, Qatar
will continue to weigh the economic benefits ofgreater numbers of expatriate workers against thecosts of meeting their health, education, housing
and public service needs, including those of theirdependents residing with them, and the impact onnational identity and culture.
Success will depend largely on whether incentives
and regulatory policies can transform the private
sector into a high-productivity, high-wage economy and whether Qataris compete for work in theprivate sector. Both progressively re­balancing
immigration policies and encouraging higher
value-­added and capital-intensive employment areneeded.
Current employment sponsorship rules are affecting Qatar’s labour market:

2008

2009

2016

(moving beyondhydrocarbons)

2016(Carbon Qatar)

First, open sponsorship rules provide an incentive
to recruit low-cost expatriate workers and a disincentive to Qatari employment and automation.
High levels of immigration tend to create a lowwage, labour-intensive, low-productivity economy.
The cost of importing low-skilled expatriate workers is heavily subsidized.
Second, the sponsorship programme constrains
the mobility of expatriates and thus their ability torespond to labour market signals. A rigid labour
market hampers the development of a workforce
commensurate with aspirations for a knowledge
economy.
Despite rapid economic development and efforts
to improve male education, labour force participation rates of Qatari men are low and declining­—­w ith men leaving the labour force at a young
age. There are significant challenges to increasing
effective male participation in the labour force.
More men need to continue on to tertiary education, and education attainment levels need to rise.
Fostering a capable and motivated workforce

147

Currently, Qataris have little incentive to excel ineducation and training.

wages with productivity. The primary driver forthese changes is improved education outcomes.

By contrast, labour force participation of Qatari
women has grown sharply in recent years, consistent with their rising education levels and theready availability of low-cost domestic help. Thereis considerable scope for participation to rise further, as it still lags well behind that of many highincome countries.

Entrepreneurial development of Qataris, especially of youth and women, will be encouraged
to increase their involvement in the private sector. Barriers to entrepreneurship will be studied
and initiatives launched—including strengthening incentives, increasing business training
and building capacity—at home and abroad inareas relevant to labour market needs. Increasing the participation of Qataris in the private sector and reducing their dependence on public sector employment will entail narrowing the gaps insocial allowances and conditions of work.

In recent years, Qatari unemployment rates havebeen exceptionally low. The unemployed are primarily first-time job-seekers, people with a strong
preference to work in a particular sector and disproportionately women. There are, however, concerns with underemployment and falling labour
productivity.
Qatar’s public sector leads in employment of Qataris and is the sector of choice for new labour market
entrants. The efforts of the public sector to increase
the participation of Qataris are reinforced by affirmative employment policies in all other sectors.
For example, the energy industry, under the leadership of Qatar Petroleum, has been at the forefrontof promoting Qatari participation in the mixed andprivate sectors. The industry recruits young highschool graduates, sponsors them through scholarship programmes in vocational and university training and provides rapid career development paths,
including in-house training. These recruits entera wide range of positions within the industry­—­inoperations, maintenance, engineering, finance andadministration, and human resources.

Realizing Qatar National Vision 2030 fora capable and motivated workforce
To realize the QNV 2030 goal of a capable andmotivated workforce, young Qataris need to be
motivated to take advantage of the many postsecondary education and training opportunities.
Qatar will move from establishing numerical targets for employment of Qataris to emphasizing
price- and market-based mechanisms that link148

Qatar National Development Strategy 2011–2016

A critical question is how much the wage gaps
between Qataris and expatriates and between public
sector and private sector workers need to narrow to
encourage substitution. Public sector (public administration, government companies and the mixed sectors) wage, salary and social allowance packages,
including pension schemes, will be reviewed, with aview to identifying policies to encourage Qataris toremain in the labour market and increase their participation in the private sector.
Training programmes will be demand oriented
and revised to meet priority needs with attention
to content, quality and accreditation. Expanding
the role of employment services, such as labour
exchanges, will reduce mismatches between labour
supply and demand. Similarly, to cope with the
dynamic needs of changing labour markets, thegovernment will offer incentives to employers andemployees for lifelong learning through retraining.
Policies on immigration, regulations, sponsorshipand licensing will be reviewed and revised to create a more strategic demand for expatriate workers in line with the aim of recruiting and retaining
the right mix of expatriate labour. Qatar’s labourlaws will be revised, as necessary, to protect further the rights and safety standards of all expatriate workers within a comprehensive social protection framework and within international norms
and standards. Career planning and professional

chapterprogrammes for targeted expatriates are criticalin a knowledge economy, so that expatriates caneffectively mentor and train young Qataris in all
sectors.
The 2009 Law on Human Resources Administration will be reviewed and revised to reduce the discouraging effect on labour force participation andon the recruitment and retention of the expatriate
labour force.
Coordination mechanisms between and within
education and labour authorities will be improved
to enhance administrative processes and statisticalsystems. For example, the reasons for relatively low
outcomes in the education and training system
will be examined. Improved links with the labour
market are also required. An example is schoolmodernization and development, including ICT
enhancement, curriculum reform, career guidance and job counselling.
To help realize national labour market goals, thegovernment proposes major reforms over 2011–2016 to promote human capital development forsustainable economic growth and to enable thetransition to a knowledge economy. The government also aims to increase labour market efficiency in matching labour supply and demand in the
public and private sectors.
The reform measures will contribute towards eightlabour market sector outcomes.
• Expanding high-quality training opportunities
for Qataris.
• Incentivizing Qatari private sector employment.
• Boosting labour force productivity.
• Attracting and retaining high-quality expatriate talent.
• Nurturing and managing human resources.
• Improving labour market flexibility.
• Strengthening evidence-based policy-making.
• Enhancing employment and career counselling
services.
Ambitious targets set for each of these outcomes require early, effective and sustained

4

implementation of the reforms and associatedmeasures if they are to be met by 2016.

Expanding high-quality training
opportunities for Qataris
The proportion of Qataris in the labour force islow, but QNV 2030 envisages that they will help
sustain the economy through increased labour
force participation, especially in senior positions.
Stronger skills (technical and noncognitive), especially when aligned with labour market needs, will
enable greater and more effective labour force
participation by Qataris.
A modern public sector requires a high-skilled,
capable workforce. Yet unskilled and semiskilledworkers as a proportion of Qatari employees ishighest in the public sector (table 4.1). This skill
mismatch, along with other features of public sector employment (particularly the social benefits),
has reduced incentives for Qataris to improvetheir skills and education.
Private sector employers are discouraged by theskill level, work attitudes and motivation of new
Qatari entrants into the labour market. The performance of current private sector employees islikely to influence hiring choices and to determine
employability in the private sector.
The lack of adequate skills in the labour force isa challenge that must be addressed through skills
upgrading for Qataris designed and implemented
primarily through public and private institutions.
Because not all Qataris will pursue an academic education, they need opportunities to develop
technical skills through vocational training. The
share of enrolment in technical education andvocational training at the secondary level is belowthat of international benchmarks (table 4.2).
Skill upgrading programme for Qataris

To achieve this outcome, the government will:• Upgrade skills in the public sector to improve
institutions and administration for the country.
Fostering a capable and motivated workforce

149

Table 4.1

Among employed Qataris, the highest share of unskilled are in the government sector and thehighest share of highly skilled in the private sector, 2009 (%)
SectorGovernment

Government
corporation

Mixed

PrivateTotal

Highly skilled

52

42

64

75

53
34

Skill level
Qatari employment (%)
Skilled

31

50

33

25

Semiskilled

2

7

2

0

3

Unskilled

15

1

0

0

11

Total

100

100

100

100

100

Highly skilled

39

58

45

13

17

Skilled

12

18

32

16

16

Semiskilled

14

14

15

49

46

Expatriate employment (%)

Unskilled

35

10

8

22

21

Total

100

100

100

100

100

Qataris’ share of total employment (%)

Table 4.2

Highly skilled

62.3

14.7

20.7

1.7

15.8

Skilled

76.5

39.4

16.1

0.5

11.1

Semiskilled

14.5

11.0

2.8

0.0

0.4

Unskilled

34.3

2.3

0.0

0.0

2.9

Total

55.1

19.2

15.6

0.3

5.6

Enrolment in technical education and vocational training at the secondary level as a share of totalin Qatar is very low compared with most benchmark countries, 2008 (%)
Tertiary education

Secondary education

Preparatory education

Gulf Cooperation Council averageCountry or group

14

7

1

Bahrain

8

33

0

Kuwait

0

4

1

Oman

12

0

0

Qatar

19

2

0

Saudi Arabia

15

1

6

United Arab Emirates

28

1

0

OECD average

14

45

3

Source: UNESCO Institute for Statistics, Education data set (2010).

Qatari public sector employees must be encouraged to upgrade their skills. The government
will enhance long-term training opportunities for public sector employees by increasing
training options and scholarships and by communicating these opportunities more broadly.
To increase the demand for in-service training
and skills upgrading, staff annual performance150

Qatar National Development Strategy 2011–2016

assessments will take into account participationand performance.
• Improve skills in the private sector to promotea more diversified economic role for Qataris.
The involvement of private sector actors in thedesign, implementation and provision of training is a key tool for matching the supply of anddemand for skills in the private sector and forchapterunderstanding the private sector’s needs. The
discouraging effect of the cost of training on thewillingness of private companies to hire Qataris
must be considered. Mechanisms, such as on-thejob training opportunities, will be put in place tofacilitate skills transfers between high-skilled foreign employees and promising Qataris.
• Expand access to vocational training to improve
the skills of the new entrants at different education levels and for more disadvantaged groups.
A vocational training programme should beavailable for Qatari youth, particularly the
unemployed, women, people with disabilities
and other disadvantaged groups, to promote
their fuller labour market participation. Training will be diversified in close collaboration
with other skills-upgrading programmes andwith public and private sector employees. The
programme will be based on an assessment of
the available domestic supply of expertise, as
well as of the skills needed in the market.
• Strengthen leadership skills in the private andpublic sectors so that Qataris are a driving
force in the country. Qataris who show interest and aptitude in holding senior positions will
receive the tools to develop strong and effective
leadership through a more coordinated skills
training programme.

4

Since 2001 labour force participation has risen
rapidly among Qatari women, but levels are still
well below those in more developed countries (figure 4.17). Women are even more reluctant thanmen to enter private sector employment, mainly
because of cultural and working environment factors. Public sector employment is better paid andrewarded than private sector work.
Comprehensive programme for private sector
participation of Qataris

To achieve this outcome, the government will:• Establish an entrepreneurship initiative targeting youth and Qatari women. The initiative, building on the experience of the Rhouda
Centre and Enterprise Qatar, will study barriers to entrepreneurship, introduce a businessplan competition and encourage internships
in domestic, regional and international enterprises. A comprehensive programme is needed to attract Qatari youth to entrepreneurship.
Internships and business plan competitions
can provide guidance and augment interest in
entrepreneurship.
• Lower attitudinal barriers to women’s employment in general and in private companies in particular. The government will conduct a study to
explore the barriers to Qatari women’s employTarget
ment and to provide incentives to employers in• Increase the labour force participation rate ofindustries preferred by Qatari women.
Qatari men and women ages 20–59 with a sec- • Reduce differentials in compensation between
ondary education or below.
the public and private sectors. Various options
could be considered, such as increasing employment and benefit packages for Qatari employIncentivizing Qatari private sector
ees in the private sector. The same social benemployment
efits, including land and housing entitlements,
could be provided to Qataris in the public and
Qatar’s private sector constitutes a small share ofprivate sectors. Costs would be low because
the economy but has a big profile in employment­
few Qataris work in the private sector, and one—­employing almost 80% of the workforce inmajor barrier to private sector employment
2009. Only 5% of Qataris work in the private secwould be removed. Another option would be
tor, well short of the 15% target for 2016. Of thefor the government to incentivize private com87% of Qataris employed in the public sector, 71%
panies to hire Qataris by subsidizing training
work in government administration and 16% incosts, though the amount of such subsidies­government-owned companies.
would need to be carefully determined and theeffects monitored. A study will be conducted
Qatari entrepreneurship is also limited. Only
to determine which options best meet Qatar’s
2% of Qataris manage and invest in their own
needs.
businesses.
Fostering a capable and motivated workforce

151

Figure 4.17

Labour force participation rates of Qatari women have risen rapidly but remain below those in
selected developed countries

Labour force participation (%)
100

75

50
Selected developed
countries, 2008
25

Qataris, 2009
Qataris, 2001

0
15–19

20–24

25–29

30–34

35–39

40–44

45–49

50–54

55–59

60–64

Age group
Source: ILO, Economically Active Population Estimates and Projections, 5th edition (2009).

Target• Increase the proportion of Qataris in the private sector from 5% to 15%.

Boosting labour force productivity
Qatar aims to move towards a high-productivity
labour force that is adequately rewarded to encourage high rates of participation by Qataris. Productivity will be a critical driver of Qatar’s transition
from a hydrocarbon-based economy to a knowledge economy. More use of high-skilled labour andmore capital investment by firms will support thetransition to more technologically advanced methods of production and higher labour productivity.
Labour force productivity (growth of output per
worker) in Qatar compares well with benchmark
countries in knowledge-intensive sectors, but isbelow them in labour-intensive sectors (figure 4.18).
Further, overall labour productivity has been declining in recent years. Employers have taken full advantage of an open-door immigration policy that makes152

Qatar National Development Strategy 2011–2016

an almost inexhaustible supply of unskilled and semiskilled labour available at international wage rates.
This has undermined incentives for investment
in capital equipment and the use of more highly
skilled labour, which would reduce overall demand.
Without reducing the supply of low-cost workers or
increasing the attractiveness of capital investments
and high-skilled labour, the economy will struggle
to reach its economic diversification aspirations.
Labour productivity strategy

To achieve this outcome, the government will:• Improve the attractiveness of high-skilled
labour to employers, by making employers pay
the costs of unskilled labour, including adopting compulsory health insurance and setting
minimum wages. Other labour-importing
countries are using policy instruments to control the entry of expatriate workers.
• Improve access to capital, by reducing capitalcosts through subsidies or targeted lending
programmes.

chapter

4

Figure 4.18 Productivity in selected sectors in Qatar compares well with that in benchmark countries, but notin construction and services, 2009
Qatar

Value added (purchasing power parity US$ per employee, thousands)

NorwaySingapore

300

260

223

200

201

129
110

100

111
95
83

85

81

71

60
47

40
15

0
Finance andreal estateTransport andtelecommunications

Manufacturing

Trade andhospitality

Construction

Source: IMF database (2010); Statbank Norway (2010); Statistics Singapore (2010).

• Prepare a communications and change management plan to ensure buy-in from all stakeholders. The communications plan will allow
employers and expatriate workers to prepare
for the changes, smoothing the economic transition and supporting faster improvement inlabour productivity. It is especially importantthat the plan address employer concerns about
the introduction of levies or a points system.
Target• Improve Qatar’s global ranking in labour productivity from 35th to 29th.

Attracting and retaining high-quality
expatriate talent
The transition to a more diversified economy
requires more high-skilled labour and less lowskilled labour (figure 4.19). Due to the size of
Qatar’s economy relative to its population, a significant share of high-skilled workers will have to
be expatriates. QNV 2030 advocates attracting andretaining the proper mix of skills, with appropriate incentives and institutional arrangements for
ensuring the rights and safety of expatriate labour.
Qatar has attracted low-skilled labour for its infrastructure boom, but requirements differ for attracting and retaining high-skilled labour. Employers
identify recruiting and retaining skilled labour asa constraint to doing business, in part because ofregulations and some restrictive employment practices. Many issues arise from limitations imposedby employment contracts governed by the 2009
Law on Human Resources Administration. Turnover is substantial among high-skilled labour, especially in the health and education sectors.
The rising proportion of expatriate workers in thepast decade has created considerable risks, including to the economy, should a major crisis force
expatriates to leave.
In order to satisfy the demand for skilled expatriate
workers, Qatar needs to create incentives, throughFostering a capable and motivated workforce

153

Figure 4.19 Qatar needs to shift its employment distribution towards a higher share of skilled labour, 2008 (%)
Qatari
Qatar
United Arab Emirates
FranceDeveloped countries

GermanyJapan
NorwaySingapore
SwedenUnited Kingdom
United States
Average
0

25

50

75

100

Distribution of labour by skill
Unskilled

Semiskilled

SkilledHigh-skilled

Source: ILO, LABORSTA, Labour Statistics Database (2008).

improved working and living environments, especially the provision of appropriate schooling, toattract and retain the right mix of skills.
Comprehensive programme for recruitment andretention of expatriates

To achieve this outcome, the government will:• Implement a recruitment and retention programme, including a review and revision as
may be necessary, of Qatar’s sponsorship system. The programme will incorporate perspectives from employers and employees, including an evaluation of the 2009 Law on Human
Resources Administration. An intersectoral
coordinating body will connect expatriates andpublic and private institutions and respond toconcerns. Qatar will consider a programme ofpermanent residency for expatriates who meet
predetermined criteria. It will also establish a
tribunal resolving labour disputes.
Legal and regulatory support for labour rights,
including passing new laws and signing international conventions, will be important for dealing154

Qatar National Development Strategy 2011–2016

with labour rights issues, such as occupationalsafety working conditions and access to the legal
system. Improving labour rights will not only benefit employees but will also enhance Qatar’s global image as a leading and progressive nation.
Targets• Increase the proportion of high-skilled foreignlabour from 17% to 23%.
• Increase the number of International Labour
Office conventions signed from 6 to 20.

Nurturing and managing humanresources
Making headway on the transition towards a knowledge economy requires changes in employment
patterns. The large projected decrease in construction jobs (from 44% of employment in 2009 to 27%
in 2016), along with other anticipated changes,
will need to be addressed by national institutionaland regulatory bodies. The 2009 Law on Human
Resources Administration calls for programmes
to support labour force planning. Education andtraining programmes must meet the needs of thechapterworkplace. There are strong positive returns associated with an additional year of postsecondary education, for example, but Qataris often do not pursue diploma or degree courses. While this could be
due to an underestimation of the returns to education, increasing the realized returns should encourage more Qataris to pursue a higher education.
Human Resources Master Plan for identified sectors

To achieve this outcome, the government will:• Coordinate an annual training and development
plan for the public sector, through the General
Secretariat of the Council of Ministers, that callson government entities to structure staffing inaccord with actual needs. This requires a forward looking perspective on the employment
needs of both Qataris and expatriates.
• Prepare a Human Resources Master Plan tocoordinate the needs of the economy, government strategy and the labour market, which has
become more diversified, and to inform stakeholders of the direction in which the labour
force is moving. The master plan will identify
bottlenecks and define required labour force
skills and capabilities by sector, the type of higher education and training needed and the appropriate mix of expatriate workers for each sector. In defining the required number and typeof employees the government will combine theperspectives of the Ministry of Labour, industry
leaders (such as Qatar Petroleum) and government sectoral leaders (such as the Supreme Education Council) and publish an action plan for
Qatar’s future labour force requirements. Associated education and training requirements will
also be defined. The Master Plan will:• Delineate labour force needs by sector in
the short and medium term.
• Specify the education and training requirements to meet Qatari labour force needs.
• Describe the expatriate labour required by
the economy.
• Include a management strategy for maintaining the relevance of the Master Plan.
Target• Implement a comprehensive Human Resources
Master Plan.

4

Improving labour market flexibility
The rapid growth of Qatar’s economy has createdmany challenges for labour market policy and theinstitutions that formulate the policies.
An efficient labour market can reduce transaction
costs for employers and encourage talented workers to come to Qatar­— ­and remain there. Public
sector employment is regulated by the 2009 Law
on Human Resources Administration, which provides a range of benefits for Qataris, including
preferences in government hiring and various
allowances, bonuses, leave and severance benefits.
Qatari men start to retire from the labour force ataround age 40, much earlier than in most othercountries (figure 4.20). Among the contributing
factors are the generous public sector pension
system­—­accessible at reduced levels as early as age
40­—­and the availability of highly rewarding alternative sources of income (from business and property rents, for example).
Improved labour market legislation

To achieve this outcome, the government will:• Revise the 2009 Law on Human Resources
Administration to reduce the discouraging
effects on Qatari labour force participation andon the recruitment and retention of expatriates.
• Review the pension law with the aim of improving its efficiency and eliminating unintended
negative impacts on the labour force.
Target• Increase Qatari labour force participation rates
from 63% to 66% for men and from 36% to
42% for women.

Building the capacity of key labour
market stakeholders
Governance of the labour market needs to bestrengthened, and the Ministry of Labour would
benefit from increased capacities, including
some internal restructuring. Improved coordination mechanisms are needed between and within
authorities dealing with labour-related sectors.
Fostering a capable and motivated workforce

155

Figure 4.20 Qatari men start to retire from the labour force earlier than men in most other countries%
100
Selected developed
countries, 2008
75
Qataris, 2001
Qataris, 2009
50

25

0
15–19

20–24

25–29

30–34

35–39

40–44

45–49

50–54

55–59

60–64

Age group
Source: ILO, Economically Active Population Estimates and Projections, 5th edition (2009).

Labour market efficiency needs to rise, throughimproved capacity, coordination, legislation andregulations. Key aspects are motivating men tostay in the labour force longer by revising the2009 Law on Human Resources Administration,
to ensure that it achieves regulatory efficiencies;
improving education outcomes; reforming thepension law; improving the working environment
and increasing the capacity for strategic labour
market planning.
Increased capacity of key labour market
stakeholders

To achieve this outcome, the government will:• Increase the capacity of the main government stakeholders, improving their structure
and promoting more efficient organization
through the interministerial body to coordinate labour market policies. Ensuring stronger
coordination requires considering the partnership between government agencies and the private sector.
156

Qatar National Development Strategy 2011–2016

Target• Strengthen the capacity of key market stakeholders and improve coordination between
them.

Strengthening evidence-based
policy-making
Labour market data, information and research
are essential for evidence-based decision-making.
However, Qatar lacks the comprehensive labour
market data and research needed for effective
labour policy-making. No single data source consolidates information on the labour market, so
stakeholders have difficulty accessing relevant
data. For example, the primary source of data on
the Qatari labour force is held by the Ministry ofLabour, that for the expatriate labour force by
the Ministry of Labour and that on public sector
employees by the Cabinet Office. These databasesneed to be linked to better inform labour market
policy. Sharing labour market databases and information will require improved coordination amongchapterthe many stakeholders in Qatar’s labour market
policies (figure 4.21).
A national labour market information system
could build on parallel efforts already taking place
in Qatar. The most extensive source of labour market data is the Qatar Statistics Authority’s annual Labour Force Survey. The survey is a rich data
source but does not capture certain features of thelabour market, such as the participation of Qataris
in income-generating activities.
Labour market information system

To achieve this outcome, the government will:• Develop a labour market information systemon a user-friendly electronic platform to aid
labour policy-makers. The system will complement other related projects, especially on the4

proposed Human Resources Master Plan. It will
identify the variables needed by different parties, establish a methodology for sharing information, provide guidelines to ensure the privacy of individual data records, and facilitate
operational policy research on factors affecting
the labour market.
Target• Develop and implement a comprehensive
labour market data system for use by relevant
stakeholders.

Enhancing employment and career
counselling services
Modern employment services are critical for a flexible and efficient labour market. The only labour
intermediation service in Qatar, provided by the

Figure 4.21 Key stakeholders in Qatar’s labour market governance and links
General Secretariat of theCouncil of Ministers

Ministry of Labour
Issues and implements laws and policies
Monitors and inspects worksites to enforce
legislation
Decides on work visas in the PermanentCommittee for Employment Studies
Monitors companies to ensure employment
for Qataris
Collects and keeps data on the labour force

OthersInstitute of Administrative Development
Public sector capacity building
General Secretariat of Development Planning
Macro planning and coordination
Supreme Council of Health
Enforces occupational safety
General Retirement and Social Insurance
Authority
Pension-related policies
Qatar Petroleum and Qatar Foundation
Have their own human resources policies,
standards and monitoring mechanisms
Qatar Chamber of Commerce and Industry

Issues and implements laws and policies
2009 Law of Human Resources
Administration
Monitors government ministries anddepartments to ensure implementation of
the Law of Human Resources
Administration by getting relevant reports
Collects and keeps data on the workforce
within the government

Labour market
governanceand links

Ministry of Interior
Decides on work visas in the PermanentCommittee for Employment Studies
Collects and keeps data on the workforce
Decides on, regulates and monitors thenationality quotas
Issues exit visas

Supreme Education Council
Supply of graduates
Capacity building through technical andvocational training

Fostering a capable and motivated workforce

157

Ministry of Labour, enables unemployed Qataris
to register at the ministry’s manpower department.
Information on training and employment opportunities for job seekers, especially for young
adults, and career counselling and mentorshipare not readily available. Qatari youth are not wellinformed about the high economic returns topost-secondary education, and few continue theireducation beyond the secondary level (table 4.3).
An awareness campaign for Qatari youth andtheir parents on the benefits of higher educationis needed.
The low levels of post-secondary education may
be partly responsible for poor schooling choices.
International studies also suggest that a failure toprogress to higher levels of schooling may be dueto the lack of the decision-making skills that more
schooling helps improve.
Special needs groups, particularly women, theunemployed and people with disabilities, are notsufficiently supported by current labour market
institutions and employment services.
Effective labour intermediation system for Qataris

To achieve this outcome, the government will:• Design and implement a system of labour intermediation services. The Ministry of Labour has
primary regulatory and policy-making responsibilities. Operational intermediation services could therefore be undertaken by a broader range of stakeholders. The government will
Table 4.3

select the model of ownership of these labour
intermediation companies and the design ofthe services to be provided.
• Launch an awareness campaign on the highreturns to tertiary education and the availability of career counselling services, including
through the use of electronic media.
Target• Establish labour intermediation services.

Implementation challenges
Achieving Qatar’s ambitious development goals
requires investing in the education and skills of
the Qatari people in line with industry needs. It
also requires introducing the necessary labour
market reforms to achieve a world-class talentbase. And because not all young Qataris have thecapacity, or ambition, to pursue higher educationand seek professional, managerial and leadership positions, Qatar will need to meet substantial
demand for technical and vocational workers byproviding appropriate pathways to technical education and vocational training.
The Ministry of Labour oversees labour issues forboth the Qatari and the expatriate labour forces. However, many other public and private stakeholders have a big interest in labour market policy.
Participation by relevant private sector institutions
and civil society will be important for successfully implementing the sector strategy and achieving the goals of QNV 2030. Stakeholders will need
to be kept informed of progress, for example

Benchmark marginal rates of return for Qataris are high at the post-secondary level (%)
Education level

Male

Primary (6 years)a

0.7

Intermediate (9 years)

3.1

Secondary (12 years)

5.2

Diploma (14 years)b

13.8

University (16 years)b

10.8

}

a. Accumulated years of schooling.
b. Compared with income at the secondary level.
Note: Data may be interpreted to mean the percentage of extra income earned as a result of one more year of schooling at the given level.

158

Qatar National Development Strategy 2011–2016

Female
2.5
14.6
8.7

Figure 4.22 A capable and motivated workforce is both a goal and an enabler to achieve the aspirations of
Qatar National Vision 2030

Other sectors as enablers for labour market sector

Reduce rent-seeking
opportunities

Enforceoccupationalsafety standards

Educationand training

Capable andmotivated
workforce

Safety andsecurity

Support balance of women’sroles in labour force
and family

Goal

Sustainableeconomic
prosperity

Family cohesion
and women’s
empowerment

Provide right skills
and competencies

Healthcare

Environmental
sustainability

Promote healthy lifestyles
among the labour force

Improve living
environment to attract
higher skilled workers

EnablerLabour market sector as an enabler for other sectors

Ensure higher
labour productivity

Reduce relianceon foreign labour

Safety andsecurity

Inculcate values andwork ethics; effective
participation of Qatari
women in the labour force

Sustainableeconomic
prosperity

Educationand training

Capable andmotivated
workforce

Family cohesion
and women’s
empowerment

Environmental
sustainability

Identify needs of labour market
and increase capacities ofteaching and scientific researchprofessionals

Healthcare

Enhance capacities
throughout system;
Qatari healthcare
professionals

Provide skills andknowledge for managing
the environment

159

through e-newsletters and a dedicated website.
Engagement should include workshops, seminars
and conferences.
To lead implementation of the sector strategy, theMinistry of Labour will need to build its technical capacity by recruiting labour market experts.
Capacity enhancements can also be achieved
through knowledge sharing and networking withexperts at the national, regional and international
levels. In addition, ministry staff will need training in project management and implementation
to build capacity.

Fostering cross-sectoral links
Successfully implementing the strategy is critical
not only to developing human capital and increasing labour market efficiency, but also to achieving
other QNV 2030 goals (figure 4.22). Investing inquality education and training, including lifelong
learning opportunities and changing mindsets, will
help Qatar achieve its chosen development path.

160

Qatar National Development Strategy 2011–2016

In particular, education and labour force participation are highly correlated, with higher education levels associated with higher participation
rates. To achieve Qatar’s labour market goals, theeducation and training system must be relevant to
the needs of the workplace. Increasing the realized
returns to education and training could encourage Qataris to stay in school longer and improvetheir educational performance and attainment.
Information on training and employment opportunities for job seekers, especially for young adults,
and career counselling and mentor­ship need to be
more readily available, both to increase educationand training and to better inform Qatari youth
about the economic returns to post-secondary
education.
The links between education, training andemployment policies require that policy-making
and decision-making in the sectors also be linked.
Appropriate institutional arrangements must be
in place to provide policy guidance for the labour
market and for education and training.

Chapter 5
An integrated approach tosound social development

5

An integrated approach tosound social development
Qatar National Vision 2030 (QNV 2030) builds on a society that promotes
justice, benevolence and equality. It embodies the principles of Qatar’s
Permanent Constitution, which protects public and personal freedoms;
promotes moral and religious values; safeguards traditions and cultural identity;
and guarantees security, stability and equal opportunity. Social development
requires broad participation of all citizens and the government, working together
to fulfil the basic rights of individuals and the needs of the state.

Many countries link social policies to social services, such as education, healthcare, law enforcement and assistance to the needy. Qatar does thesame—­but the government extends the definition of social policy beyond the provision of basic
amenities and services. As stated in QNV 2030, thecountry promotes social tolerance, benevolence,
constructive dialogue and openness towards othercultures. Most important, it seeks to ensure justiceand equality for all men, women and children of
current and future generations. By broadening
the traditional parameters of social policy, Qatar
is able to enhance the government’s role in fostering a caring and cohesive society.
Qatar’s social policy, therefore, may be definedas the activities of government and civil organizations that together promote social and humandevelopment in a welfare society that is economically and environmentally sustainable. This definition underscores the interrelated links of the QNV2030 pillars while ensuring that all elements of thenational vision are aligned and moving towards
common goals, both across all pillars of society
and within each pillar. Given Qatar’s rapid socialand economic transformation, promoting shared
responsibilities for common goals through integrated social development is critical to maintaining stability and cohesion.
162

Qatar’s social development pillar encompasses a wide range of stakeholders in an expansive
manner­—­from childhood to old age, from earlyeducation to retirement, from private family life
to international relations. It encompasses the government’s responsibility to its citizens and citizens’
responsibility to their families and communities.
A progressive and modern social policy, therefore,
must help individuals deal with the requirementsof the time in which they live. The modern era in
Qatar is a period of incredible growth and opportunity but also of unprecedented social change.
The government will need effective measures topromote tolerance and maintain compassionate
values as the country’s population grows and diversifies, as a new generation ages in a more open
society and as private and international interests
invest in Qatar’s future.
An integrated social development policy must
always take into account the well-being of Qatar
and its citizens. By building a safe, secure and stable society through strong and effective government and family institutions, Qatar will achieve
the QNV 2030 outcomes of effective social careand protection, sound social structure and international cooperation. The National Development
Strategy 2011–2016 will lay the foundation forthese goals with a social development strategy thatchapterseeks to enhance individual well-being withoutcompromising Qatar’s cultural identity. This strategy will integrate the following elements:• Establishing strong cohesive families that carefor their members and maintain moral andreligious values and humanitarian ideals.
• Establishing an effective social protection system for all Qataris that ensures their civilrights, values their contribution in society andensures an adequate income to maintain ahealthy and dignified life.
• Establishing a secure and stable society operating on the principles of justice, equality andthe rule of law.
• Increasing active lifestyle practices among the
population to improve health outcomes andto use sports participation to forge friendships and improve relations between countries
worldwide.
• Establishing Qatar as a hub of Arab culture
through a distinctive national identity, strong
community cohesion and a vibrant and creative
cultural sector.
This cohesive approach to a social development
strategy will cut across all elements of society
while enabling related economic, environmental
and human development goals. It will preserveand enhance the quality of service expected byindividuals and businesses, be dictated by proper adherence to cultural values and offer sustainable solutions to targeted goals for 2016 andbeyond.
Qatar’s social development policy requires coordinated and comprehensive integration of five interrelated social sectors. The aim is to bring different
types of programmes, target groups and modes ofprovision under a single social development policy
framework. An integrated approach to wide-ranging objectives will maximize outcomes and ensure
better coordination between different stakeholders working towards a common goal.
Given the nature of the social development projects to be implemented under the National Development Strategy 2011–2016, close cooperation

5

between all segments of government and society
is imperative. Successfully involving the numerous
ministries, government agencies and civil society
organizations will be a key success factor.
By creating an enabling environment for an inclusive society, including digital inclusiveness, thatoffers fair employment opportunities to everyone,such as the disadvantaged and vulnerable, thegovernment is also enriching the labour force. By
providing debt-burdened families with the tools
to better manage their finances, the governmentis also strengthening the economy. By developing
programmes to promote participation in sports
and athletic activity, the government is contributing to a stronger, healthier population and, eventually, lower healthcare costs. By fostering a creative learning environment through enhanced
culture and arts programmes, the government isbuilding a stronger education system. All these
activities will make for a comprehensive social
development policy, but they will also enable effective outcomes for Qatar’s human development,
economic and environment goals.
The fundamental elements of Qatar’s national vision for social development revolve arounda sound social structure that guarantees social
care and protection for all members of society.
Only through the kind of cross-sectoral framework identified above can those goals be achieved,since all segments of society must work together
for the betterment of everyone’s well-being. By
ensuring the individual well-being of all Qataris,
whether through increased career opportunities
for women or through stronger occupational safety standards, the government can expand the traditional role of social policy to incorporate equity
and justice as identifiable outcomes across multiple sectors.
In forming a comprehensive action plan for immediate social development, the government is keenly aware of the consideration that must be given
to long-term concerns alongside more immediate goals. Many of the targets presented for the
National Development Strategy 2011–2016 will be
An integrated approach to sound social development

163

implemented with the dual purpose of addressing
current challenges facing Qatar while laying the
groundwork for sustained excellence. Resources,
programmes and commitments made now must
not infringe on the well-being of future generations. Rather, current initiatives will aim to create
a better society through addition not subtraction­,­by building social equity and increasing social capital without reducing the country’s resources ordiminishing its historical heritage.
This mission of sustaining a fair and just use ofresources over multiple generations supports all
social development goals for the national vision164

Qatar National Development Strategy 2011–2016

and beyond as well as the more immediate goals
for 2011–2016.
Taken together, these objectives form an integrated blueprint to realizing the QNV 2030 ideal forsocial development­— ­a safe, secure and caring
society built on a sound social structure of effective institutions and cohesive families. Taken individually, these goals offer separate but related
frameworks for identifying challenges, establishing baselines and proposing solutions to enhance
the well-being of all Qataris and to provide clear
sectoral targets for the National Development
Strategy 2011–2016.

chapter5

Family cohesion: the core of Qatari society
Qatar will preserve “a strong and coherent family thatenjoys support, care and social protection. Women willassume a significant role in all spheres of life, especiallythrough participating in economic and political decision
making.”­— ­Qatar National Vision 2030
The family is the basis of Qatari society. It is thefoundation on which rest all aspects of Qatar’ssocial architecture. The Permanent Constitution
protects the family, supports its structure, strengthens its ties and protects maternity, childhood andold age. Similarly, QNV 2030 aims to preservestrong and cohesive families as the fundamental
element of the country’s long-term social development strategy. The Qatari family is the first andmost influential educator and inculcator of values.
The well-being of families is therefore crucial to asound social structure, and it is necessary to build
an effective social care and protection system. A
dedicated commitment to marriage, a keen understanding of personal responsibility, an appreciation of traditional values, a strong bond between
parent and child, a sense of mutual respect among
all men, women and children­— ­these are vitalcharacteristics of healthy, cohesive families.
Qatar’s strong Arab and Muslim identity pervades
all aspects of family life and continues to informthe family structure through extended household
makeup, traditional kinship ties, ethnic affiliations
and a tribal authority that determines the behaviour of sons and daughters. But changes brought on
by external pressures and internal evolutions are
rapidly altering the family dynamic. Some of thesechanges are undesirable, leading to rising divorce
rates and increased domestic violence. But manychanges point to a society that is expanding its cultural imprint while staying true to its Arab identity.
Women are central to the evolving Qatari family.
Even as they maintain an adherence to valuable
traditions, women are adapting to the impactsof modernization. Through their nurturing of
language, codes of ethics, behavioural patterns,
value systems and religious beliefs, women play

an indispensable role in upholding traditionalfamilial and cultural values. They also exemplify
the new opportunities available to all Qataris as aresult of the country’s rapid economic growth andsocial transition. As Qatar implements a sustainable and integrated social development policy overthe next six years, it is critical to ensure that thepolicy moves outward, not inward, and that it isrooted in the core of Qatari society­—­families.
The family cohesion and women’s empowerment
sector of the National Development Strategy 2011–2016 social development pillar thus supports astrong family structure that cares for its members
and maintains moral and religious values andhumanitarian ideals. At the same time, the government will show an increased dedication to enhance
women’s capacities and empower them to participate more fully in the political and economic
spheres. This obligation to Qatari families, womenand the national vision will be carried out in the
National Development Strategy 2011–2016 through8 overarching outcomes and 12 priority familycohesion projects in which the government will:• Strengthen the Qatari family as a pillar of society.
• Strengthen parental responsibility and reduce
dependence on domestic helpers.
• Reduce family violence and establish a protection and support system for victims.
• Provide support systems for families with special circumstances, such as the families of people with disabilities and juvenile delinquents.
• Reduce economic and social vulnerability and improve Qatari families’ financial management skills.
• Increase child well-being, child welfare andchild protection.
• Improve support for working families, particularly for women.
• Increase the number of women in leadershipand political decision-making positions.
• Reduce stereotyping of women’s roles andresponsibilities.
All family-related projects targeted for the development strategy are closely interrelated. It is also
Family cohesion: the core of Qatari society165supported by the National Family Strategy 2008–2013. They are intended to strengthen Qatar’s
long-term social care and protection outlook andto embody the common social development themeof increased well-being­—­the stronger the family
structure’s well-being, the stronger Qatar’s social
core becomes for future generations.

Reinforcing family cohesion
In the past decade or so Qatar has experienced
rapid development progress. Yet most Qatarihouseholds remain relatively large (figure 5.1).
More than 80% of households comprise 5 or more
people, and 20% comprise 10 or more. Two-­personhouseholds are rare, and one-person households
are even rarer. But some of the more traditional
aspects of family life are changing.
Two of the most prominent trends are the sharply rising proportion of Qatari women who nevermarry and steadily increasing divorce rates, which
are particularly high among couples married fora short time. A long-term trend that levelled andslightly reversed after 2005 is the rising age at first
Figure 5.1 Qatari households remain relatively large
Thousands of households
5
17

4
13

14

11

3

9

2

8

7

7

6

1

0

5

3
1

1

2

3

4

5

6

7

8

9

Number of people in householda

10 11–12 13 ormore

Note: Values in bars are percent of all households.
a. Excludes domestic workers.

166

Qatar National Development Strategy 2011–2016

marriage among Qatari men and women. On average, men marry at age 27, women at age 24.
Marriage is the foundation leading to the formation of Qatari families. In Qatari society premarital relationships are prohibited, and most marriages are arranged by parents according to Islamic
Sharia, culture and traditions. A majority of men
and 60% of women have married by ages 25–29;
only 1% of men and 6% of women marry before
age 20. Based on the information collected byvarious family support institutions, three leading
reasons for these delays include the high cost of
wedding ceremonies, higher selectivity in suitable
marriage partners and, for men, easier access toillicit sexual relationships.
With the later ages at which Qatari women are
marrying for the first time, they are having theirfirst child at a later age than in the past. Qatari
women are also having fewer children than they
did a generation ago (figure 5.2).
The number of divorces per 1,000 married Qataris
increased from 17.4 in 1995 to 19.2 in 2009 (figure5.3), especially among younger couples. In 2009,
61% of divorces took place within the first five yearsof marriage, and 29% of divorces happened before
the consummation of the marriage. Knowledge
pertaining to the impact of divorce on the Qatarifamily and on children’s well-being is limited, but
empirical evidence shows that divorced household
heads are more than twice as likely as marriedhousehold heads to live on a relatively low income.
Ensuring the continuity of cohesive families andlarge households is crucial to the national vision,
since families are the core of Qatari society andhave a moral and religious obligation to care for
their members. The government will strengthen family cohesion by developing a programme
to focus on solidifying the role of marriage andfamily ties within Qatari society through marriage
counselling and by increasing support to divorcées. The government will expand the social safety
net for those in need of extra help, even as efforts
are made to reduce the number of Qatari couples

chapter5

Figure 5.2 Qatari women are having fewer children than they did a generation ago
Total fertility rate (births per woman)
6
5.7

5

5.1
4.6

4.5

4

4.5

4.5

4.4

4.3

4.2

4.1

4.0

3.9

2007

2008

2009

3
2
1
0
1990

1995

2000

2001

2002

2003

2004

2005

2006

Figure 5.3 The divorce rate per 1,000 married Qataris rose from 17.4 in 1995 to 19.2 in 2009
Number of divorces

Divorces per 1,000 married Qataris

1,000

20
19.8

19.2

17.4

750

15
704

549

500

10

343

250

5

0

0
1995

1996

1997

1998

1999

2000

2001

2002

2003

2004

2005

2006

2007

2008

2009

Note: Divorce numbers are three-year moving averages. The denominators for the rates for years other than 2001, 2004 and 2006–2008 are estimates.

seeking divorce. These efforts are also being supported by Qatar’s 2009 population policy.
A programme to strengthen marriage and family ties

All Qatari couples will be required to attend andcomplete a series of pre-marriage counsellingand education programmes on the obligationsof marriage and importance of family formation. The programmes will act as a precondition
for the receipt of the marriage fund that the government provides Qatari couples. The premaritalcourses will also support efforts to increase couples’ awareness of potential problems that face
Family cohesion: the core of Qatari society167

married people. In Malaysia a similar programme
requires all Muslim couples to pass a set of courses on marriage prior to receiving a certificate ofcompletion, which is used as a licence to authorize the marriage.
Since the development of Qatari families is also
governed by legislation, in particular Law 22 of2006, laws relating to the family will be reviewed
and revised to reflect societal changes in Qatar
and international commitments made under theUnited Nations Convention for the Elimination ofDiscrimination Against Women. Such measures
have been used by other countries in the region
to improve family cohesion. In addition, a specialist media unit will be developed within the Qatar
Media Corporation to support key messages on
the importance of the family, and a new subject
on marriage and family ties will be included in theacademic curriculum.
Targets• Implement a programme to strengthen familycohesion, with at least four projects completed.
• Reduce the proportion of Qatari women who
are unmarried by ages 30–34 by 15%.
A system of marriage counselling and support for
divorcées

The services of the Family Counselling Centre will
be expanded throughout Qatar to provide strategic intervention in an attempt to reduce divorce
rates, while the government will aid the establishment of private counselling services. Efforts will
also be made to expand the number of psychological and counselling specialists in the area.
More access to highly trained specialists will help
couples proactively address difficult issues before
deciding to separate. These issues include social
inequality of spouses, behavioural deviations, relationships away from marriage, negligence of marital and family responsibilities, bullying, mistreatment, domestic violence and financial pressures.
The government will take steps to strengthen
the social safety net for those facing divorce,
168

Qatar National Development Strategy 2011–2016

especially women. Divorced women are currently
eligible for monthly benefits (QR 2,250) from the
Ministry of Social Affairs, but to further reduce
the effects of divorce, the government will create an alimony fund as an additional safety net
for women who lack financial support from theirex-husbands.
Target• Reduce the number of Qatari couples seeking
divorce before consummation by 20% and after
consummation by 40%.

Strengthening parental roles
Beyond changing patterns of family formationand dissolution, there are concerns about the
expanded role of domestic helpers in Qatarihouseholds, particularly those engaged in childcare. Most have limited education and difficulties
communicating in Arabic. Heavy dependence on
domestic helpers is leading to weakened family
ties, affecting traditional family values and childwell-being.
This reality raises three key impact concerns:
weakened bonds between parent and child,adverse impact on child safety and development,
and negative effects on Qatari heritage and culture. The government will strengthen parental roles through a social programme intended
to change attitudes and strengthen parent-childrelationships, through enhanced early childhood
education on the importance of meeting family
responsibilities and through stronger regulations
governing the recruitment and management ofdomestic helpers.
A programme to enhance parent-childrelationships

This programme will raise awareness of the potential dangers to family cohesion from increased
reliance on domestic helpers. The key messages
will focus on the adverse effects of heavy dependence on domestic helpers and the need to share
responsibility among family members, taking

chapter5

into account that each Qatari nuclear family has
four levels of ties that bind them to an extended
family. In addition, home science courses will be
included in the school curriculum. These courses
will extend beyond the instruction of chores suchas cooking and sewing; they will also teach children how to share family responsibilities and how
to properly look after their family and homes.

particularly in relation to clearer demarcation of
responsibilities and duties. In addition, the government will establish a support centre for domestic workers, including an office and helpline toreport abuse and exploitation. An induction programme intended to educate domestic workers on
Qatari culture will provide additional support todomestic helpers.

Target• Reduce by half the average number of domestic
helpers per household.

Target• Put in place regulatory guidelines on recruitment and management of domestic helpers.

A system to regulate domestic helpers

Reducing domestic violence

The government will devise a set of regulations,
including standards and conditions, to better manage the recruitment and employment of domestic
helpers. This way forward will be supported by
new legislation covering the legal rights of domestic workers. Inclusion of domestic workers into
national labour laws is already being explored in
Kuwait, Saudi Arabia and the United Arab Emirates. Stronger regulations will improve the relationship between the family and domestic helpers,

A primary responsibility of any family member is
to contribute to a caring, supportive and safe environment for everyone. But since 2004 Qatar has
seen a significant jump in the number of reported domestic violence incidents against womenand children (figure 5.4). Such violence has devastating consequences not only for the victims but
also for society as a whole. Gender-based violence,
which includes physical, emotional and sexual
abuse, has economic and social costs that directly

Figure 5.4 Domestic violence cases are prevalent in Qatar
Cases of children and women referred to
the Qatar Foundation for Child and Woman
Protection since 2004 . . .

. . . supported by other studies on Qatar

Number of cases
600

459

Children (total 1,204)
Women (total 1,185)

400
190

145

111

154

299
266

200

259

197
145
139

0

In 2007 a SCFA study surveyed 2,778 citizen and noncitizen
female students:• 63% reported they had been victims of physical abuse.
• 52 individuals reported cases of “strong violence” (such asrape).
• 120 individuals reported they had been victims of sexual
harassment.
A 2008 study surveyed more than 1,000 married Qatari
women:• Consistent with earlier studies—an estimated 28% of married
women reported having experienced domestic violence.
• Domestic violence was most frequently carried out by
husbands (the main source), brothers or fathers.

25

2004

2005

2006

2007

2008

2009

Family cohesion: the core of Qatari society169

undermine Qatar’s goal of providing social careand protection for all its citizens. Domestic violence is currently not classified as an offence
under criminal law, although there is a range oflegislation that does not condone violence against
women and children.
Qatar faces two primary challenges in reducing
domestic violence: the lack of a systematic datacollection system and incomplete investigationsof suspected cases of abuse or neglect. Formal
reporting of violence in the family is culturally unacceptable, and victims tend not to reportbecause of the fear of shame in a relatively small
society. Additionally, a lack of awareness of rights
often prevents family members from disclosing
violence or seeking help. There is also fear ofrepercussions in terms of the social, legal andpolitical consequences for victims and theirfamilies.
The government will reduce domestic violence by
establishing a comprehensive protection systemthat ensures privacy, protection and support for
victims as well as anyone reporting violent incidents, establish help centres, streamline data collection methods and, most important, criminalize
domestic violence. In addition, an early detection
mechanism for child abuse and neglect will be
implemented in schools.
A comprehensive domestic violence protection
systemWith no process for tackling domestic violence andchild protection issues currently in operation, afull-scale programme will be developed, startingwith the review and adoption of legislation to criminalize domestic violence and the creation of follow-up policies (in coordination with law enforcement) to protect victims. Current methods of datacollection will be reviewed to consolidate procedures and establish a formal reporting and monitoring system that guarantees confidentiality. And
formalized legal protection for those who reportcases of violence to authorities will be established.

170

Qatar National Development Strategy 2011–2016

In addition to legal initiatives, efforts will be madeto establish a broader network of community andsocial support services, including multiple onestop centres to provide protection assistance, acommunity-based awareness programme to callmore attention to prevention methods, a thoroughreview of current shelters and facilities to ensure
they meet international best practices and standards, and the creation of family-friendly police
units and an emergency hotline to improve thereporting culture.
Target• Put in place a comprehensive domestic violenceprotection system.
An early detection system for child abuse andneglect

A formal child protection programme is outlined
under the draft child law, which will ensure that
Qatar meets its obligations under the United
Nations Convention for the Rights of the Child.
Additional efforts by Qatar’s Child Abuse Committee, which was initiated by the medical community and is currently operational, will be
encouraged, though an immediate agenda isalready in place. Those plans include the establishment of a data registry centre for child abuse
and neglect, child advocacy programmes, a public awareness campaign and improving the lines
of communication between hospitals and relevant authorities.
These activities will intersect with the holistic
approach to child well-being that is an additional
component to the family cohesion sector strategy
for the National Development Strategy 2011–2016.
This approach will be centred on developing amechanism to detect early child abuse and neglect
by increasing the number of social workers inschools, youth awareness programmes and school
hotlines to ease and encourage reporting.
Target• Install and operate an early detection mechanism for child abuse and neglect.

chapterSupporting families with special
circumstances
Qatar has a generous social protection system provided by multiple stakeholders, including the government, civil society organizations and the private
sector. However, some families face special circumstances that require additional social care. These
circumstances include caring for and protecting afamily member who faces challenges related to age,
health or social conditions, such as being elderly,
having a disability, having been in prison, being adrug addict or being a juvenile offender. The government will support families with special needs byincreasing the range of assistance facilities available to Qataris within their communities, improving
the focus of data collection to establish a stronger
evidence base, and reviewing and updating current
legislation to provide stronger legal protections.
Assistance to families that face special
circumstances

To address the additional problems of families
that face special circumstances, the range of support facilities available to Qataris within the community will be increased, the focus of data collection will be improved and relevant legislation will
be reviewed and updated if necessary. Families
will be able to receive informal support and assistance from community-based centres without fearof stigmatization. This positive model will alsobuild awareness of the difficulties faced by somefamilies and how they can be helped or how they
can support and help each other. The centres willtake the lead in establishing local civil society associations to provide additional support.
A review and revision of laws relating to the statusof children belonging to Qatari women married to
non-Qatari men will be undertaken to ensure that
all children receive the necessary essential services
to guarantee their well-being. And existing legislation relating to people with disabilities will becomprehensively enforced, including their inclusion in the workforce, which is a key part of thesocial protection sector strategy of the National

5

Development Strategy 2011–2016 social development pillar. Protection and support for people inneed and their families are vital measures of how
inclusive and caring a society truly is.
Target• Increase the number of facilities providing support for families facing special circumstancesfrom zero to three.

Reducing economic and social
vulnerability and improving financial
management
Qatar does not have a personal income tax or value
added sales tax, and a number of non­contributory
government transfer programmes exist, with beneficiaries ranging from disadvantaged groups to
newlyweds through the marriage fund. But threequarters of Qatari families are in debt, with mostburdened by large loans exceeding QR 250,000.
This statistic is linked to weak economic and social
empowerment of vulnerable families and a prevailing culture of extravagance and conspicuous consumption (figure 5.5). There is a weak financial
culture among families overall, and in some cases
this results in taking out loans without fully understanding the costs of repayment. Although Qatar
provides free healthcare and education, data suggest an increasing number of families are incurring debt to cover costs of private sector service providers. Vulnerable families, especially those in the
low-income category, will be more susceptible inthese conditions. Families likely to be affected arethose headed by women, especially divorced andwidowed women, families with retired and unemployed heads and families headed by employedpeople with lower education levels.
To reduce more severe, longer term financial security threats, especially among the vulnerable, thegovernment will support measures to improve thefinancial management practices of Qatari families through a programme to increase education,awareness and financial planning skills. Changing attitudes towards debt and promoting soundspending and investment practices will be critical
Family cohesion: the core of Qatari society

171

Figure 5.5 More financial responsibility and less indebtedness are needed
Increasing pressure from inflation andspending . . .

. . . aggravated by high levels of indebtedness
among Qatari households

Income and inflation

2001

2007

Average income (QR; nominal)

19,912

41,483

Average income (QR; real)

19,91227,000100

151Consumer price index(2000 = 100)

Basic goods and services

2001

2007

Residence, water, electricity

17.6%

29.3%

Transportation

16.5%

13.8%

Food and beverages

17.5%

11.2%

Income and expenditure

2001

2007

Average income (QR)

19,912

41,483

Average expenditure (QR)

22,36640,757to the financial well-being of current and future
generations.
Capacity, awareness and support for family
finances

A 2007 study covering a sample of 1,368 Qatari households
showed an increased focus on indebtedness due to pursuit oflifestyles potentially beyond their means:• Loans for speculation in the stock market reached QR
297,000 per household.
• Loans for entertainment, travelling and touring reached
QR 203,000 per household.
• The average value of a car loan was approximately
QR 111,000 per household.
Loans are also taken to pay for health and education
services, indicating a shift towards private sector
services due to changing socioeconomic conditions:• Loans for healthcare services reached QR 256,000 per
household even though healthcare is free in Qatar.
• Healthcare expenses probably cover payments for treatment
abroad.
• Loans for educational pursuits reached QR 167,000 per
household, most likely to cover students who did not benefit
from the student exchange system or government-provided
subsidies or scholarships.

expenditure­—­the government will enact a comprehensive health insurance system for families
and provide an education allowance or vouchers
for private education. These measures provide
cross-sectoral alignment with the National Development Strategy 2011–2016 human development
strategies as well.

A comprehensive, supportive approach to curb thedesire to live above one’s means will begin withawareness and counselling programmes as a pre- Targets
marriage requirement and will include an easi- • Reduce the number of Qatari families burdened by large loans (QR 250,000 or more).
ly accessible financial advisory service that offers
legal advice on loan rates and payments. A thor- • Halve the number of Qatari families in debt.
ough campaign against indebtedness will requirelegislative action, including setting limits on max- Adopting a holistic approach to childimum allowable loans based on an individual’s well-being
income. This will provide some level of protection for individuals and subsequently improve the A solid social structure depends on sustainablefinancial status of families by improving finan- health and education measures to strengthen its
cial management, reducing extravagant and non-­ future generations­— ­a key focus of the humannecessary expenses now being financed through development strategies for the National Developloans. Since data support the desire for Qataris ment Strategy 2011–2016. But the prominence
to seek private sector healthcare and education­ of health and education in QNV 2030 requires—­
t wo sources of potentially large financial careful, cross-sectoral considerations of Qatar’s
172

Qatar National Development Strategy 2011–2016

chapterinvestments in today’s children, including the crucial elements of children’s social development.
Though certain family-specific issues have alreadybeen identified, the government will adopt a holistic approach to child well-being as well. Althoughinternational child measures indicate Qatar is in a
fairly good position in relation to other countries
in the region, Qatari children face threats ranging
from health to education to risk-taking behaviours(figure 5.6).
Qatar has already taken major steps to strengthen
its commitment to children’s welfare, safety andhealth. The comprehensive draft child law will
ensure that Qatar complies with the most important piece of internationally accepted legislationin relation to children’s rights. But the National
Development Strategy 2011–2016 provides the government the opportunity to do more to enhance
the well-being of children, as recent data point5

to significant health problems in the next generation, such as vitamin deficiencies and obesity.
Other health risks come from kinship marriages,
which have led to increased rates of congenital
birth defects, and smoking and drug abuse. Smoking rates among children ages 13–15, for instance,are 13% for girls and 25% for boys.
A holistic approach to child well-being

Reversing negative trends and improving the quality of life of children will require a series of activities that work in unison across all sectors of government to provide a just, healthy quality of life
for Qatar’s current and future generations. This
work will also require changing behavioural attitudes and ensuring that personal pride and virtue are instilled in Qatari youth. The government will promote active citizenship and provide
opportunities to develop necessary life skills inorder to develop Qatar’s future leaders. A youth

Figure 5.6 Qatar will adopt a policy-making approach in the best interest of children’s well-being
Qatar’s child development index score is in
the top bracket . . .

. . . but well-being of children remains arising concern

Child development index score, 2000–2006
14 (worst)

Significant health and nutritional issues among Qatarichildren were identified in recent Aspetar Hospital study:• 90% of girls showed vitamin D deficiency.
• 46% of girls were osteopenic, and 27% had osteoporosis.
• Average body mass index among Qatari boys ages 10–13
was 22 kilogrammes per square metre (in 90th percentile),
indicating severe obesity.
• 50% of Qatari boys are in the 22–36 kilogrammes per square
metre range.

Country (rank)

12

10

Sri Lanka (74)

Kuwait (64)
United Arab Emirates (61)86

Egypt (50)
Jordan (47)
Syria (44)Mexico (40)
Qatar (34)4

Saudi Arabia (62)

Tunisia (27)
Malaysia (24)China (32)
Russia (31)Bahrain (26)
United States (23)20 (best)Italy (4)Spain (2)The best interests of children are affectedby changes in family cohesion:• The impact of divorce on Qatari children is not fully known,
but children in divorced households are more likely to be
low-income.
• Reliance on domestic helpers who are not experienced childcaregivers has potential detrimental effects on children’s
emotional and cognitive development.
• Violence has multiple adverse effects on children.

Canada (3)Japan (1)

Source: Save the Children UK, The Child Development Index: Holding Governments to Account for Children’s Well-Being (2008).

Family cohesion: the core of Qatari society173

“parliament” will be formed to teach the conceptsof democracy and strengthen children’s sense of
civic and personal responsibility, justice and leadership. And training programmes will be created
to strengthen intergenerational relationships.
In all legal and policy decisions the state will adopt“best interests of the child” criteria, especially incustody and child protection cases. A children’s
court, separate from the regular adult court process, will be established, while the age of criminal
responsibility for children will be increased fromage 7 to age 12 or older. Once enacted, the draft
child law will provide a comprehensive framework
within which all activities relating to children will
be implemented and measured. These activities
will cut across multiple National Development
Strategy 2011–2016 sectors.
Targets• Reduce the number of under-18 drug addicts
to 1%.
• Reduce the number of under-18 smokers to 10%.
• Halve the incidents of under-18 reckless driving.

Improving work-life balance for women
While implementing methods to provide stronger social care for children and families and tostrengthen marriages, the government must beaware of a delicate balancing act­—­to preserve andenhance the traditional Qatari family core whileempowering women to participate in all spheresof society, especially in economic and politicaldecision-making. The national vision calls forenhanced capacities and more prominent societal
roles for women, and the National Development
Strategy 2011–2016 will seek to improve on thegains already made by women in recent years.
More Qatari women are joining the labour force(figure 5.7), a trend that is consistent with women’s
rising educational attainment. As learning opportunities continue to increase, women’s participation in the workforce will also increase. By 2016 thegovernment expects Qatar’s rising female labour
force participation rate to stand at 42%. To be better prepared for this cultural shift, the government
has taken numerous measures, especially throughFigure 5.7 The labour force participation rate of Qatari women rose sharply from 2001 to 2009
Female labour force participation rate (%)
60
Sample of eight developed countriesa 58%

Kuwait 44%

40 United Arab Emirates 42%
Bahrain 32%

27

34
Oman 25%

35

36

36

2007

2008

2009

29

Saudi Arabia 21%

20

0
2001

2004

2006

a. France, Germany, Japan, Norway, Singapore, Sweden, the United Kingdom and the United States. Data are weighted by the working population ages 15 and older.
Source: ILO, Economically Active Population Estimates and Projections, 5th edition (2009).

174

Qatar National Development Strategy 2011–2016

chapterthe 2009 Law on Human Resources Administration, to improve women’s working conditions,
including provisions for a 60-day maternity leave,
allotted time (two hours a day for a year) to breastfeed a baby and extended care leave for womenwith disabled children under age 6.

5members, improved regulation of domestic workers and enhanced support systems for families
with members who need special care.
Target• Put in place measures that support working
women, including revising the current humanresources law and maternity leave policy.

However, the extent to which women are able toparticipate and remain in the labour market is
intrinsically linked to the support available to help Increasing women’s empowerment
women balance family and professional responsibilities. The government will improve support There is a collective recognition of women’s edufor working families, particularly for women, cational ability and qualification to assume politby expanding child care facilities and family-­ ical and leadership positions, but there is also afriendly employment practices and by encourag- culturally conditioned underestimation of scopeing ­gender-sensitive working environments.
and ability overall. While legislation has helped
increase Qatari women’s participation in thelabour force (figure 5.8), traditional views about
Measures to help women balance work-life
appropriate avenues for women’s employment
responsibilities(educational, administrative or clerical) prevail,The availability of high-quality, affordable and despite the new opportunities created by Qatar’saccessible child care is the most significant fac- economic development. Statistics show that in
tor in improving personal and professional bal- 2009 only 3% of economically active Qatariance. Even more important, a well planned women had leadership posts. Over the past 10
approach can contribute positively to the devel- years this number has ranged between 2% andopmental outcomes of children. Kindergartens 4%. Although women have higher average educaand workplace nurseries are operational, but tional attainment level than men, there appears tothey will be enhanced, while the number of pri- be a “glass ceiling” in employment and promotion
vate and public day nurseries and kindergartens for women.
(currently 137 private and 12 independent) will
be increased. Transferring responsibility of day Another hurdle in increasing women’s empownurseries from the Supreme Council of Educa- erment is overcoming the stereotyping of womtion to the Ministry of Social Affairs will allow en’s roles and responsibilities in society. Over thea more comprehensive plan to be created and last decade voting participation has increased
implemented to improve workplace child care. among women, and there is now female repreNew legislation will set minimum standards for sentation on the Municipal Council. The total
nurseries and kindergartens and ensure proper number of women in decision-making positions
has increased, but women still face barriers tostaff qualifications.
political life, such as a lack of awareness of the
The government also will build on best practices significance of the political process and adverse
from other countries to adopt more family-­friendly social and cultural attitudes. In a 2007 survey
work measures, such as flex time, part time and 28% of Qatari men and women opposed female
special leave. In addition, the work-life balance for participation in politics. Women are no doubt
women will be improved as other National Devel- central to the evolving character of the Qatariopment Strategy 2011–2016 family cohesion out- family, but there is much more that women can
comes are achieved, such as programmes to raise contribute to society apart from their role in theawareness on shared responsibility among family home.
Family cohesion: the core of Qatari society

175

Figure 5.8 Qatari women with a university education are employed mainly as professionals
Employed Qatari women, by occupation (%)
100

4.0
47.2

55.8

1.6

8.4

1.8

4.3
15.7

0.4

77.4

2.7

4.9
79.2

14.7
76.5

75

50

75.1

4.4
43.5

11.5
31.1

25

7.8

9.2

12.1

2001

2009

2001

Below secondary

6.7

2.0

1.1

0

2009
Secondary

2001

2009
University

Education level
Elementary occupations

Service, sales, craft and operators

ClerksTechnicians and associate professionals

A women’s leadership programme

The government will establish a women’s leadership centre to build women’s capacity and increase
the number of women in political, organizationaland business-related decision-making positions.
At the same time, an awareness programme will
promote the role of women across all National
Development Strategy 2011–2016 sectors. Other
countries are implementing similar initiatives,
including Malaysia, where a range of gender studies, skills training and sensitization programmes
were proposed in the recent Tenth Malaysia Plan,
2011–2015. Such measures are intended to remove
cultural barriers and obstacles blocking women’s
progress and to create an enabling environment
for professional and personal growth.
Target• Increase the number of women in leadership
positions by 30%.

176

Qatar National Development Strategy 2011–2016

Professionals

Senior officials and managers

A programme to change public perceptions ofwomen

The perception of women’s roles in Qatari culture
will be enhanced through civil society organizations’ advocating for women’s issues and throughawareness campaigns and educational media programmes that promote women as positive rolemodels and professionals.
Also, gender-sensitized legislation will be developed to encourage more women to take activeroles in society, and a thorough review of gender
equity in public sector employment will serve as afirst step in removing existing social and culturalbarriers.
Target• Establish a civil society organization that promotes women’s issues.

chapterFostering cross-sectoral links
The institution of the Qatari family, with its strong
Arab and Islamic identity, is an integral force ineconomic and social progress. QNV 2030 supports
the maintenance and continued development ofstrong and cohesive families with an expanded
role for Qatari women in national development.
Investments in women’s advancement and empowerment have been shown internationally to lead tomany positive development outcomes and to support economic growth.

5

The family cohesion and women’s empowerment
sector will be key in meeting the goals of the social
development pillar by enhancing Qatar’s soundsocial structure and by contributing to the country’s social care and protection. But given theinfluence that family and women’s issues can also
have on economic, environmental and humandevelopment policies, several cross-sectoral links
can be identified that demonstrate how familycohesion and women’s empowerment is both agoal and an enabler to achieve the aspirations of
QNV 2030 (figure 5.9).

Family cohesion: the core of Qatari society177

Figure 5.9 Family cohesion and women’s empowerment is both a goal and an enabler to achieve theaspirations of Qatar National Vision 2030

Other sectors as enablers for family cohesion and women’s empowerment

Support well-being offamilies living nearindustrial areas

Manage economy to supportchanges that affect the standard
and quality of life, including
household indebtedness

Economicmanagement

Develop effective institutions to
support sound social structurethat includes government, civilsociety organizations and theprivate sector

Goal

Environmental
sustainability

Ensure continued access to education,
particularly for people with disabilities,
with curricula that enhance social
values; provision of nurseries andkindergartens to support families

Education andtraining

Family cohesion
and women’s
empowerment

Institutional
development

Healthcare

Population, labour
force and Qatariemployment

Provide support to address
domestic violence through a
responsive health system; support
reduction of genetic diseases;
support the well-being of womenand children

Provide career support for the Qatarifamily; employment of people withdisabilities; women’s economic
participation; youth and unemployment

Enabler

Family cohesion and women’s empowerment as an enabler for other sectors

Improve behaviour forenvironmental sustainability(for example, use of waterand electricity)

Provide families witheffective financial
management andincreased consumer
protection knowledge

Economicmanagement

Strengthen governance,with the Supreme Council
for Family Affairs as a key
institution for family affairs
and women’s empowerment

178

Environmental
sustainability

Education andtraining

Family cohesion
and women’s
empowerment

Institutional
development

Build strong, cohesive families
with healthy children; improveeducation outcomes

Healthcare

Population, labour
force and Qatariemployment

Promote healthy
lifestyle among families;
ensure child well-being,
welfare and protection

Support effective
participation of Qatari
women in the labour force

chapter

5

Social safeguards for a caring society
Qatar “aspires to advance and develop the social
dimensions of its society by nurturing Qatari citizens capable of dealing effectively and flexibly with therequirements of the age they live in”.­— ­Qatar National Vision 2030
The social capital of a society includes the institutions, relationships, attitudes and values thatgovern interactions among people and contribute to economic and social development. Within that network Qatari families are an importantand critical link. But families are complemented
by the wider community, public institutions andthe more malleable aspects of social capital, suchas relationships, attitudes and values. During periods of rapid modernization and development,social capital can change, potentially affecting
those vulnerable to falling into low-income situations. Protecting individuals from risks that may
affect their ability to contribute to society andassisting individuals in need are the central components of Qatar’s commitment to community
care and career support.
QNV 2030 takes a holistic approach to development, foreseeing that sustainable development
will embody an effective social safety net for all
Qataris. In providing a medium-term framework,
the National Development Strategy 2011–2016 will
make a firm commitment to establishing a social
protection system that preserves the civil rights
of all citizens, values their contribution to society and ensures an adequate income for them tomaintain a healthy and dignified life. Qatar willmeet this commitment to its people through threeoverarching outcomes and 10 priority social protection projects in which the government will:• Improve and strengthen the current social protection system.
• Create an enabling environment to integrate
and mainstream the disadvantaged and vulnerable groups into the workforce and society.
• Broaden participation through smart partnerships, including the private sector, in supportof the social protection system.

In general, there is a perceived decline of social
capital within Qatari society. As Qatar’s economic
and global stature increases, so do the challenges to traditional values that accompany this newprosperity. A strong common value system is thus
needed to ensure that the social capital network
will encourage confidence building and social
cohesion.

Improving and strengthening the social
protection system
The National Development Strategy 2011–2016
recognizes that an effective social protection system requires a coordinated, multistakeholder
approach whereby responsibility does not rest in
any one ministry or agency (table 5.1). An ongoing effort is necessary to ensure national legislation and initiatives remain consistent with Qatar’s
rapidly transforming socioeconomic context.
The current system, led by the Ministry of Social
Affairs, provides generous support to citizens
through various means, including a noncontributory cash transfer system for disadvantaged andvulnerable groups, economic empowerment programmes, job-matching services and more (figure 5.10). Various charitable organizations andcivil society organizations also provide services, inaddition to the Zakat Fund and Endowment Fund(table 5.2).
The social protection system is comprehensive,
but it needs to be progressively improved in linewith the country’s development. The government
must be certain that its social safety net is reaching everyone in need, and it must be proactive inensuring that benefits are aligned to Qatar’s rapidly changing economy (figure 5.11).
Though recent efforts have been made tostrengthen the social protection system, such as
the establishment of a rehabilitation programme
for released Qatari prisoners, much more work
will be done. For example, more work-training
Social safeguards for a caring society

179

Qatar’s social protection system is supported by multiple institutions and organizations

Figure 5.10

Key components

Subcomponents

Institutions involved

Social services• Healthcare• Education• Goods and services• Programmes for economic
empowerment of target groups• Supreme Council of Health• Hamad Medical Corporation• Supreme Education Council• Ministry of Social Affairs• Ministry of Labour• Ministry of Endowment and Islamic
Affairs

Social Security• Noncontributory cash transfers tovulnerable groups (for example,
widowed women, families with nobreadwinner, orphans)• Ministry of Social Affairs

Social insurance• Pensions for civil servants andgovernment-linked companies• Pensions for private corporations• Unemployment benefits• General Retirement and Social
Insurance Authority

Social capital• Support through family, religious
institutions and the like• Supreme Council for Family Affairs• Ministry of Endowment and Islamic
Affairs

Civil society organizations andcharitable organizations• Social protection–related programmesfor vulnerable groups by civilsociety organizations and charitableorganizations

Examples include:• Social Development Centre• Social Rehabilitation Centre• Qatar Foundation for Child and Women
Protection• Qatar Red Crescent

A noncontributory cash transfer system targets vulnerable groups

Payments made to beneficiaries (%)

50

People with disabilities

50

0
Payments made to beneficiaries (%)

100

100

50

0

180

Payments made to beneficiaries (%)
100

Payments made to beneficiaries (%)

FamilyWidowed, separated
and divorced0

Elderly
Children without parents
Widow and orphans
Widowed, separated,divorced group
SingleFamily group
People with disabilities
Domestic helpers
Other

Widow
Prisoner’s wife
Abandoned wife
Divorced woman

Payments made to beneficiaries (%)

Payments made to beneficiaries (%)

100

100

50

0

Physical disability
Mental disability
Physical and mental
disability
Physical handicap
Mental handicap
Physical and mental
handicap

Qatar National Development Strategy 2011–2016

Fatherless
Orphans
Children of the missing
Children of prisoners
Children in needy families
Unknown father
Unknown parents

50

0Domestic help

Main groups

100Children without parents

Table 5.1

50

0

Needy families
Prisoners’ families
Families of the missing

Domestic helper
allowance—handicap
Domestic helper
allowance—elderly
Domestic helper
allowance—disabilitychapterTable 5.2

5Various civil society organizations support Qatar’s social protection system
Civil society
organization

Funding
information

Programmes

Key target groups

SocialDevelopment
Centre• Income support (cash transfers)• School fees support and scholarships• Support dialysis and kidney treatment• Support fertility treatment• Loan repayment support to women• Persons with disabilities, elderly, low
income• Expatriate low-income students, orphans• Expatriate kidney patients, Qataris,
expatriate low-income families• Women imprisoned due to debt

• QatarFoundation• Philanthropists

SocialRehabilitation
Centre• Treatment and rehabilitation of behaviour
disorders• Support youth development programmes(such as Message to All Youth programme)• Second Chance Programme for drug addicts• Persons with behavioural disorders• Youth• Drug addicts in and out of prison• Government

Reach Out toAsia• Adult English literacy programme for lowincome migrant workers• Ramadan Project to support and assist
communities, build capacity of community
partners, increase understanding of value ofcommunity service• Key beneficiaries include Qataris (as per
Social Security Law) and expatriates(low income, women and persons withdisabilities)• Migrant workers• Sponsors

Qatar
Foundation
for Child and
Women’s
Protection• Psychological treatment and social
rehabilitation for victims of domestic
violence• Awareness campaigns on human rights andviolence against women and children• Capacity building programmes on violenceagainst women and children• Victims of domestic violence, especiallychildren and women• Government

Figure 5.11 Benefits must be regularly reviewed against inflation to maintain annual purchasing power
QR thousands
30

True value of payment in 2006 QR

27,000b

3,316

6,389

Eroded value of payment due to inflation

5,400

5,571

21,60021,42923,68420

20,611

13,500a1002005
Consumerprice index

2006

2007

2008

2009

2010

100

114

131

125

126c

(2006 = 100)a. Previous cash benefits of QR 1,125 per month.
b. Revised cash benefits of QR 2,250 per month.
c. Estimated.
Source: Consumer price index, estimated from IMF, World Economic Outlook Database (2010).

Social safeguards for a caring society181

programmes for people with disabilities are needed, as are better vocational rehabilitation institutions to prepare vulnerable people to be integrated and mainstreamed into the workforce.

protection goals and National Development Strategy 2011–2016 projects to be accomplished.

Also, there is currently no effective social protection level measurement system to provide detailed
and accurate accounting of the needs of the disadvantaged and vulnerable. A national poverty line
to help determine a monetary social protection
floor for Qataris is one solution (table 5.3).

In support of the multidimensional characteristicsof the social protection system, a multi­stakeholder
committee will be set up to coordinate the implementation of the National Development Strategy
2011–2016 social protection projects. Its tasks will
include providing policy guidance, making key
decisions related to social protection issues andconducting monitoring and evaluation. The committee will lead a cross-sectoral approach to policy-making to ensure that unintended consequences of policies and programmes in other areas ofgovernment can be identified and appropriate
responses made. The committee will carry out its
work with an initial target of overseeing the implementation of social protection projects within
the first three years of the National Development
Strategy.

Such evidence-based measurements will provide
more empirical measurements to inform futuresocial policy and help identify primary characteristics of needy households, such as educational
attainment or household size (table 5.4).
Through its commitment to community care andcohesion, Qatar will put in place a better integrated social protection system by improving the current structure to address all aspects of social integration and to lay the foundation for other social
Table 5.3

A threshold-relative national poverty line
helps identify those in need, 2006/2007
Category

Table 5.4

9.2

Individual

12.0Child (under age 14)

13.7

Elderly (ages 60 and older)

13.4

Other individuals

11.0

Target• Establish a functioning multistakeholder committee to oversee and implement nine social
protection project projects.
A review and revision of existing social protection laws

To ensure progressive improvement towards aneffective and sustainable social protection system, the government will put in place a systematicmechanism to review and update the wide-ranging

Evidence shows that low income is a particular problem for larger households—relatively few
income earners support many dependents, 2006/2007
Number of people
in household

182

Incidence (%)

Household

A committee to coordinate project implementation

Frequency(%)

Incidence

Incidenceshare (%)

Intensity

Intensity
share (%)

1–2

4.5

3.3

1.6

0.1

0.3

3–4

12.3

3.9

5.2

0.6

3.5

5–6

28.2

3.1

9.4

0.7

8.9

7–8

26.7

9.4

27.3

2.4

31.4

9 or more

28.2

18.4

56.5

4.1

56.0

All households

100.0

9.2

100.0

2.1

100.0

Qatar National Development Strategy 2011–2016

chapterset of laws that govern Qatar’s social protection
system. Revision of Social Security Law 38 of 1995,
for example, will help ensure that benefits arealigned with changes in the economy. A monthly
benefit of QR 2,250 received in 2006 has a valueof QR 1,786 in 2010, after accounting for inflation.
The mechanism will take into account such factors
as political commitment and domestic resources.
Target• Adopt a mechanism to review and update social
protection laws.
A plan to ensure social inclusion for people withdisabilities and the needy

The government will identify measures to support
independent living and the social inclusion of people with disabilities in the community through an
expanded network of vocational training institutions and other assistance centres that help support independent lifestyles. This plan will augment existing facilities, such as the Qatar Assistive
Technology Centre (MADA), established in 2010
to improve access to information and communication technology for people with disabilities. An
expanded network of vocational training institutions will help identify training and occupational
therapy programmes to foster greater independence among disadvantaged and vulnerable groups.
Such actions support the United Nations Convention for Persons with Disabilities, ratified in 2008,
which promotes independent living and enhanced
community inclusion with access to social support services. Further, awareness programmes toincrease community responsibility towards inclusive development will be implemented.
Target• Increase the number of vocational training andoccupational therapy and rehabilitation centres from three to at least five.
A social protection evidence base

A two-year project will be initiated to strengthen the capacity of the Ministry of Social Affairs

5

and related stakeholders to better monitor trends
and patterns among the disadvantaged and vulnerable. The key component of this project willbe the development of a national poverty threshold. Adopting a national relative poverty line will
help determine a monetary social protection floor
for Qataris and provide a baseline to monitor andevaluate programmes and projects establishedto support the needy. Currently, the government
does not have a comprehensive supporting evidence base for social protection measurements inplace.
Target• Devise a set of tools that provides evidencebased measurements for income-related statistics, such as a relative national poverty line.

Making the workforce and society more
inclusive
Varying degrees of disability extend throughout
the Qatari population, including children, withprevalence rates remaining fairly constant between
ages 10 and 50. About 4% of Qatari households
include a disabled member. But people with disabilities often face discrimination, remain lesseducated and have insufficient access to the mainstream labour market. In 2008 Qatar ratified theUnited Nations Convention on the Rights of Persons with Disabilities and is a participating member of the committee that monitors its implementation. Although Qatar has made major efforts
to promote and protect the rights of people withdisabilities, the government recognizes the needto do more through stronger advanced job placement measures and enforcement of current law.
In addition to people with disabilities, other members of society face special circumstances that
require support from the social protection system,
including treated addicts, former prisoners andwomen in challenging situations, such as divorcées
and unsupported widows­—­t wo groups at high riskof falling into relative poverty. Anecdotal evidence
suggests that many pensioners also are vulnerable to relative poverty, as a large portion of theSocial safeguards for a caring society183

elderly are either not in the retirement system or
do not receive sufficient income to sustain them inretirement.
In general, challenges remain in raising awareness of the importance and need for mainstreaming disadvantaged and vulnerable people into
society and of the value of productive contributions to society. Welfare to work programmes
need to be developed together with an awareness-raising campaign to ensure their effectiveness. This is particularly relevant for Qatar, where
the younger generation needs to be made awareof the importance of work and individual contribution to national aspirations. Evidence suggeststhat many unemployed Qataris, especially women,
turn down job offers because they are perceived
to be incompatible with their family lives or personal expectations.
As outlined in QNV 2030, Qatar’s social protection
system should ensure the civil rights of all citizens
and value and enhance their contribution towards
the country’s economic and social development.
The government will make the workforce andsociety more inclusive and ensure that it proactively addresses the concerns of those most in needthrough expanded employment opportunities,
improved economic empowerment programmes
and a comprehensive pension enhancement plan.
A jobs database for the disadvantaged andvulnerable

Stronger partnerships between the Ministry ofSocial Affairs and the Ministry of Labour will
help provide targeted groups access to information on available jobs and positions in the labour
market. The planned Labour Market Information
System that is a component of the National Development Strategy 2011–2016 labour strategy will
provide a cross-sectoral foundation for this initiative by matching potential employers and the target groups. Based on lessons from other countries,
any successful welfare to work programme should
be based on the principle of improving individual
employability.
184

Qatar National Development Strategy 2011–2016

Target• Expand the job-matching database to include
all categories of the disadvantaged andvulnerable.
An awareness campaign on the importance of work

The awareness campaign will focus on three primary clusters: unemployed people, vulnerable anddisabled people and Qatari society at large. Basic
Islamic principles state that care and respect mustbe given to the vulnerable and that individuals
must proactively contribute to a productive society.
So it is critical that the wider Qatari society adhere
to this aspect of national identity. The government will raise societal awareness about including
vulnerable groups in the labour force while promoting workforce participation among all target
groups. Current available programmes, such as
the Productive Families Programme, will be promoted, especially among Ministry of Social Affairs
beneficiaries.
Target• Instil a more positive social mindset among citizens on the importance of work and different
types of jobs.
An enhanced economic empowerment programme

Currently, most participants in the Productive
Families Programme are not beneficiaries of the
Ministry of Social Affairs. The government will
expand this programme (which aids Qatari families and individuals with job training, support andaccess to markets) to include a wider group of participants, primarily targeting current beneficiaries of the Ministry of Social Affairs and women.
For example, recent data show a willing attitude
among Qatari women to manage private enterprises catering to other women, such as hair dressing
salons, perfume stores and accessories retailers.
In addition, the Social Development Fund proposed by the Council of Ministers could provide
support for this outcome by enabling the opportunity for more Qataris to become self-reliant andchapterproductive through micro-enterprises, by promoting active and effective partnerships with civilsociety organizations and by helping integrate disadvantaged groups into the labour market.
Target• Increase by 50% the number of participants in
Productive Families Programme from among
beneficiaries of the Ministry of Social Affairs
benefits system.
An enabling environment in the workforce forpeople with disabilities

Stronger enforcement of the Qatari law that supports the recruitment of people with disabilities in
the workplace will be instituted. Article 5 of Law 2
of 2004 mandates an employment rate for disabled people of at least 2%, but no current monitoring or enforcement system ensures that this target is being met. Given that Qatar has ratified theUnited Nations Convention on the Rights of Persons with Disabilities, the government is obligated to follow through on recommendations made.
With a quota system already adopted, the National
Development Strategy 2011–2016 provides a platform for enhanced enforcement. Reform measures could include enacting a quota-levy system,
whereby a levy is imposed on companies that do
not meet the quota. Countries that have enforced
legislated levies have more success in integrating
persons with disabilities into the workforce.
Target• Enforce the active workforce quota of 2% for
persons with disabilities.
A comprehensive pension enhancement plan

The core objectives of a pension system will beto provide protection against poverty in old age
and to ensure a smooth transition from work toretirement. Currently, Qatar’s formal pension system, which covers public sector and governmentowned company employees, lacks a cost-of-living
adjustment, so pension incomes do not keep pacewith inflation. And the system does not cover5

self-employed people and people in the private
sector. The General Retirement and Social Insurance Authority is in the early stages of planning
an expansion of the pension system to include
Qataris working in the private sector, but the government will conduct a thorough review of the system. Possible options for reform include improved
governance of the existing system and the introduction and testing of voluntary systems or noncontributory pensions.
Targets• Expand coverage of the pension system.
• Halve the percentage of low-income households.

Extending social responsibility to thebusiness community
The role of the private sector in social protection is growing as businesses increasingly recognize that corporate responsibility extends beyond
the workplace. Business decisions have both positive and negative impacts on people’s welfare andwell-being. As corporate social responsibility gains
momentum globally, Gulf countries such as Egypt
and Saudi Arabia have taken steps to institutionalize corporate responsibility through legislationand institutions that govern business activities.
Corporations within Qatar, especially in the energy
sector, are initiating corporate social responsibility
programmes and projects, and some have alreadystarted to align their corporate strategy with QNV
2030. The government will extend social responsibility to the business community by broadening
participation of the private sector in the social protection system and by creating a corporate responsibility framework that will formalize an enabling
environment for the private sector to further contribute to the well-being of Qatari society.
A framework to develop stronger partnerships

This framework will formalize an enabling environment for the private sector to further contribute to the well-being of Qatari society throughvarious instruments and interventions, including
Social safeguards for a caring society185

awareness raising (creating alignment among
stakeholders), partnering efforts (bringing public
and private sectors together), application of softlaws (nonregulatory promotion of measures) andmandates (establishing minimum standards forresponsible behaviour). A six-step model can beapplied to guide the process (figure 5.12).
Target• Implement a corporate responsibility framework suited to the country’s economic, political and social context, including a monitoring
system.

Fostering cross-sectoral links
Social dialogue between the government and all
stakeholders­—­i ncluding individual ministries,
agencies, civil society organizations and the private sector­—­is essential to progressively developing a national social protection strategy in orderto ensure a balanced and sustainable approach.

An effective social protection system will not only
guarantee the well-being of Qataris, it is also a precondition to the effective functioning of the country’s labour market, where distortions are likely
to occur, jeopardizing the country’s stability andeconomy, if certain categories of workers are notprotected. This concept is also a prominent feature in the subsequent sector strategy concerning
public safety and security.
The social protection sector of the National Development Strategy 2011–2016 will play a key role inmeeting the goals of the social development pillar
by enhancing Qatar’s sound social structure andby contributing to the country’s social care andprotection. But given the influence that community care and career support initiatives can also haveon economic, environmental and human development policies, a number of cross-sectoral links canbe identified that demonstrate how social protection is both a goal of, and an enabler of, QNV 2030
(figure 5.13).

Figure 5.12 A six-step model to guide the development of Qatar’s corporate responsibility policy framework
Brief description

Supporting Qatar’s corporate responsibility

Understanding corporate
responsibility–relevant context

Corporate responsibility policy should take into accounteconomic, political and social factors of the country

National Development Strategy 2011–2016 sector strategies
provide the economic, political and social context of corporate
responsibility policy

Defining corporate
responsibility

Clear definition of corporate responsibility required in both local
context, as well as in line with what end goal is expected bygovernment of companies’ contribution

Current corporate responsibility activities, especially in energy
sector, help inform understanding
Aims and objectives of social responsibility as defined by Social
Protection Task Team

Important to consider overall placement
Corporate responsibility competency (lead entity)
Integration of stakeholders

As a starting point, the proposed central social protection committee,
led by the Ministry of Social Affairs to drive corporate responsibility
Engagement of multiple stakeholder in National Development Strategy
preparation and Social Protection Task Team

Defining corporate
responsibility public policy
rationale

Government should define the rationale behind the corporate
responsibility policy framework
Rationale could focus on poverty reduction or integration into
the broader global economy

The National Development Strategy 2011–2016 sector strategies
provide the rationale for the corporate responsibility policy framework

Identifying types of policy
intervention

Need to clearly align on which types of mechanisms andinitiatives (for example, awareness, soft law, mandating) are mosteffective in tackling the issues and delivering on the rationale

Expected output of the National Development Strategy 2011–2016
social protection sector strategy

Monitor and assess impact of interventions against goals
Results from monitoring should be used to define strategy ordirectional updates

Expected output of the National Development Strategy 2011–2016
social protection sector strategy, tied in to the overall National
Development Strategy monitoring and evaluation framework

Situating corporate
responsibility withingovernment structure

Monitoring and impact
assessment

186

Qatar National Development Strategy 2011–2016

Figure 5.13 Social protection is both a goal and an enabler to achieve the aspirations of Qatar National
Vision 2030

Other sectors as enablers for social protection

Promote social
responsibility; support
corporate responsibility

Manage the economy tosupport changes that
affect the standard andquality of life

Goal

Education andtraining

Environmental
sustainability

Socialprotection

Economicmanagement

Develop effective institutions to
support sound social structurethat includes government, civilsociety organizations and theprivate sector

Ensure access to education,
particularly for the vulnerable
and people with disabilities;
provide a curriculum thatenhances social values

Healthcare

Population, labour
force and Qatariemployment

Institutional
development

Provide comprehensive
healthcare, especiallyfor vulnerable groups

Provide career support for thevulnerable; employment of people withdisabilities; women’s economic
participation; youth and unemployment

EnablerSocial protection as an enabler for other sectors

Promote social
responsibility
Environmental
sustainability

Create an enabling
environment for inclusive
development and support a
secure and stable society

Strengthen governance,with the Ministry of Social
Affairs as a key institution
for social protection

Education andtraining

Socialprotection

Economicmanagement

Promote good social
values through thecommunity care pillar

Healthcare

Population, labour
force and Qatariemployment

Institutional
development

Promote a healthy
lifestyle amongfamilies

Support effective participationof the vulnerable, including
people with disabilities, in thelabour force

187

Public protection for a stable society“Qatar will seek to build a safe, secure and stable society based on effective institutions.”— ­Qatar National
Vision 2030
The process of providing a social development
pathway for the well-being of all Qataris has been
identified thus far through objectives targeting
improvement on a personal or individual level—family cohesion, career support, community welfare and women’s empowerment. But just as Qatar
has a duty to provide its citizens with a secure andstable society based on strong families and personal safety, Qatar has a duty to provide its citizens with a secure and stable society based on
effective public institutions and public safety. A
society that offers its people safety and security ina respectful and dignified way and that demonstrates a duty to care for its citizens is a societythat operates on the principles of justice, equality
and the rule of law.
Qatar is committed to sustainable development
where there is harmony among economic, humanand social development and environmental protection. In an urban environment such as Qatar’s,
any sustainable policy should be accompanied bypolicies that promote safety and security to support planning and development, making Qatar an
attractive place to live.
Qatar’s recorded crime rates are among the world’s
lowest, despite a massive increase in the country’s
expatriate population. In 2010 Qatar ranked firstwithin the Arab region, and 15th globally out of
149 countries, on the Global Peace Index (GPI)of the Institute for Economic and Peace. The GPI
takes into account 24 indicators, including several
related to public safety and security, as well as factors in the country’s external relations.
The Public Safety and Security sector of the
National Development Strategy 2011–2016 social
development pillar plays a key role in enhancing
and improving the quality of life and well-beingof all citizens, particularly in ensuring that people
188

Qatar National Development Strategy 2011–2016

are safe and secure in their communities. It moves
away from the traditional security concept to one
that embraces the concept of human security
and expands the scope of protection to include a
broader range of threats, including risk reduction
from natural and non-natural disasters.
Qatar will fulfil its commitment to human security and to fulfilling the national vision throughfive overarching outcomes and five priority public
safety and security projects in which the government will:• Improve knowledge management of criminal
information and data.
• Reduce the number of road traffic accidents
resulting in deaths and major injuries.
• Strengthen the national approach to occupational health and safety.
• Improve building safety, including regularmonitoring of regulations.
• Establish a high-level coordinated approach tonational disaster management.
These public safety and security outcomes reflect
priority issues where timely action is essential andmultiagency integration is required. They serve acommon purpose of enhancing the well-being of
all citizens, and they will aid Qatar in building asound social structure supported by effective institutions that operate under justice, equality andthe rule of law.

Improving crime management
Qatar’s recorded crime rates are exceedingly low.
Qatar’s robbery and motor vehicle theft rates
are the lowest among Gulf Cooperation Council
countries.
Not surprising, given the large increase in thenumber of expatriates, there has been an increasein immigration and residency violations. Leaving
immigration and residence violations aside, crimes“against the human body” and “drugs and drinks”
constitute the largest share of crimes (table 5.5).

chapterTable 5.5

5

Crime has been relatively stable over time, but violations in immigration laws have increased markedly
Overseas
Security
Advisory
Council

Ministry of Interior
Type of crime

2000

2001

2002

2003

2004

2005

2007

2008

Committed by public servants

68

73

46

40

49

35

70

114

29

Against human body

151

148

11

94

118

60

957

1,278

798

Sexual and moral crimes

218

208

356

396

264

131

147

173

113

Against others’ money or property

263

192

142

180

225

168

130

70

—

Drugs and drinks

416

397

440

431

320

205

1,026

994

669

Against public trust

1,000

727

547

632

879

808

96

206

336

Subtotal

2,116

1,745

1,542

1,773

1,855

1,407

2,426

2,835

1,945

9,222

6,882

8,164

11,6489,717 10,109

Immigration/residence violations
Total

192

153

127

136

44

62

2,308

1,898

1,669

1,909

1,899

1,469

2006

Supreme JudiciaryCouncil

3,976

3,976

2009

— not available.
Note: Excludes traffic violations. Data refer to criminal court cases, not police-recorded crimes.
Source: Overseas Security Advisory Council, Qatar 2010 Crime and Safety Report (2010).

When immigration and residency violations are
excluded, crime totals show a more even patternfor 2007–2009.
Compared with global levels, Qatar consistently hasmuch less of all major types of crime (table 5.6). The
low rates of crime and high levels of public security
reflect in particular the country’s socio­political stability coupled with its effective security services.
Low national crime rates in some categories, however, may reflect in part Qataris’ unwillingness,
especially among women, to report certain incidents to law enforcement officials. Further, in asociety where the family unit is paramount to its
structure, such as in Qatar and other Gulf States,
Table 5.6

citizens may sometimes prefer handling incidents
at a family level.
The recording of crime data needs to conform tointernational standards that specify detailed crossclassifications. This entails, for example, clear categorization of recorded crime by suspect, victim andtype. To further enhance the effectiveness of thecriminal information system, routine crime data
could be systematically shared across government
ministries and agencies. To maximize public safety
and security efforts, the government will improveits criminal knowledge management systemthrough a centralized database to eliminate gaps
and enhance policing procedures. A knowledgesharing committee will guide its development.

Qatar’s crime rates are well below global average levels (incidence per 100,000 people)
Type of crime

2007

2008

2009

Intentional homicide
Assault
Rape

Global average

2.0

0.5

0.4

6

1.6

3.8

1.7

100

1.6

0.9

1.7

25

Kidnapping

0.3

0.6

0.7

25

Robbery

86.0

25.0

11.0

100

Arson

0.9

0.3

0.1

25

Source: United Nations Surveys of Crime Trends and Operations of Criminal Justice Systems (2009).

Public protection for a stable society189

A criminal knowledge management system

Improving road traffic safety

This integrated system will eliminate data andinformation gaps, enable identification of emerging trends, strengthen policing efforts, reduce thetime taken to prepare files for court and expedite
case resolution. It will enable court administrators,
criminologists and others in law enforcement toadjust operations and strategies based on accurate,
timely and up-to-the-minute crime information.
Specifically, the new management system will:• Establish a knowledge-sharing group.
• Standardize crime definitions and classifications.
• Develop a centralized crime statistics database.
• Establish training programmes for criminal
justice agencies and staff.

Road safety has been given high priority for someyears in Qatar through extensive safety and awareness campaigns and more aggressive law enforcement, which over the last three years has helped
reduce fatalities to their lowest mark in two decades. But road accidents involving at least one
vehicle and resulting in damage and injury havebeen increasing for the last five years (figure5.14) as population growth has led to more congested roads. While the 2008 fatality rate of 15.9
deaths per 100,000 people is a fair national resultfor Qatar, it is still markedly higher than the average for high-income countries (table 5.7). Qatar’s
pedestrian death rate (32% of all fatalities) has
remained steady over five years but is still very
high by international standards.

An open-door policy for users will be essential to
the success of the system; an accessible system will
enable more frequent cross-agency and international collaboration, leading to better outcomes
for those in the criminal information system andto a safer society.
The government will create a central coordinating
body for criminal intelligence and information toadminister the system and ensure that strict privacy
is maintained, that confidentiality and other safeguards are in place and that consistent regulations
are applied to the treatment of classified materials.
The system will be preceded by legislation and written guidance on the gathering, storage, analysis
and dissemination of criminal intelligence or information by or for the purposes of law enforcement.
The management system will be the first step towards
a holistic approach that encompasses a one-stop
shop for police, prosecution, defence lawyers, courts
and correctional facilities, all of which currently haveindividual, nonintegrated information management
systems. This future holistic system will, in turn, be
the forerunner to an eventual e-justice platform.
Target• Have in place a comprehensive criminal knowledge management system based on international standards.
190

Qatar National Development Strategy 2011–2016

The main causes of road accidents have remainedmuch the same over time, with reckless driving,crossing the median strip, insufficient distanceand lane changing errors (at roundabouts andon higher speed roads) responsible for more than
90% of accidents. Pedestrian fatalities and accidents are of particular concern in Qatar, with 32%
of casualties being pedestrians, compared with aworldwide average of 17%. These pedestrian accidents are closely related to the number of safe
crossing points; more needs to be done to reduce
the likelihood of road trauma for pedestrians anddrivers alike (table 5.8).
The number of heavy vehicles using roads has also
increased, causing additional safety issues due toeither insufficient oversight or ignored laws (a lackof dedicated truck routes, overloaded vehicles,
exceeded size restrictions, illegal parking in residential neighbourhoods and the like). Until further
public bus routes are opened or other public transport options come into effect, traffic congestion
will continue to increase if additional capacity is
not added to the road network or if vehicles are nottaken off the road. The government will improveroad traffic safety with a safe-system approach thatwill reduce risk behaviour, improve pedestrian safety, enhance roads and strengthen law enforcement.

chapterFigure 5.14

5Road accidents involving at least one vehicle and resulting in damage and injury have been
increasing since 2003

Number of accidents

DeathsMajor injury

Exponential annual growthrate, 2002–2008

Minor injury

5,000

230

+12%

570

4,000
3,795

3,000

+4%
+23%

199
518

2,000
114
452

1,000

966

164

150
410
881

462

455

313
1,058

1,054

2004

2005

2,011

270

206

1,171

0
2002

Table 5.7

2003

2006

2007

2008

Qatar’s road traffic injury fatality rate is markedly higher than the average for high-income
countries (deaths per 100,000 people, 2008)
Eastern Mediterranean
region

World

Qatar

High income

28.5

10.3

15.9

Middle income

35.8

19.5

na

Low income

27.5

21.5

na

Total

32.2

18.8

15.9

na is not applicable.
Source: WHO, Global Status Report on Road Safety: Time for Action (2009).

Table 5.8

Slightly more than a third of Qatar’s traffic fatalities in 2008 involved pedestrians
Age group

Drivers

Passengers

Pedestrians

Total

0

0

0

0

1–9

0

0

1

1

10–19

10

4

3

17

20–29

36

4

4

44

30–39

21

15

14

50

40–49

13

19

20

52

50–59

8

14

21

43

60–69

3

8

11

22

Not stated

0

1

0

1

Total

91

65

74

230

0–1

Public protection for a stable society191

A safe-system approach to road traffic safety

The National Development Strategy 2011–2016
will reduce traffic accidents and improve safety through a comprehensive strategy of intra­
governmental cooperation, raised awareness,
improved safety measures and stronger laws that
accomplish several basic, necessary objectives:• Reducing risk-based behaviour.
• Instilling courteous driving behaviour.
• Improving the safety of pedestrians.
• Better protecting children and young people
who are greatly overrepresented in casualty
statistics.
• Facilitating intergovernmental cooperationin traffic safety, particularly in urban planning, municipality management, traffic policing, public works design and construction andeducation.
The safe-system approach makes better use ofpolice resources (and adds extra capacity whererequired) to reduce motorist risk through better enforcement of speed limits, seatbelt laws,
mobile phone bans while driving. The government will identify and target the roads most in
need of upgrade and ensure that roads are well
lit and sufficiently signed. An address system
based on GIS Qatar Mapping will be studied tominimize driver distraction while searching forlocations. The system will also be used to categorize roads as major, secondary or local andto identify problem areas in order to improve
future planning.
The safety strategy will also analyse and study the
number of stop signs, traffic lights, road markings, road shoulders and footpaths, vehicle safety regulations, provisions for pedestrians andcyclists, driver licensing systems, driver training procedures and punishment standards forviolations.
Target• Reduce the annual number of road accidents
from 300 per 100,000 people to 250 and related fatalities from 14 per 100,000 people to 10.
192

Qatar National Development Strategy 2011–2016

Strengthening occupational health andsafetyJust as residents of Qatar should be protected withmeasures that guarantee their safety while driving,biking or walking, Qatar workers should feel safe
and secure while in the workplace. The National
Development Strategy 2011–2016 provides the government an opportunity to strengthen the occupational health and safety of workers­—­by protecting
employees from potential work-induced disease,
injury or death­—­and to better address the dangers
associated with risky jobs. Noncompliance withhealth and safety measures can negatively affectthe economic and social development of Qatar
through direct losses in physical resources, employee productivity and reputational damage. The government will look to mitigate those impacts.
According to the Ministry of Labour, 22 workrelated deaths and 173 injuries were reported
in Qatar in 2008 and 2009. The Supreme Council of Health regularly and randomly visits morethan 500 worksites and workplaces annually, but
the country’s labour law does not impose specific industry standards and excludes casual anddomestic workers from its scope. Further, Qatar’s
industrial mix is dominated by heavy industries,
such as oil and gas, metals manufacturing andconstruction. These sectors typically present a
more dangerous or riskier work environment thanother sectors and require a strict and comprehensive safety framework. The National Development
Strategy 2011–2016 will build on recent efforts toimprove workplace safety by strengthening standards as part of a new governance system.
A national occupational safety and healthgovernance system

To harmonize and unify workplace regulations
and practices, Qatar’s Council of Ministers has
approved in principle the establishment of the
National Occupational Safety and Health Committee, to be composed of representatives fromacross government ministries and the oil and gas
sector. This committee is the first step towards achapternational set of laws, regulations and standards
on occupational health and safety. The regulations will be specific and strict and will include
all sectors and workers in the country. The governance system will create a centralized interactive database of incidents, accidents and diseases
and require mandatory reporting of all workplace
incidents and accidents. The government will also
strengthen laws to better enable the legal enforcement of regulations and to ensure that all line
managers in key sectors are held responsible for
accidents and are punishable for neglect.
Target• Establish a national set of regulations, laws,
and standards on occupational health and safety for all sectors.

Enhancing building safety standards
Concurrently, the government will better regulate the safety architecture of Qatar’s construction
sector, which also continues to flourish. The global financial crisis has somewhat slowed the paceof building in Qatar, but projections show morethan 120 major construction projects targeted for5completion by 2016. More experienced personnel are needed and more government authorities
should have a role in supervising the building process and in issuing permits in order to strengthen the institutional knowledge gap and improvebuilding safety. Of central concern are fire-related accidents, which peaked during the 2007–2008
construction boom and remain a primary cause ofbuilding accidents (figure 5.15).
A national building safety strategy

This strategy will begin with a comprehensive
review to determine common causes of construction site fatalities over the last five years and to
examine which government agencies are best positioned to help reduce future accidents. A national
committee for fire prevention will be established
to lead several initiatives aimed at reducing theprevalence of fires, beginning with stronger standards to regulate appliances and equipment, installation and maintenance of electrical systems, andcertification for technicians. Procedural guides
will offer instructions for working with voltage
lines and underground cables and for establishing
escape and rescue operations.

Figure 5.15 Fire-related accidents peaked in 2008 during the construction boom
Incidents of fire
1,200
1,089
994

900

922

652

600
560

585

550

623
521

300

0
2001

2002

2003

2004

2005

2006

2007

2008

Public protection for a stable society

2009

193

In addition to stronger fire-related regulations,the safety strategy will include capacity building
and enhancement components for the Ministry ofLabour’s Work Inspection Organ, which will bestrengthened with more health and safety inspectors. These inspectors will be empowered to issuefines, conduct follow-up audits and recommend
revoking operating licences in the event of multiple safety violations. In addition to safety inspectors, trained officers must enforce the law throughroutine and random checks. Tougher penalties
will be considered, including lengthier imprisonment where fatalities occur.
Targets• Create a comprehensive approach to building
safety, and halve the number of fire accidents.

Coordinating national emergency
preparedness
In most instances the development outcomes for
the National Development Strategy 2011–2016
involve improved results for the directly tangible
aspects of everyday life­— ­family support, career
training, police protection. But a critical component of establishing a secure and stable society
for current and future generations is also consideration of how to best ensure long-term humanprotection.
Although Qatar may be at low risk of natural disasters, such as earthquakes, tornadoes and hurricanes, it remains exposed to medical and healthhazards and its own extreme climate conditions.
Furthermore, Qatar’s location, its natural resources and its industrial sector puts the country at risk.
The Permanent Emergency Committee, consistingof representatives from 17 Qatari organizations,has been in operation since 1998 to deal with emergency threats, but a more coordinated approach todisasters will reduce the potential human, social,economic and environmental impact that would
result in extended societal disruptions. In order toensure the long-term social development and stability as envisioned in QNV 2030, the government
will coordinate national emergency preparedness194

Qatar National Development Strategy 2011–2016

measures in the event of any situation that disrupts
normal socioeconomic activities.
A coordinated disaster management policy

The National Policy on Disaster Management willdevelop a framework for sustainable efforts towards
a unified plan for all stages of a national disaster­—­prevention, preparedness, response and recovery.
The framework will support a holistic and integrated approach to include quantitative elements suchas research and development and will ensure thatdisaster risk reduction policies are included in socioeconomic planning and programmes. Civil society participation in creating the policy will involve
local communities, raising awareness on the importance of disaster management and risk reduction.
Target• Establish a national policy on disaster management.

Fostering cross-sectoral links
The government recognizes the imperative need topromote safety and security within Qatar’s urban
environment, which is undergoing rapid change
due to robust economic development and socioeconomic shifts. These and other factors, including
globalization and increased use of digital technology, will make public safety and security an ongoingchallenge in the years ahead. To best make citizens
feel secure in their communities, which include
both home and the workplace, efforts must include
multiple stakeholders across all social sectors.
The public safety and security sector will be key inmeeting the goals of the social development pillar
by enhancing Qatar’s sound social structure andby contributing to the country’s social care andprotection. But given the influence that issues suchas crime prevention, law enforcement and occupational safety can also have on economic, environmental and human development policies, several
cross-sectoral links can be identified that demonstrate how public safety and security is both a goalof, and an enabler of, QNV 2030 (figure 5.16).

Figure 5.16

Public safety and security are both a goal and an enabler to achieve the aspirations of Qatar
National Vision 2030

Other sectors as enablers for public safety and security

Establish regulations to
reduce environmental
hazards

Ensure sound economic
management towards a
secure and stable society

Goal

Education andtraining

Environmental
sustainability

Public safety
and security

Economicmanagement

Develop effective institutions to
support a sound social structurethat includes government, civilsociety organizations and theprivate sector

Support promotion and awareness of
issues related to public safety andsecurity

Healthcare

Population, labour
force and Qatariemployment

Institutional
development

Ensure safety of public
infrastructure; work together toreduce impact of traffic accidents;
improve worker safety and building
safety to reduce strain on thehealth sector

Improve worker safety; recruit
the right mix of expatriate
labourEnabler

Public safety and security as an enabler for other sectors

Coordinate response toenvironmental hazards

Create an enabling
environment for economic
growth through a secure andstable society

Environmental
sustainability

Strengthen governance, with the
Ministry of Interior as a key institution
for public safety and security

Education andtraining

Public safety
and security

Economicmanagement

Improve child well-being throughprotection from domestic violence;awareness of security issues, such as
cyber crimes

Healthcare

Population, labour
force and Qatariemployment

Institutional
developmentSupport changes to public
safety, especially occupationalsafety and health, and provide
emergency services traffic
accidents

Respond to impact ofchanging socioeconomic
conditions

195

Sports as inspiration for an active and healthy society
Qatar will “develop a spirit of tolerance, constructive dialogue and openness towards others at the national andinternational levels”.­— Qatar National Vision 2030
Qatar aspires to build a safe, secure and stablesociety and firmly commits to creating a vibrantand prosperous future for the country. Fulfilling that vision begins with strengthening families and ensuring that all citizens are protectedin their homes, jobs and communities. Next isto ensure long-term excellence beyond the essentials of family and finances by enhancing thephysical, emotional and intellectual well-beingof society through sports and culture. Physical activity occupies a central role in enriching
lives, with participation in sports being a sourceof health and enjoyment for those who join as
players, volunteers, coaches, observers, officials
or administrators. It is often a binding elementin the social and cultural fabric of society, at thecommunity level as well as on the international
stage.
Qatar has enjoyed unprecedented global recognition in sports in recent years. Qatar invests heavily through the Qatar Olympic Committee and its
partner clubs, sports federations and other strategic allies to provide sports and recreation facilities, develop athletes, host international competitions and raise awareness of the benefits ofsports and physical activity. Qatar will continue toemphasize sports, especially to meet the challenges presented by a growing population undergoingsignificant cultural change. Qatar is committed
to increasing sports participation and active lifestyle practices among its population to improvehealth outcomes and to forge global friendships
and improve relations with countries around theworld.
By developing an array of first-class sports facilities
and continuing to host regional and international
competitions and events, Qatar will be well positioned to meet QNV 2030’s goal of a spirit of tolerance, constructive dialogue and openness through196

Qatar National Development Strategy 2011–2016

the common sporting principles of teamwork, fairness and aspirational excellence.
In January 2011 Qatar successfully hosted the coveted Asian Football Confederation’s Asian Cup.
Qatar’s winning bid to host the FIFA World Cup
2022 will support not only the achievement ofdevelopment programmes and projects in othersectors, but also the enhancement of social development in general and sports in particular. Hosting regional and international sporting events
encourages greater Qatari participation and interest in sports and enhances the nation’s regional
and international image in promoting culturaland sporting interchange.
The sports sector of the National Development Strategy 2011–2016 social development pillar, therefore, plays a key role in enhancing andimproving the quality of life and well-being of all
citizens by providing the necessary foundation for
active lifestyles and athletic development. Qatar
will advance its sports policy through three overarching outcomes and five priority sports projects
in which the government will:• Educate and engage the public on the importance of healthy and active living and increase
opportunities for people of all ages and abilities to participate in physical activity.
• Ensure adequate, appropriate and accessible
sports and recreation facilities.
• Increase sports talent and enhance talent development and athlete sponsorship programmes
for improved sporting success.
A sound management framework for sports development is essential for building a modern andprogressive state. Cross-sectoral alliances are alsoessential for maximizing the benefits that a physically fit and athletic society will yield. A coordinated interagency approach that gives public andprivate agencies a shared responsibility in sports
development will yield great success, as will awareness of the need for a knowledge-based approachto capacity building for both officials and coaches.

chapter

Promoting healthy and active living
through sports
Sports is a powerful tool for building a healthy
and cohesive society. Being physically active provides people with a range of physical, social andmental health benefits. In particular, children andyoung people can gain more from physical activity
than just improved physical health. Involvement insports from an early age helps build character anddiscipline in children that can be applied in otheraspects of their lives. Qatar has a growing, young
and increasingly affluent population with ample
leisure time, but participation in sports and physical activity is low. Chronic diseases are a major
cause of death, accounting for 49% of classified
deaths in 2008 (figure 5.17). The primary drivers
for the chronic disease burden are inactivity andsedentary lifestyles, which pose an increasingly
serious health risk for individuals and families.
In 2007 the Supreme Education Council undertook a major review of the national physical education curriculum and related activities in independent schools and community centres. This review
Figure 5.17

5involved an audit of teaching and learning quality,
followed by a comprehensive needs analysis. A new
physical education framework was subsequently
implemented. Physical education is now compulsory in all schools from kindergarten through year
12. A strategic plan for improving the quality ofphysical education taught in schools was also prepared in order to address the challenges faced bypolicy-makers, school leaders, teachers and parents in promoting sports among Qatari youth.
Women play a critical role in promoting healthy
lifestyles through their influence on their children’s
health and well-being. Concerned about the fitness
and health of Qatari women and how this affects
their children, in 2009 the Qatar Olympic Committee initiated an in-depth study on their participation in sports and physical activities. The study
found that just 15% of Qatari women ages 15 andolder regularly participated in sports (figure 5.18).
To improve the overall health of the population,
there must be a mutual commitment between
the state and its citizens to appropriately modify
lifestyles. There must also be a commitment forLifestyle change through sports education and awareness is key for a healthier population

Cause-specific death rate

A number of worrying population trends
are evident%
100

Cardiovascular diseases
CancerRespiratory system
Endocrine (diabetes, etc.)
Digestive system
Injuries
Congenital malformations
Genitourinary system
Perinatal related
Ill-defined causes
Other

75

50

High caloric intake• 39% of adults are overweight• 32% of adults are obese or morbidly obese
Smoking• 37% of male adults smoke• 22% of male youths smoke
Sedentary lifestyle• Over 50% of population do not engage in regularphysical activity

25

Health illiteracy• Limited knowledge of health issues• Limited awareness of management of diseases
0
1997

2000

2002

2004

2006

2008

Note: Changes in disease classification in 2002 resulted in the ill-defined category growing at the expense of the cardiovascular and cancer categories. Chronic diseases include cardiovascular, endocrine (suchas diabetes) and respiratory diseases as well as cancer.

Sports as inspiration for an active and healthy society

197

Figure 5.18 Social and community influences limit Qatari women’s participation in sports
Regularity of participation in sport andphysical activity of Qatari women ages 15
and older, 2009
Regularity of participation
Regularly

Distribution (%)
15

Sometimes

36

Seldom

32

Never

17

Number of responses

959

Type of sport that Qatari women ages 15
and older participate in, 2009
Type of activity

Distribution (%)

Walking

58

Running

12

Aerobic exercise

14

Swimming

6

Other

10

Number of responses959

all sectors of the government to work in unison
to promote healthy and active living to the public by incorporating sports and physical activity
into a broader preventive health agenda. A seriesof activities will be implemented to champion the
many benefits of active lifestyles to individuals,
families and communities and to increase sports
participation across all age groups and segmentsof society, including those with special needs. The
physical education curricula in schools will bestrengthened to improve the learning experienceof students and to ensure teacher quality.
More youth programmes to encourage
participation in sports

Given that the school community has a unique rolein promoting diverse physical activity opportunities for young people, a national sports curriculum
project will be implemented to improve the physical education learning experiences of students andto ensure they are receiving proper guidance fromwell trained teachers. The activities within the project will complement the ongoing efforts by theSupreme Education Council to improve the qualityof physical education in schools.
198

Qatar National Development Strategy 2011–2016

Factors inhibiting participation of Qatari womenSociocultural constraints• Social codes and traditions and family requirements• Time constraints and family responsibilities
Access constraints• Availability and appropriateness of facilities andprogrammes• Lack of information and guidancePhysiological constraints• Physical weakness and health status• Old age
Interpersonal constraints• Lack of interest and motivation• Lack of networks and supportive environments

Curriculum guidelines will be developed to integrate co-curricular activities and intended healthoutcomes and will include suggestions for more
effectively managing physical education programmes in schools. Examples could include wellbeing teams to develop a positive school culture or
the appointment of student leaders as sports andrecreation coordinators. In addition, guidelines
will be created to focus on activities for students
with physical or learning disabilities. For teachers, professional development opportunities will
be offered to improve skills, and a teacher certification programme will be implemented to ensurethat all teachers are properly prepared. In orderto review the overall strengths and weaknesses of aschool’s curricula and to ensure that it aligns withnational standards, the government will develop amonitoring and evaluation system. And a review ofschool sports facilities and equipment will ensurethat all schools have the sufficient infrastructure to
support physical education needs.
Targets• Develop curriculum support materials, including physical education guidelines for students
with disabilities.

chapter• Ensure that all physical education teachers are
certified.
Healthy and active lifestyle interventions

To champion the many benefits of sports and toincrease participation across all age groups, ahealthy and active lifestyle project will be implemented based on two key components: a sports
participation survey and the Active Qatar campaign. The participation survey will collect information on the frequency, duration, nature andtype of physical activities that individuals undertake. These data will provide an evidence base on
which to develop informed policies that increase
community participation in sports and physicalactivity and that enable the government to set targets for sports participation.
The Active Qatar campaign will be carried out toeducate and engage the public on the importanceof healthy and active living. Given that participation levels are low across the entire population, thecampaign will initially promote active lifestyles foreveryone. This first stage will be followed by targeted campaigns for priority groups whose levelof activity is very low or who have a higher riskof inactivity-related diseases, such as people withdisabilities, women, the elderly and people with
Table 5.9

5clinical conditions such as obesity and diabetes.
The design, implementation and evaluation of the
Active Qatar campaign, as well as the prioritizationof resource allocation, should be guided by andintegrated with the participation survey.
Targets• Collect baseline information on society’s sports
behaviour.
• Increase participation in sports and physicalactivity by Qatari men, women and children.

Equipping the country with accessible
sports facilities
For people to engage effectively in sports and physical activities, Qatar must ensure adequate accessto sports and recreation facilities that provide anenriching learning environment. As sports participation increases, more facilities must be madeavailable so that everyone can easily take part inphysical activity, anytime and anywhere.
A national infrastructure-building programme has
been in place since 2004 to provide more competition fields, neighbourhood playgrounds and cultural centres. Sports infrastructure owned by the
Qatar Olympic Committee and ASPIRE consistsof various facilities around the country (table 5.9).

Sports infrastructure owned by the Qatar Olympic Committee and ASPIRE consists of various
facilities around the country
Total
Facility

2008

Sports stadium
Football playground

Total
2010

Facility

2008

2010

10

12

71

90

Horse racetrack

1

1

Car racing track3

Swimming pool

18

3

18

Indoor bicycle track0

0

Indoor hallBasketball court

32

35

Equestrian field

4

4

8

9

Shooting gallery

1111Volleyball court

8

11

Table tennis hall

20

20

Handball court

11

12

Tennis court

23

23

Billiards hall

11

11

Squash court

21

23

Chess hall

3

3

Hockey field

3

3

Athletic field/track

12

13

Golf course

11Camel racetrack

00

Sailing club

1

1

Sports as inspiration for an active and healthy society

199

These facilities, except for facilities at schools under
the purview of the Supreme Education Council,
are open for use by the general public, with various degrees of access, and are occasionally used for
multipurpose events, such as concerts and plays.
Countries wishing to develop effective sports infrastructure also face the pressure of finding enoughland near residential zones and easily accessible tospectators and athletes alike. This problem is exacerbated in Qatar by its rapid population growthand increasing urbanization. While the country’s
major sports venues are located in populated areas,
restrictions on use and access, as well as incomplete
information, are limiting the demand and potential of sports development among the general public. Additionally, urbanization pressures are increasing competition for land and boosting land prices.
The government will equip Qatar with adequate
and accessible sports facilities by developing anational sports and recreation facilities masterplan to systematically collect and analyse data necessary to develop a network of accessible, highquality open spaces and recreational facilities.
A cohesive plan for developing sports facilities

A national sports and recreation facilities masterplan will be implemented to identify integrated
policies for the development and land use in support of sports and active recreation. The government will undertake an audit of current facilities
to analyse supply against present and projected
future demands. The plan will also include spatial
maps to show the locations of current and future
sports stadiums and competitive venues as well
as dedicated areas for casual recreational activities. Through systematic collection and analysis ofdata related to existing facilities, the government
will create an up to date electronic database of all
sports and recreational facilities to better manage
work towards end goal­— ­a network of accessible,
high-quality open spaces and facilities that meet
public needs and are economically and environmentally sustainable. In addition, before deciding
on whether to build new facilities, the government
will consider sharing existing private facilities andopening school sports facilities to the public at200

Qatar National Development Strategy 2011–2016

specified times, with caveats on insurance coverage and fees.
Target• Complete a national sports and recreation
facilities master plan, including a database of
all sports and recreation facilities in Qatar.

Propelling the country to sporting
excellence
Modern, accessible and appropriate sporting facilities are crucial to the long-term investment Qatar
is making in developing a society that is both physically fit and nurturing of elite competitors. Sports
excellence is integral for generating interest in
sports and building national pride. A key challenge
for Qatar is to improve the performance of Qatarisportsmen and sportswomen at regional and international championships. National sporting heroes
can inspire Qatari youth to participate in sporting
activities and motivate them to adopt a healthy andproductive lifestyle in pursuit of their dreams.
In 2006 Qatar hosted the Asian Games, the premiermultisport continental-level competition in which
Qatar participates. Long before then, however,
Qatar’s youth had demonstrated their excellence relative to other Gulf countries. While Kuwait was thefirst Gulf Cooperation Council country to win a gold
medal at the 1982 Asian Games, Qatar has proven to
be the most consistent and successful (figure 5.19).
Qatar’s growth at the Olympic level is further evidence of the country’s growth as a global sports
competitor. After sending a team of 17 athletes tothe 1984 Los Angeles Olympics, Qatar’s first, thecountry boasted a delegation of 31 athletes justeight years later in Barcelona, where it won its first
medal. Qatar has since added another Olympic
medal, a testament to the improved international
standing of Qatari sportsmanship.
A key challenge for sports administrators in Qatar,
therefore, is to continue improving the performance of Qatari athletes at regional and international competitions. To meet this goal for the
National Development Strategy 2011–2016 andbeyond, the government will enhance talentchapter5

Figure 5.19 Qatar is the best performer among Gulf Cooperation Council countries in the Asian Games
Cumulative gold medals at the Asian Games
25
Qatar

20

Kuwait15

Saudi Arabia
Bahrain

10

5

UnitedArab
Emirates
Oman

0
1974

1978

1982

1986

development for improved sporting success by creating effective development models to nurture athletic growth from the stage of early training to thelevel of elite competition. In addition, a strategic
management plan will be created to support theemployment, retention and development of coaches and technical sports officials to better promote
the growth of Qatar’s sports sector. Besides goodathletes, sports development necessitates capacity
building of professional coaches and a well organized coaching system (table 5.10).
A comprehensive plan for athletic development

This plan will develop a sound and rigorous process to identify and develop young sporting talent.
The Qatar Olympic Committee and its federations
and clubs, as well as the Aspire Zone Foundation,
will coordinate their talent identification and management processes to ensure a seamless transition
between pathways. These agencies will work together to define the development requirements of eachcategorized sport and to formulate a common setof criteria and protocols that reflect athletic ability
among young children. This plan will also benefit
from the Qatar Olympic Committee’s initiatives insupport of a long-term national development model

1990

1994

1998

2002

2006

for athletes, as will achieving the committee’s priority 4 area on athlete pathways development as statedin its 2008–2012 strategic plan. A central database
will be set up to track the performance of the country’s sports talents, and all sports federations will becompelled to share and transfer knowledge as necessary for a more efficient use of resources.
The project will also explore athlete development
models for women and put in place a structure to
take practical steps towards addressing the underrepresentation of women in elite sports. In addition,
athletes with disabilities will be provided with appropriate opportunities and access to sporting pathways.
Targets• Produce an athlete development model, including specific models for women and people withspecial needs.
• Create a national database of athletes.
A strategic management project to develop
professional career paths

A strategic management project will be implemented to identify the systemic resources
required to support the employment, retention
Sports as inspiration for an active and healthy society201

Table 5.10

The ratio of registered athletes to coaches has declined in most sports activities
Athletes

Coaches

Sport

2003

2008

2003

2008

2003

2008

Athletics

1,182

1,208

21

16

56

76

Basketball

685

747

25

45

27

17

Billiards and snooker

142

305

5

8

28

38

Bowling

163

251

6

8

27

31

Fencing

100

208

4

20

25

10

Football

3,255

3,960

182

217

18

18

Gymnastics

158

137

6

14

26

10

Handball

1,313

1,692

36

80

36

21

Martial arts

209

1,763

8

71

26

25

Shooting

125

151

11

16

11

9

Swimming

136

310

13

29

10

11

Table tennis

364

400

13

18

28

22

Tennis and squash

96

297

25

29

4

10

Volleyball

745

1,235

26

60

29

21

and development of coaches and technical sports
human resources, while increasing the overall
knowledge base and capacity of all sports development officials.
A benchmarking exercise will determine international best practices for optimum coaching ratios,
while gaps in the country’s current athlete management practices will be identified.
Target• Develop a strategic plan for coaches and technical human resources.

Fostering cross-sectoral links
The Qatar Olympic Committee’s experience inengaging multiple stakeholders in its work is evidence of the importance of cross-sectoral links insports. Much can be leveraged from the partnerships that have been formed between the committee and other entities, including both the public
and private sectors. At the community level sports
helps build social and family cohesion by bringing
people together in a friendly and active way. At theindividual level participation in sports raises people’s confidence and skills and improves physical202

Ratio of athletes to coaches

Qatar National Development Strategy 2011–2016

health and mental well-being. These personal
benefits contribute towards broader national outcomes, including a healthier and more physically
fit society with lower healthcare costs and a stronger, more productive labour force. Quality sports
facilities and services, including outdoor recreation facilities, also make Qatar a more attractive
place to work, live and visit. At the international
level, sports events and athletes help raise Qatar’s
regional and global profile and enhance national
pride. Sports is also a powerful tool for international engagement and diplomacy through tourism, aid and trade.
A sporting culture cannot take root overnight.
The sports sector of the National Development
Strategy 2011–2016 will be key in meeting thegoals of the social development pillar by enhancing Qatar’s sound social structure and by generating momentum for a future whereby people
will embrace sports as a way of life. But given theinfluence that active lifestyle initiatives can also
have on economic, environmental and humandevelopment policies, several cross-sectoral links
can be identified that demonstrate how sports isboth a goal of, and an enabler of, QNV 2030 (figure 5.20).

Figure 5.20 Sports is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for sports

Encourage greaterappreciation andawareness of sports

Focus on preventive
healthcare to improvewellness

Education andtraining

SportsHealthcare

Ensure economic
prosperity and higher
standards of living

Goal

Family cohesion
and women’s
empowerment

Economic
diversification,
private sector growthand economic
infrastructure

Support talent development

Environment andnatural resource
management

Population, labour
force and Qatariemployment

Create a healthy andinspirational living
environment

Provide a wide talentpool for sports
development

EnablerSports as an enabler for other sectors

Develop stronger
families and strengthencommunity cohesion

Encourage a healthy andactive lifestyle

Family cohesion
and women’s
empowerment

Healthcare

Support growth of tourism andsports-related industries

Education andtraining

SportsEconomic
diversification,
private sector growthand economic
infrastructure

Environment andnatural resource
management

Population, labour
force and Qatariemployment

Support a healthy andactive learning
environment

Provide green spaces forrecreation

Encourage a healthy
and productive
workforce203

Cultural growth for a creative and exceptional society
The state of Qatar will “preserve national heritage andenhance Arab and Islamic values and identity”.­— ­Qatar
National Vision 2030
Across the world countries are attempting to reconcile the forces of globalization and the preservationof national culture. While the increasing influenceof popular culture in societies is inevitable, somefeatures of national culture will persist, despite
global pressures, because of their unique ability toprovide a meaningful sense of national identity. As
Qatar works towards achieving QNV 2030 aspirations, finding the right balance between modernizing and preserving the country’s culture and Arab
identity is a sizeable challenge.
Qatari society has undergone a rapid change ina relatively short period of time. The transformation from natural pearl production to the global
fossil fuel industry has affected almost all aspectsof everyday life, from family life to the national
workforce and to Qatar’s enhanced status among
the international community. In some way all components of the social development sector of the
National Development Strategy 2011–2016 reflect
actions necessary to strengthen Qatari society as aresult of this unprecedented socioeconomic transformation. New developments in communication,transportation and technology are creating new
forms of cultural production, allowing for higher
flows of cultural products into and out of Qatar.
Qatar’s huge expatriate population represents avariety of cultures and includes practitioners ofmany other religions. This shift, which has takenplace in a single generation, has resulted in theneed for an active policy on cultural diversity.
Despite the many changes, Qatari society has
maintained the essence of its culture and a considerable degree of continuity from the past. This
continuity includes observing the fundamental
principles of Islam, maintaining the inherited status and prestige of the leading families and preserving the connectedness of family affinities. The
primary, persistent challenge is to maintain this204Qatar National Development Strategy 2011–2016

balance between modern life and the country’s
cultural and traditional values.
Qatar is meeting this challenge in many ways,
through cultural programme exchanges, international film festivals, athletic competitions,enriched academic curricula targeting artistic
development and more. The Doha Capital of Arab
Culture 2010 is a successful, year-long event celebrating the arts, music and film through conferences, cultural summits and mutual knowledge-­
sharing. Additionally, Qatar is increasing attention
to its own history through enhanced preservation
practices. By thoroughly embracing its cultural
identity in the context of its increasingly diverse
population, Qatar will be well positioned to protect its unique character while continuing to foster
a creative and exceptional society.
However, a country’s culture should be assessed
not only on its artistic achievements but also on
how much it contributes to the social structure.
The culture sector of the social development pillar, therefore, plays a key role in enhancing andimproving the quality of life and well-being of all
citizens, particularly in fostering creativity andpromoting cultural activities around the world.
Qatar will enable the cultural growth of its people,
forge new international relationships and meetthe obligations of QNV 2030 through six overarching outcomes and seven priority projects in which
the government will:• Use culture as a platform for building national­
pride and encouraging intercultural understanding.
• Safeguard and develop Qatar’s cultural heritage to preserve its national identity andstrengthen family cohesion.
• Use culture to enhance young people’s learning, build their self-esteem and help them realize their full potential.
• Attract and nurture high-quality talent to inspireand stimulate the growth of the culture sector.
• Encourage greater interest in culture by providing research and information on the growthchapter5

and potential of the culture sector, as well as
the benefits of being involved.
• Raise Qatar’s profile and standing as a lively
cultural destination and a centre for cultural
exchange.

to increase their participation in cultural activities and will enhance the values of gender equality. It will also increase the knowledge base on theimpact of foreign cultures and its link to societal
changes, especially on the Qatari family.

Achieving these outcomes will enhance the cultural well-being of all citizens and solidify Qatar’s
standing as a centre of Arab culture through its
distinctive national identity.

Rich cultural programmes to engage the community

Increasing demand and support fordiverse cultural activities
Although Qatar’s rapid modernization has resulted
in a certain amount of Westernization, distinctive
elements of traditional culture remain, particularly
in music, poetry, dance and storytelling. Across thecountry, different agencies, including grassroots andcommunity-based groups, are promoting Qatari culture, as well as foreign cultures, encouraging cultural exchange and intercultural dialogue. Thisoutreach has enabled Qatar to raise its sphere of
influence worldwide. But to maximize impact, thesevarious activities need to be enhanced, integrated
and promoted within a national framework, which
will be used as a platform for building national prideand encouraging intercultural understanding.
The government will increase demand and support for diverse cultural activities by establishinga grant programme to support cultural projects(such as festivals, exhibitions, tours, workshops
and conferences), cultural organizations and artist development, and cultural research to collectand disseminate information that promotes theexchange of experiences and best practices. Concurrently, Qatari media, which is important inshaping policies and identity, will take a largerrole in promoting cultural objectives.
The programme to increase demand and support for diverse cultural activities will provide
opportunities for the country to develop the cultural and innovative capabilities of young people
and children, will encourage the elderly and vulnerable people (such as people with disabilities)

A cultural grants initiative will encourage development in Qatar by providing support for:• Cultural projects, including a wide range ofactivities such as festivals, exhibitions, new productions, translations, tours, workshops andconferences.
• Cultural organizations and artist development.
• Cultural research and development, which
will include support for studies and analyses
on cultural cooperation and cultural policy
development, as well as the collection and dissemination of information that promotes theexchange of best practices.
The project will use an interdisciplinary approach,involving key culture stakeholders in a collaborative, participatory process. The grants will be targeted to artists and institutions but will be available to a broader audience, particularly young
people, women and the socially disadvantaged.
Grants will be implemented on a yearly basis, andeach cycle will carry a different theme to inspire
thought on specific social causes or issues (“Culture and the family,” “Culture and women” andthe like).
An information technology platform will be built
to support implementation and administration(for collecting data, allowing applications to besubmitted online and promoting programmes),
and the entire project will be supported by a communications plan that will include annual reports.
The grants programme will be managed by a multisectoral committee chaired by the Ministry of
Culture, Arts and Heritage and will include representatives from throughout Qatar’s cultural
leadership community. The committee will develop and oversee all details relating to administration of the project. For greater transparency andCultural growth for a creative and exceptional society205accountability, the grants programme should be
audited by an independent third party.

Improving management of heritage
resources

Target• Launch a culture grants programme supporting at least 15 initiatives.

Throughout Qatar’s recent socioeconomic transformation, the country’s cultural heritage has
increasingly been seen as an important stabilizing
force, representing a common bond among citizens and acting as a counterbalance to rapid socialchange. Heritage is an irreplaceable resource, so
cultural resources must be safeguarded for future
generations.

Media resources as instruments of cultural
promotion

As part of a new culture and media project, thegovernment will encourage ongoing engagement
between the culture sector and the media for themutually beneficial outcome of greater culturalawareness throughout society. The culture sector will be more proactive by formulating unique
media strategies for different cultural events, bydeveloping a more systematic method of communication through press releases and news conferences and by embracing and adapting to newmedia technologies. The media will be moreproactive by undergoing training for reportingon cultural issues so that reporters, producers
and other media professionals will become better educated partners in cultural development.
Training will be extended to include effective
use of new media platforms, such as Facebook
and Twitter, in an effort to better reach Qatari
youth.
The training activities and enhanced collaborative
partnerships should lead to jointly created content that promotes Qatar’s culture, such as special
features on unique cultural activities like Qatar
National Day or the Eid celebrations, as well as
regular columns or documentaries in newspapers,
magazines and online media formats. In addition,
the website for the Ministry of Culture, Arts andHeritage will be upgraded to better serve as aninteractive platform for education and promotion.
The new website will emphasize information sharing and collaboration in keeping with modern
technology trends.
Target• Implement at least five culture-related projects
with media partners.
206

Qatar National Development Strategy 2011–2016

Currently, Qatar’s laws and regulations do noteffectively support cultural preservation, nor is thetourism and educational potential of archaeological and heritage sites optimized. Most of the morethan 200 estimated archaeological sites in Qatar
have not been legally registered to guarantee preservation of their antiquities. Meanwhile, Qatar’s
heritage sites date from the 17th century and consist of ruins of small villages, forts, palaces, houses,
castles and towers. Many of these sites are deteriorating and in need of repair.
Under the guidance of the Qatar Museums
Authority, established in 2005, the country has
opened numerous museums to display artwork andartefacts, with at least eight more being planned.
Still, the need for a more dedicated and integrated management process is apparent to meet thegoals of QNV 2030. To safeguard Qatar’s cultural identity, the government will improve management of heritage resources through enhanced laws
and regulations to better preserve the country’s
archaeological past and through a programme
to develop the tourism and educational potential
of Qatar’s many archaeological and heritage sites(figure 5.21).
A governance system for heritage resources

A cultural heritage governance project will be
implemented to review and update laws and regulations that affect cultural preservation andarchaeological heritage. This process will include
measures to regulate site safety, property removal, building permit processes and ownership of

chapterFigure 5.21

There are about 200 archaeological sites across Qatar, with more than 900 varieties of petroglyphs
LegendRAS ABU AMRANAL JUMAIL

Palaeolithic sites
Neolithic sites
Chalcolithic and Bronze Age sites
Iron Age sites
Ubaid sites
Rock carvings (petroglyphs)
Cairns or burials

AL GHRIYAH
FUWAIRATAL FURAIHAH
JEBAILAT AIN MOHAMMEDJUSASIYAH

MURWABAL THAKHIRA

UMM AL MA
AL KHORRAS ABURUKBIR HUSAINRAS AL URAKALATSUMAISIMAH
AL WUSAIL

BIR ZEKRITDUKHANAL DAASA

UMM TAQA

AL KASSARDOHAZGAIN AL BAHATH
ACILA

UMM BAB5

Years

Archaeological period

Major sites

Earliest times
to 8000 BCE

Paleolithic

Dukhan, Al Khor

8000 BCE

Early Neolithic

Al Wakra, Al Jubeigib, Dukhan

5000 BCE

Late Neolithic

Al Jubeigib; Shagra B, C andD; Al Khor

2000 BCE

Bronze Age

Al Da’asa, Ras Abaruk1000 BCE

Iron Age

Murwab, Ras Abaruk

AL WAKHRAHJUBEIGIB

UMM SAIDSHAGRANAKSH
AL HURAITHISALWAKHOR AL ODEIDSAUDA NATHIL

heritage buildings. At the same time, the government will seek to expand tourism and educational opportunities of historical sites by developing a strategic promotional plan, beginning withenhanced international recognition through inclusion on the United Nations Educational, Scientificand Cultural Organization’s World Heritage list.
In addition to site preservation, the government
will seek to manage and maintain Qatar’s cultural heritage in other ways. The country’s Cultural
Development Centre will complete a digitization
project in which hundreds of books, maps andmanuscripts of great value to the Arab world will
be made available through an online repository.
The centre is also developing an Arab and Islamic
heritage library with rare collections that exhibit
the depth and wealth of the Arab and Islamic civilizations. And as part of the Qatar National Museum Project, the museums authority will organize
an oral history programme.
Targets• Review and update relevant laws and regulations on cultural preservation and archaeological heritage.

• Establish at least one archaeological site.

Investing in young people
Just as preserving the past is an integral component of a society’s cultural awareness, so too is cultivating a dynamic artistic future. The government
can lay the groundwork for a more robust national programme, but real cultural sustainability will
be achieved only through intergenerational awareness. Qatar’s youth are key stakeholders in cultural development, because they are the current andfuture consumers and creators of culture.
As Qatar diversifies its economy, there is anincreasing emphasis, especially in higher education, on subjects that propel a knowledge economy, such as math and science. However, there
is great value for an equal emphasis to be placedon subjects such as culture and arts. The National Development Strategy 2011–2016 will ensurethat Qatar’s youth are educated to appreciateaesthetics and to take an interest in their cultural heritage, leading to more interesting learning
experiences and more opportunities for creative
development at a young age.
Cultural growth for a creative and exceptional society207

Programmes to enhance youth participation in
cultureA culture and youth project will enhance learning opportunities for Qatari children by promoting young people’s understanding and appreciation for culture at all levels, especially inenhancing national, Arabic and Islamic identity among young people. It will also foster theircreativity and imagination from an early age
into adulthood, nurturing well balanced young
talents with inquisitive, analytical and creativemindsets, strong communications skills and astrong grounding in culture.
Qatar’s cultural leadership groups will strengthen
their own partnerships to improve the teaching of
culture in schools and to leverage the country’s
many cultural and heritage sites into enhanced
learning experiences.
A visual arts and design high school will be established with a focus on developing skills, improving
techniques and enhancing creativity. The school
will give students practical exposure to the artsand design industry and include elective subjects
such as film, photography, digital media, design
and technology. Together with the Virginia Commonwealth University in Qatar, which provides
tertiary arts education, the establishment of thisschool will ensure that a culture and arts education is systematically and comprehensively promoted in the country.
Targets• Develop pilot programmes in experimental
learning opportunities in culture in at least fiveschools.
• Establish a visual arts and design high schoolwith an enrolment of at least 50 students.

Developing high-quality artistic talent
By reaching the country’s children at an early age,the government will be taking the first, crucial
steps in cultivating a dynamic, sustainable artistic
foundation for the future. Qatar foresees a vibrant208

Qatar National Development Strategy 2011–2016

community of artists living and working locally,
but a thriving culture sector needs to be supported by a highly qualified talent pool, and there areseveral aspects of the arts workforce that present
challenges to professional development, such as
limited opportunities for specialized training andnegative public perception on the value of an arts
career.
While Qatar has the capacity to build the necessary infrastructure to support artist development
efforts, an immediate challenge is how to generate sufficient interest in the sector to address
the shortfall in promising creative careers. The
Ministry of Culture, Arts and Heritage is trying
to develop and promote Qatari theatre, but the
local scene is being held back by limited opportunities for artists to pursue specialized training,
limited venues for practice and staging and a lackof playwrights, directors and producers. Throughthe National Development Strategy 2011–2016 thegovernment will develop high-quality artistic talent to inspire and stimulate growth by expanding its knowledge base on the arts industry and byimplementing a comprehensive artist development
project to create a more enabling environment for
aspiring artists.
A framework for artist development

A comprehensive artist development project will
be implemented to strengthen professional capabilities in theatre. Experiences from this projectwill be adapted and applied in the context of otherart forms, such as music, film, dance and others.
The project will focus on three primary goals­—­developing a dynamic and collaborative community of theatre artists, generating greater interestin theatre and the arts overall and creating a supportive environment to ensure an individual’s fullartistic potential is reached. A capability development programme will be established to take artists
from one phase of growth to the next.
A baseline study will be conducted to better
understand the key players in the theatre industry,
the level of support currently provided to theatrechaptergroups and artists, and the venues and facilities
available for practice and staging. The capability
development programme will build on this baseline study to provide Qatar a roadmap for discovering and grooming talent, enhancing professional competencies and recognizing achievements
through awards and special functions. Designinga comprehensive artist development programme
will take time, so the government will implement various “quick-win” initiatives to begin generating interest and momentum for the overall
programme.
Targets• Develop a better understanding of the theatre
scene through a baseline study, and create acapability development programme for artists.
• Implement at least two “quick-win” initiatives
for artist development.

Providing better information for
cultural advocacy
As Qatar looks to further develop its own artistic
talent pool, the country is cultivating its reputation as a leader in international Arab culture byhosting such high-profile and influential eventsas the Doha Tribeca Film Festival and the Doha
Capital of Arab Culture 2010. Qatar has also
invested heavily in developing its cultural sector through the establishment of the Museum ofIslamic Arts, the Cultural Village and the Qatar
Philharmonic Orchestra. While these attractions obviously enhance Qatar’s cultural cachet,their impact on the country’s social and economic outcomes is unclear due to fragmented
and incomplete information, making it difficult
to form a coherent national picture of culturalactivity. Since cultural data and information are
required to support policy planning and development, there is an urgent need to improve information and communications on cultural activities in Qatar. To close this knowledge gap, thegovernment will provide better information for
cultural advocacy by developing a cultural statistics framework to enhance the range and qualityof data available.

5

Better information and communications on culture

Developing a comprehensive cultural statistics
framework will be the first step in a long-term
cultural information project process intended to
improve the quality and range of statistical dataon Qatar’s cultural sector. The development of
the framework will involve considerations of such
issues as a working definition for culture, the classification of cultural activities, measurements of theeconomic and social dimensions of culture anddata collection processes. Once the framework isestablished, a regular publication on Qatar’s cultural statistics will be produced, giving a more
holistic picture of the country’s culture scene. An
additional source of information sharing will be
the upgraded Ministry of Culture, Arts and Heritage website, identified as part of the Culture andthe Media Project. The redeveloped website willserve as an interactive portal for dissemination anddiscussion of the country’s cultural information.
Targets• Improve the framework for measuring the levelof cultural activity in Qatar, including producing a publication with key cultural statistics andindicators.
• Improve communications on cultural activities
through an upgraded Ministry of Culture, Artsand Heritage website.

Strengthening Qatar’s cultural
diplomacy
Qatar has invested heavily in developing homegrown cultural initiatives and in attracting international institutions and events to the country.
Examples include expansion of the Al Jazeera
broadcasting network; dynamic bids to host the
Olympic Games and the World Cup; international sporting events in golf, tennis, squash, cycling,
gymnastics and motor sports; and the higher
learning institutions of Education City, which haveattracted students from numerous countries.
At the regional and international level Qatar plays
a key role in promoting dialogue and religious
Cultural growth for a creative and exceptional society209

tolerance through various regional and international initiatives, such as the annual U.S.-Islamic
World Forum, which is hosted in partnership with
the Brookings Institution to strengthen relationships between the United States and the Islamic
world. The country also hosts the annual Doha
Interfaith Conference to encourage constructive
dialogue between religions for greater mutual
respect and cooperation. QNV 2030 foresees Qatar
playing an increased regional and internationalrole economically, politically and culturally, particularly within the framework of the Gulf Cooperation Council, the Arab League and the Organization of Islamic Conferences.
An intensification of cultural exchange with the
Arab community and with other countries in general will create a positive image for Qatar andenhance international relations, so the government will improve branding of the country’s global
image, using cultural exchange programmes andregional arts initiatives to promote Qatar’s culture.
In addition, continuing to attract key international cultural events and showcases to Doha will reinforce Qatar’s image as a cultural hub and better
position the country to assume a larger leadershiprole within global society.
Regional and international cultural exchange
activities

A Qatar global branding project will be implemented to improve the visibility of Qatar’s culture
sector through international showcases that allow
local artistic talents to become cultural ambassadors for Qatar. Through other cultural sector
projects under the National Development Strategy 2011–2016, support will be given to artists andarts group to enable them to participate in prestigious events and to collaborate with foreign arts
groups and artists. Not only will artists’ audiences be broadened, but artists’ work will help reinforce Qatar’s image as a cultural hub. To further
the cause of extending Qatar’s image, the government will also:• Develop distinctive cultural content.

210

Qatar National Development Strategy 2011–2016• Invest in the necessary supportive infrastructure.
• Create a rich calendar of cultural activities.
• Implement an innovative and creative marketing and promotions campaign.
Following this blueprint will allow Qatar to continue to attract key international cultural events,
symposiums and conference to Doha, providing the country with a platform for its activities
and attract visitors who view Qatar as a culturaldestination.
Target• Improve the country’s national image regionally and globally to strengthen Qatar’s position
as a cultural hub.

Fostering cross-sectoral links
As Qatar and its people become more global intheir outlook, the need to develop a stronger
sense of national identity will intensify. Culture,arts and heritage are a common bond that will
promote stronger social cohesion and a greater
sense of individual contribution to the growth ofsociety. Perhaps in no other area of governmentis the need to properly balance modernization
with the preservation of traditions so great, yet
the challenge of finding that balance is consistently present across all sectors of social development
strategy.
A vibrant community culture is fundamental to
the well-being of society and critical to the continuation of a healthy societal value system. The culture sector of the National Development Strategy
2011–2016, therefore, will play a key role in meeting the goals of the social development pillar bypreserving Qatar’s national heritage and enhancing the Arab and Islamic values on which Qatar’ssocial structure is based. But given the influencethat cultural enhancement initiatives can also haveon economic, environmental and human development policies, several cross-sectoral links can be
identified that demonstrate how culture is both agoal of, and an enabler of, QNV 2030 (figure 5.22).

Figure 5.22 Culture is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for culture

Encourage greaterappreciation andawareness of culture

Create a healthy
population

Education andtraining

CultureHealthcare

Ensure economic
prosperity and higher
standards of living

Goal

Family cohesion
and women’s
empowerment

Economic
diversification,
private sector growthand economic
infrastructure

Support talent development
and improved culturalawareness

Environment andnatural resource
management

Population, labour
force and Qatariemployment

Encourage a healthy
and inspirational
living environment

Provide a wide talentpool for culturaldevelopment

Enabler

Culture as an enabler for other sectors

Strengthen family andcommunity cohesion

Nurture a wellbalanced andconfident population

Family cohesion
and women’s
empowerment

Healthcare

Encourage growth of
tourism and related culturalindustries

Education andtraining

CultureEconomic
diversification,
private sector growthand economic
infrastructure

Environment andnatural resource
management

Population, labour
force and Qatariemployment

Provide interesting learning
experiences and opportunities
for creative development

Encourage greater
environmental
consciousness

Develop creative mindsets
and cultural sensitivity toworking in multicultural
settings

211

Moving social development forward
One of the key challenges of QNV 2030 is balancing preservation of traditions and modernization.
With Qatar developing at an unprecedented speed
and becoming ever more globalized, the tensionof balancing these opposing elements intensifies.
Greater freedoms, more choices and increased
wealth from economic and social progress arechallenging the deep-rooted social values highly cherished by Qatari society, creating stresses and strains. Nowhere are these pressures felt
more broadly than in the social development pillar, as literally every segment of society and every
age group­—­regardless of gender, race, wealth or
occupation­—­w ill be affected by the direction andeffective management of social policy. To reachthe goal of a caring and cohesive society, Qatar
will need to be diligent, comprehensive and inclusive in its implementation of the social development plans laid out here.
Integrating the policies of multiple, interrelated
sectors into one framework will benefit Qatar inmany ways as it pursues a progressive social agenda in a highly traditional society. This approach
will ensure that careful consideration and proper
respect is given to traditional values and cultural sensitivities, even as necessary advancements
are made in social equality, protection and justice. Qatar’s families, for instance, must remainstrong and cohesive and provide a supportive
environment for all members. At the same, however, women must be given more opportunity tocontribute to the economic and cultural world atlarge without diminishing their role within thefamily structure. Children must be guaranteed anurturing family life with close parental ties but

212

Qatar National Development Strategy 2011–2016

also broad opportunities for social development
through increased exposure to the arts, culture
and active lifestyles. Just as all elements of a family must work together to build a solid and stable
household, all elements of a social structure must
work together to build a solid and stable society.
The objectives for a forward-looking integratedsocial development policy will be achieved only
through careful, cross-sectoral strategies with thehuman development, economic and environmental pillars. Enhanced labour opportunities for all
citizens will contribute to a more just and equitable society, in addition to a stronger national economy. Active participation in exercise and sports
programmes will lead to healthier children andadults. More advanced building and occupationalsafety regulations will contribute to better humandevelopment through improved health and safety,
land management and environmental practices.
As Qatar continues to grow and change culturally
and economically, integrating social development
practices ever more closely with all government
policies will lead to stronger and more sustainableoutcomes.
The individual sector strategies that together create a cohesive and integrated social development
strategy are separate in name and designation
only. The National Development Strategy 2011–2016 offers a golden opportunity for all stakeholders in Qatar’s social sector to raise the levelof cooperation and integrated teamwork to evengreater heights in order to ensure maximum benefits on the government’s investment in Qatar’s
current and future social structure.

Chapter 6
Sustaining the enviroment for
future generations

6

Sustaining the environment
for future generations
Qatar’s natural resource endowment creates a unique mix of benefits
and stresses. Significant wealth in hydrocarbons has generated one of
the world’s highest per capita incomes, but extreme scarcity in waterand arable land has created equally unusual vulnerabilities and deficits.
The government’s first National Development Strategy sets out a planfor 2011–2016 that balances economic growth and environmental
protection. The overarching goal is a sustainable framework that assures
future generations’ prosperity but with a quality of life unconstrained byshortages or inherited ecological damage.

Managing resources and protecting
opportunity for future generations
The dichotomy of wealth and scarcity plays out at
all levels of Qatar’s economy and ecology. Between
2004 and 2009 the economy grew in real terms at arecord average of 17.1% annually, raising individual incomes to the highest level in the world. Steadyinvestments have established Qatar as the world’s
largest exporter of liquefied natural gas and a major
force in global energy markets. Development of petrochemicals and metallurgy, combined with entry
into new sectors such as financial services, has moved
the country towards economic diversification. Meanwhile, Qatar has used the significant returns on its
hydrocarbon sector to invest in its people throughprogrammes in health, education, social protection and infrastructure (see chapters 3 and 4).
The National Development Strategy 2011–2016
calls for continued diversification and an expanded
productive base, along with forward-looking management of environmental challenges. As in any
fast-growing economy, economic activity introduces
certain stresses into the surrounding environmental and social systems. A surging economy and rapid
214

urbanization have gone hand in hand with a fourfold increase in population since 1990. The increasingly affluent and growing population, 1.7 million
in mid-2010, has raised demands on scarce water
resources, heightened land-use pressure, increased
automobile traffic and generated tons of household
and industrial waste each day.
Environmental points of stress

Key environmental stress points include:• A rising water table in Doha, which is raising
construction costs, multiplying the city’s environmental challenges and threatening marine life.
• Increasing salinity in groundwater sources
for agriculture, which has degraded soil quality. This rise has lowered farm productivity,
which is already poor as a result of local farming methods, inappropriate mixes of crops andlivestock, and government subsidies.
• Declining air quality, which results from chronically high levels of dust mixing with chemical
pollutants. Air pollution contributes to highrates of asthma and respiratory illnesses.
• Climate change, which presents special challenges. As a major energy producer, Qatar’schapter

6

carbon dioxide emissions contribute to greenhouse gases. As a small coastal country, Qatar
is vulnerable to predicted rising sea levels.
• Threats to biodiversity, which have left 31 identified species vulnerable to extinction.

development. The government also recognizes theimperative of cultivating a sense of environmental responsibility within industry, while building alegal system and effective institutions that support
environmental protection over time.

A forward-looking vision, new commitments

The transition to sustainable environmental management will involve shifts at all levels. Many existing national structures, institutions and practices
are not oriented to take into account the needs offuture generations or to balance the sometimes
conflicting priorities of economic expansion andenvironmental protection.

The National Development Strategy 2011–2016 forthe first time explicitly aligns the growth of national prosperity to the realities of environmental constraints. The strategy for improved environmental
management draws on extensive consultations carried out throughout society, including interviews
with individuals from government, industry, nongovernmental organizations and academia. The strategy also incorporates the spirit of Qatar National Vision
2030 (QNV 2030), which warns that overly aggressive
economic development could result in many negative risks, including harm to the environment.
By establishing a programme of strengthened environmental management across economic and natural resource sectors, the government strategy setsout a framework for continued economic growththat avoids penalizing future generations. Advancing specific actions to conserve water, manage
waste and discharge, improve air quality and protect biodiversity, the strategy adheres to the foundational concept of intergenerational justice. This
calls for “a process that seeks to meet the needs ofthe present generation without compromising theability of future generations to meet their needs.”
The forward-looking strategy, a “bridge to the
future,” lifts environmental concerns to a new level,
within a balanced programme of economic growth,social development and environmental management. While investing in sources of future prosperity, the government will adopt and adapt the mosteffective policies and technologies for protecting
environmental assets and reducing pollution.
To ensure continuing progress in environmental
management, the government will take steps tomobilize all citizens. Public awareness-­building will
educate the population on the need for sustainable

The new framework­—­w ith intergenerational equity at the centre­—­is a balanced programme of economic growth and environmental protection inwhich neither drives out the other. To avoid or
minimize harmful consequences for the environment, QNV 2030 calls for economic growth “at apace that is consistent with the realistic expectations of sustainable improvements in livelihoods
and in the quality of life.”
Systemic changes

Qatar’s strategy for environmental management
calls for 11 interrelated actions that cut across allareas of environmental management. Setting specific targets to be achieved by 2016, the strategy
establishes a comprehensive programme to preserve the quality of life for future generations.
Water will be better conserved and protected fromdegradation. Expanded recycling will greatly
improve solid waste management. Careful monitoring and regulation will protect vulnerable species and broadly preserve Qatar’s natural heritage.
Urban spaces, subject to intense construction overthe past decade, will be healthier and more liveable as green spaces are added.
The government’s ambitious agenda will requireorganizational changes and substantial capacity-­strengthening within institutions responsible forthe environment. Although many parts of government and the private sector will be involved,
the Ministry of Environment will assume the lead.
Sustaining the environment for future generations

215

Its expanded responsibilities will require recruitment of scientists and technical specialists to oversee research, monitoring systems and regulation.
In addition, the ministry will need to collaborateclosely with other government units.
Qatar’s emerging commitment to environmental protection will require a virtual revolution in
information and data-gathering systems. In mandating new standards for water, solid waste, airborne pollutants and biodiversity, the governmentis taking stock of present conditions while defining realistic improvements for the next six years.
However, decision-­makers need more information on groundwater levels, biodiversity and thehealth effects of air pollution­—­to cite just threeareas where information gaps pose a challenge forassessing present and future risks and designingsolutions. Similarly, individual challenges­— ­such
as Doha’s rising water table­—­w ill require that officials first gather key information and then fashiona plan for reversing harmful trends.
For example, coordination with health experts
will be critical to assess the precise health effectsof local air pollution, which require more study.
Appeal to long-held values

The government has anchored the plan for environmental protection in the core value of intergenerational justice, recognizing that depleting
finite resources without creating new resources ofrenewable wealth jeopardizes the rights of future
generations.
Respect for the needs of future generations is a basic
religious and moral value among Qataris. In thesame spirit as equipping the next generation withskills for future prosperity, the environmental management strategy seeks to spare future generations
an unwanted legacy of contamination and scarcity.
Qatar’s strong financial position, supported by ahydrocarbon-based income stream anticipated tolast another century, positions the government tomake the extensive investments needed to achieve216

Qatar National Development Strategy 2011–2016

the strategy’s goals. Other countries might hold thesame aspiration of ensuring high quality of life for
future generations but lack the resources to build
an integrated platform for sustainable development.
Qatar’s abundant hydrocarbon resources can be leveraged to make sustainable development a reality.

Realizing Qatar National Vision 2030 forsustainability
Interventions to be initiated between 2011 and2016 will put Qatar on a path of environmentally sustainable development. Many of the changes
call for new patterns in consumption and production, complemented by lasting improvements inenvironmental governance and performance. The
environmental management strategy envisions a
broad shift in laws, regulation, management systems, technologies and attitudes (see chapter 3 forthe proposed economic measures).
Expertise from around the world will be tapped toensure that the government has access to the mostpromising ideas and innovations. In time, Qatar
will emerge a regional or global leader in environmental technologies and applications.
The strategy for improved environmental management involves working towards seven outcomes:• Cleaner water and sustainable use.
• Cleaner air and effective climate change responses.
• Reduced waste, more recycling and more efficient use.
• Nature and natural heritage conserved, protected and sustainably managed.
• More sustainable urbanization and a healthierliving environment.
• An increasingly environmentally aware population.
• Improved governance and regional and international cooperation.
In each area the government has established measurable targets to be attained by 2016. Five of theseven outcome areas involve tangible componentsof the physical environment: the water we depend
on for all human activity, the air we breathe, thewaste we must dispose of or reuse, the urban

chaptersetting where most of the population lives andworks and the natural heritage we hope to protect.
Many outcomes in these five areas involve observablechanges. For example, water leaks will be sealed, gasflaring will be reduced and a robust recycling industry will cut the volume of waste deposited in landfills.
Changes in the other two areas­—­involving awareness and governance­—­are less readily measured but
are critical to achieving the more tangible shifts. For
example, building an environmentally aware population will be crucial to advancing conservation, andimproved governance will be necessary in designingand enforcing new environmental regulations.

Cleaner water and sustainable use
Among the various environmental concerns facing
Qatar, the most pressing is linked to the country’s
most acute scarcity­—­that of water (see chapter 3).
With one of the world’s lowest levels of rainfall, Qatar
relies on water from three sources: desalination,

6

groundwater and recycled water, and all three facestresses. Notwithstanding the pressures, Qatar’s
consumption and network leakage rates are high.
Per capita household water use is one of the world’s
highest­. People living in Qatar consume on average
310 litres each day, more than double the averagefor Western European countries (figure 6.1).
Qatar’s domestic and industrial water demand is
met primarily through desalination. Annual production of desalinated water has more than quadrupled over the past two decades to 2009 (figure6.2). But despite the massive increases, production
per capita has been declining in recent years. At
the same time per capita water use has been rising,leading to rising water stress. Reducing network
losses, investing in new technologies and adoptingenergy conservation measures are thus imperatives.
To address the various water-related vulnerabilities, the government will establish a national water
act by 2016, bringing together a fragmented systemof rules and quality controls into an integrated,

Figure 6.1 Reducing network losses and household consumption is key to sustainable water use
Network losses

Per capita household consumption

Network losses, 2006 (%)

Litres per capita per day, 2001–2002

40

400

35

30

Loss possibly above 30%

Canada300

30

United States

29
Savings potential

Switzerland

Qatar, 2009
(reduction of 83 litres
per capita per day;
130 million cubic metres)

200
Qatar, 2009
(reduction of 12%;51 million cubic metres)

10

Norway

26

20
18

Qatar

19
Germany

100

10Turkey70
Qatar

Germany

Denmark

UnitedKingdom

France

Italy

0
0,000

20,00040,00060,00080,000GDP per capita, 2001–2002 (US$)

Note: Network losses include physical losses, apparent losses (water theft and meter inaccuracies) and unbilled authorized consumption.
Source: Kahramaa, Statistics Report (2008); Eurostat (2001); IFEN (2002); http://dardel.info/EauConsumption.html (2001, 2002); OECD, OECD Factbook: Economic, Environmental and Social Statistics(2009); EIU, Residential Household Consumption (2001, 2002, 2006) and Country Data Annual Time Series (2010).

Sustaining the environment for future generations

217

Figure 6.2 Production of desalinated water has increased massively but has barely kept pace withpopulation growth
Desalinated water production
Million cubic metres

Cubic metres per capita

500

250
Production per capita

400

200

300

150

200

100

100

50
Production

0

0
1990

1992

1994

1996

1998

2000

2002

2004

2006

2008 2009

comprehensive system. Shifts in tariff structures,combined with a broad campaign for public awareness, will help cut unnecessary water use and waste.

tariffs (free for Qatari households and low-cost for
non-Qatari households) that recover less than athird of the costs of water production.

Qatar has become increasingly dependent onwater produced from seawater, by means of costly
and energy-intensive thermal desalination, which
accounts for about half the water used in the country. But with rapid population growth and urbanization, the volume is soaring: use of desalinatedwater has tripled since 1995, reaching 312 million
cubic metres in 2008.

Currently available desalination technologies limit
how much new water the country can produce fromseawater. A new power and water station to be commissioned in 2011 will increase capacity for desalinated water to 539 million cubic metres from thecurrent 360 million cubic metres. The new facility
will relieve some pressure, but further expansion
will be difficult. A cogeneration plant takes up ahuge area of land, and drawing seawater from shallow areas can result in poor quality intake water.
High seawater salinity on the west coast and lack ofspace in the heavily populated east coast are substantial constraints. Adding to the threat of future
shortages is the expected 2020 decommissioningof a Ras Abu Fontas co­generation plant that will
have reached the end of its technical life.

Increasing demands on desalinated water are
projected to continue­— ­w ith heavy water losses,a growing population and higher household use.
Based on current trends, consumption through2020 is expected to increase 5.4% a year for
Qataris and 7% a year for expatriates. As of 2009,
however, studies show that Qataris consumed
1,200 litres per person per day, while expatriates
consumed 150 litres per person per day. Compared with other countries, Qatar has low water218

Qatar National Development Strategy 2011–2016

All countries experience network losses in theirwater systems­— ­from unmetered use and leaks.

chapter

But Qatar’s losses of desalinated water are unusually high, and given the overall pressures on watersupplies, costly (see figure 6.1). The system loses anestimated 30%–35%, compared with an Organisation for Economic Co-operation and Development
country average of 18%. The Qatari strategy for
improved water management calls for an aggressive five-year programme to cut network losses.
Groundwater supplies also are critical, accounting
for about 36% of water use, predominantly in agriculture. But these sources are being rapidly depleted, mostly by increased irrigation. An estimated 250 million cubic metres of groundwater are
extracted each year, five times the 50 million cubic
metres of freshwater recharge that comes from
Qatar’s meagre rainfall plus flows from Saudi Arabia. In the foreseeable future Qatar’s freshwater
reserves may begin to be used up as water demand
continues to grow.
Groundwater supplies are also subject to high levels of waste and loss. Some are used for flood irrigation of open fields, a practice with high levelsof loss to evaporation. By contrast, farms in the
United Arab Emirates rely mostly on the morewater-efficient “drip and soak” irrigation methods. Farmers in Qatar pay a small pumping charge
but otherwise have free use of groundwater, which
provides little incentive for conservation.
Meanwhile, quality of the groundwater system is a
growing concern. Brine produced by certain farm
processes is discharged back into the ground, raising the salinity of the remaining groundwater.
Since this water is later deployed for irrigation andother agricultural uses, it increases the salinity ofthe soil. Substantial parts of groundwater reserves
show salinity levels above what is considered suitable for irrigation.
Recycled water, or treated sewage effluent, is the
only water source in surplus. It is used mostly in
irrigation, accounting for 14% of water use. Treated sewage effluent can play a significantly largerrole in industrial processes, district cooling andwatershed management. Qatar now reuses about

6

24% of total freshwater supplies, compared with a
16% average among Gulf states.
However, Qatar lacks the infrastructure to deliver
recycled water to every potential user. Partly becauseof this constraint, the supply of recycled water
exceeds consumption, leaving about 40% of treated sewage effluent to be dumped into vast septic
lagoons, creating problems for nearby communities.
Qatar’s strategy will address other water-related
stresses, including improvements in the sewage
treatment network and controls on wastewater
dumped into the sea.
Rising groundwater, a problem for many cities
around the world, is an acute challenge for Doha,
where about a third of Qatar’s desalinated water,or 110 million cubic metres, leaks into the city’swater table each year (figure 6.3). The inflows to
the Doha water table come from two sources: leakages from Kahramaa’s clean water distribution
network and leakage from Ashghal’s sewage collection network. As a result of rising groundwater,some septic tanks are overflowing, posing serious
health hazards­— ­and costs for building projects
are rising because construction teams must pumpout large quantities of water and waterproof thefoundations of new structures. The main responseto the problem has been regular pumping ofexcess water into the sea, but that practice may beharming the marine environment. A study is now
under way to assess the possible impact.
The government aims to reduce to zero the net
inflow to the Doha water table. In the short term
this will increase water discharges into the sea
but under safeguards that minimize the harmful
effects on marine life. The long-term plan envisions greater use of the excess flow for irrigation,
wetland habitats and recycling. Wetlands can playa significant role as a biological filter, allowing lesspolluted water to recharge aquifers or flow into thesea with minimal damage to the marine ecosystem.
Critical to Qatar’s strategy for sustainability is thatsome patterns can change if a mix of policies,
Sustaining the environment for future generations219

Figure 6.3 About a third of water produced leaks into the water table each year
Untreated
septic lagoons~95 million cubic metres

Small industry waste water~18 million cubic metres
Disconnected homes
dump untreated sewage~75 million cubic metres

Desalination
312 million
cubic metres
Municipal use~200 million
cubic metres

Sewage network~96 million
cubic metres

Excess treated sewage effluent~70 million cubic metres

Treated sewage effluent~96 million cubic metres

Treated septic
lagoons~70 million cubic metres

Fodder
~25 million cubic metres
Septic tank overflow

Leakage of untreated sewage
in transmission~20 million cubic metres

Irrigation~1 million cubic metres
Runoff~0.5 million cubic metres

Leakage in transmission~100 million cubic metres
Water table~120 million cubic metres
Outflows
pumped to sea~50 million cubic metresinformation and technology can be brought tothe challenge. In some areas, the government has
already launched measures to alleviate recognizedproblems in water use. In other areas, the government has taken stock of particular stresses andset targets for change. Among other changes, thestrategy should bring about lower water losses anduse patterns that are better aligned with the needsof a water-scarce country.
A priority of the National Development Strategy
2011–2016 is to improve the management of water
resources so that future generations do not facedifficulties meeting basic needs.

followed by a system of integrated regulation. The
overarching goal is a set of policies and regulations through which the government will alignconsumption and supply over time while protecting water quality. Quality standards for industrial,
agricultural and domestic uses will be critical toestablish. In addition, controls on water discharge
will be a crucial form of environmental protection.
Target• Enact a comprehensive National Water Act
establishing an integrated system of quality
requirements, discharge controls and incentives for conservation—in place of today’s fragmented system of laws and regulations.

National Water Act
Urban water table management plan

The presently fragmented patchwork of laws andrules will be replaced by a comprehensive water
policy, codified under a national water act and220

Qatar National Development Strategy 2011–2016

Kahramaa, the Qatar General Electricity andWater Corporation, is investing in piping andchapterleak-sealing operations to lower network water
losses to 10% by 2016, from the present 35%. Tariffstructures that encourage conservation, coupledwith public awareness campaigns and mandated
use of water-efficient appliances, could reduce
consumption by as much as 40%, according tosome estimates. These efforts, together with the
reduced water losses, could add another decade
beyond 2020 to Qatar’s desalinated water supply.
Wastewater treatment facilities will be significantly expanded, and water discharge will be regulated for the first time, with standards for industrial,
domestic and agricultural users.
The government will establish a system for monitoring diminishing fresh groundwater levels while
taking stock of the full causes and consequencesof Doha’s rising water table. The government will
work to eliminate excess flows into the Doha watertable.
Challenges abound in shifting Qatar’s water management to a sustainable, integrated plan. Raising awareness and inducing behaviour change
are critical components of the strategy. Institutions such as the Qatar Green Centre, the Friendsof the Environment Centre and the Ministry ofEnvironment Public Awareness Group will play anincreasingly visible role in fostering attitudes andconsumption patterns supportive of environmentally sustainable development.
Target• Monitor groundwater, conserve freshwateraquifers where possible and eliminate excesswater in Doha’s water table.

6

on energy consumption. The trend of rising energy production and consumption generates two
immediate environmental impacts: increased
greenhouse gas emissions and greater local pollutants and associated risks.
Thus, Qatar has two categories of air quality challenges. First, various local pollutants mix withparticulates in the air­— ­including chronicallyhigh levels of dust­—­to cause air quality problems
that contribute to asthma and respiratory illnesses. Second, carbon dioxide emissions, mostly from energy production, add to greenhousegases and contribute to global climate change.
Qatar will develop a national policy to manage
air pollution, greenhouse gas emissions and thebroader challenges of climate change. All sectorsof society­— especially the private sector­— have arole.
Improve air quality management

Qatar has seen a rise in pollutants that may be creating health risks. Among them are particulates(such as dust), nitrogen oxides, volatile organic
compounds and ozone. Although average ozone
levels meet international standards, there havebeen episodes where ozone levels exceeded safe
levels (table 6.1). Under the government’s strategy ozone levels would be controlled to eliminate
any periods of excessive levels. The governmentis also committed to regulating volatile organic
compounds.

Cleaner air and effective climatechange responses

In addition the government will develop an early
warning tool to determine the sources of ozone
pollution, including those in neighbouring countries. Increased dialogue and information sharing with neighbouring countries will support theeffort.

Qatar’s economic growth builds on the development of a global energy industry, the world leader of liquefied natural gas operations. Diversification into petrochemicals and metallurgy as wellas cogeneration facilities providing desalinatedwater make Qatar’s economy heavily dependent

High prevalence of asthma and other respiratory
diseases is believed to be caused or exacerbatedby these pollutants. A recent finding that almost afifth of Qatari schoolchildren suffer from asthma
is a serious concern. Links will be analysed in astudy on air pollution and human health.
Sustaining the environment for future generations

221

Table 6.1

Daily intervals reveal ozone levels that exceed safe levels in Doha(average number of readings above ambient air quality standards)
Al Comice stationa
PollutantSulfur dioxide (daily)

Qatar University station

2007

2008

2009

2007

2008

2009

0

0

0

0

0

0

Nitrogen oxide (8 hour)

7

0

0

0

0

0

Carbon monoxide (8 hour)

0

0

0

0

0

0

Ozone (8 hour)

8

0

1

2

9

11

Particulate matter (daily)

76

138

156

135

229

227

a. Near Movenpick hotel on southern end of corniche.

To be effective, the government’s new air quality controls will require across the board upgradesof supporting infrastructures and institutions. Air
quality monitoring stations will need to be integrated and unified to support an online database withreal-time readings. Alongside new rules on emissions, the government will design systems for enforcing compliance, including penalties for violations.

2003–2008, and the number of vehicles per household now at 3.6. To lessen automobile dependence,
the government is planning a high-speed rail line
connecting Doha, Bahrain and Saudi Arabia, plus
an underground monorail. More broadly, current
scrutiny of subsidized prices for fuel could lead toshifts that encourage conservation and therefore
reduce carbon dioxide emissions.

Any comprehensive effort to reduce greenhousegases will necessarily touch on consumption patterns. Energy consumption grew 57% from 2001 to
2006 as a result of a rapidly growing populationand expansion in the energy and industrial sectors.

To respond to the challenge of reducing greenhouse gases, the government is establishing areporting mechanism to track national carbon
dioxide emissions.

Reducing the energy intensity of electricity consumption will require awareness campaigns oriented to both the demand and supply sides of theequation. On the demand side new incentives andthe effects of heightened awareness will prompt
consumers to cut demand. On the supply side plant
capacity can be optimized by allowing seasonal
shutdowns of one or more plants. Combined, these
initiatives can cut power generation by 7% by 2016.
The Qatar Sustainability Assessment System forGreen Buildings will establish green building
standards to which all government buildings will
have to conform by 2016. Afterward, all new commercial buildings and residential buildings will be
brought into the new regime.
Automobile traffic has increased, with the numberof registered private vehicles rising 12% a year over222Qatar National Development Strategy 2011–2016

A recently developed modelling tool can be used toprovide advance warning for air quality changes.
Qatar will work with other Gulf countries to develop a predictive regional air quality modelling tool.
Target• Eliminate instances of excess ozone levels
through improved air quality management.
Reduction of gas flaring and venting

Fuel combusted during energy production
accounts for 67% of Qatar’s carbon dioxide emissions (figure 6.4). Of these emissions, 37% stems
from energy expended in basic oil and gas production, about 12% is attributable to gas flaring,
and another 18% results from petrochemicals andcogeneration of water and power for industrial
users. Households and commercial users accountfor the remaining 33% of total emissions.

chapter

6

Figure 6.4 Two-thirds of Qatar’s carbon dioxide emissions stem from heavy industry
Share of carbon dioxide emissions, 2007 (%)
100

6

2

7
Production (67%)

Production

18

75

Levers to reducecarbon dioxide
emissions

Current
performance• Reduce energy
production trajectory—

Feasibilityof reform• Reduce flaring
10• Capture carbon
dioxide released fromliquefaction process

Consumption (33%)

8

50

12

Consumption
37• Demandmanagement• Energy efficiency
initiatives

25• Shift to alternative
energy

Ot
he
r

an
dc
em
Ele con Ele
ctr su ctr
en
ici mp ici
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sti ate dus ate
c a r c tri r
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erc tion
ial a ,
Tra
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on

Fla
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Political

Pe
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ch
em
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l

Oi
la
nd
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0

Reframe argument:• Highlight liquefied
natural gas as
greener than coal
Demonstratecommitment:• Purchase offsets withenergy revenue— Not applicable.
a. Data from 2008 Kahramaa Annual Report were split, with 24% going to industrial use and 76% going to domestic use.

emitter (table 6.2). But Qatar would be ranked much
lower if only emissions stemming from consumption
were measured. Qatar lacks forests and green areas
to offset the effects of greenhouse gas emissions.

Qatar’s carbon dioxide emissions are comparatively
low­—­about 0.2% of the world’s total. But as a majorenergy-producing country with a small population, Qatar is unfairly penalized when carbon dioxide emissions (from production and consumption
combined) are measured on a per capita basis. By
this yardstick Qatar emerges as the world’s highest
Table 6.2

Qatar is committed to working with other countries to address global climate change and to

Qatar is ranked 58th in total carbon emissions but 1st in per capita carbon emissions(carbon dioxide emissions, 2005)
Per capita emissions

Total emissions

Country

Tonnesper year

Rank

Thousands oftonnes per year

Qatar

16.73

1

13,59658

Kuwait10.39

2

25,54240

United Arab Emirates

7.5

3

33,77033

United States

5.32

4

1,576,537

1

China

1.16

85

1,514,126

2

Russia2.87

26

410,290

3

Rank

Source: Carbon Dioxide Information Analysis Center (2005).

Sustaining the environment for future generations223eliminating inefficiencies that raise carbon
dioxide emissions. Qatar, like its neighbours, ishighly vulnerable to the various shifts that may
result from climate change. Qatar is among the
10 countries that would be most affected by arise in sea level, which could damage coastlines
and marine life. If average temperatures rise,
demand for water could increase, along withsalinity in the groundwater. Climate change scenarios envision more weather extremes, which
could mean heavy local f looding and sandstorms. Meanwhile, climate-related stresses inother countries could affect the price and availability of food imports.
In recent years Qatar has taken major steps toreduce carbon emissions—especially from gas
flaring, which accounts for ­about 12% of total
emissions. Emissions from gas flaring are among
the most readily reduced. The steps include legislation to limit emissions, investment in cleaner
technologies and improvements in industrial processes. Innovative research is under way on newcarbon capture technology and sequestration incarbonate reservoirs for storage of carbon dioxidefrom the oil and gas industries.
In 2007 Qatar introduced its first United Nations
Framework Convention on Climate Change
Clean Development Mechanism, the Al-Shaheen
Oil Field Gas Recovery and Utilization Project,which reduced flaring by about 80%. Facilities
to be completed at the Al-Karkara field by 2011
have been designed to achieve zero gas flaring byinjecting excess sour gas back into the reservoir.
Transport technology that can carry 80% moreliquefied natural gas than current carriers canwill substantially reduce energy used per delivered unit.
The National Flaring and Venting Reduction Project will further reduce emissions from gas flaring,
initially targeting the largest companies responsible for the bulk of flaring-related emissions. By
2016 the government is committed to halving thevolume of gas flaring to 0.0115 billion cubic metres
per million tonnes of energy produced.
224

Qatar National Development Strategy 2011–2016

Target• Halve gas flaring to 0.0115 billion cubic metres
per million tonnes of energy produced fromthe 2008 level of 0.0230 billion cubic metres
per million tonnes of energy produced.

Reduced waste, more recycling andmore efficient use
Globally, affluent societies tend to produce large
quantities of waste. Qatar is no exception. With anactive construction business, extensive hydrocarbon sector and growing number of high-income
households, Qatar creates more than 7,000 tonnesof solid waste each day. Much of it is crowded into
landfills; the underdeveloped recycling industry
handles only 8% of the waste.
Domestic waste from households, markets andoffice buildings accounts for about 30% of thewaste, while nondomestic waste from commercial,construction and industrial sites accounts for the
rest. Currently 91% of nondomestic waste is taken
directly to landfills, and the bulk of what is eventually recycled is picked through by companies thatsift through the waste at the landfills. Environmentally sound waste management­— ­including
the monitoring, collection, transport, processing
and disposal of waste materials­— ­is essential inprotecting human health and livelihoods.
Qatar will adopt a multifaceted strategy to contain the levels of waste generated by households,
commercial sites and industry and to recycle much
more of what waste is generated. In approaching
the challenge of improved waste management, thegovernment recognizes a hierarchy of actions toalleviate pressures on the environment, with themost preferable goal being the avoidance of waste(figure 6.5). Where waste cannot be avoided, thepreferred goals would be to reduce it, reuse it andrecycle it, and the least desirable action is to dispose of materials. The measures proposed in the
National Development Strategy 2011–2016 will
enable Qatar to progress up the waste management hierarchy towards the most preferable outcome of avoidance.

chapterFigure 6.5 Waste management hierarchy
Most preferable

Avoid
ReduceReuse
RecycleRecover
Treat
DisposeLeast preferable

Establishing a solid waste management plan

The critical step will be establishment of a comprehensive solid waste management plan to coordinate responsibilities, activities and planning.
The plan, to be aligned with the Qatar National
Master Plan, will cover households, industry andcommercial establishments, and construction
and demolition. The plan will also provide classifications for different types of domestic and non­domestic waste, mapping their sources.
Special attention will be focused on supporting
recycling, incentivizing waste reduction, promoting source separation and developing a robust
recycling sector. Several initiatives will help build
up the recycling industry.
The government has established an integrated domestic solid waste management centre in
Mesaieed that will be operational in late 2011. The
centre is expected to reduce the share of domestic
waste disposed of in landfills to 3%–5%, thereby
reducing the share of total waste sent to landfills
from 92% to 64% (figure 6.6). It will also convert
waste to energy and raise the level of waste recycling from 8% to 20%–25%.

6

There will be five transfer stations (South Doha,West Doha, Industrial Area, Dukhan and Al-Khor)
equipped with collection bunkers for separating
recyclables such as glass, paper, aluminium andplastic, which will help reduce the quantity of waste.
To capture the benefits of source separation, a
proposed new material recovery facility will handle pre-­separated recyclables from domestic andnon­domestic waste. The facility will further reduce
waste sent to landfill to 53% and boost waste recycled to 38% by 2016. In the longer term a nondomestic waste management centre will be required
to further increase recycling.
New policy initiatives will encourage recycling
firms, transport companies, trading firms selling
recyclable exports and manufacturers that use
recycled material. For example, the government
may consider providing subsidized land and utilities to encourage more firms to enter the recycling
business. The Waste Recycling Committee, in partnership with the Ministry of Business and Trade,
could arrange subsidies to jump start the local
recycling industry, subject to review after five years.
Public awareness campaigns will encourage waste
separation, collection networks and recycling bins.
To generate new recycling activity, the government
will sponsor demonstrations and public awareness activities. Citizens will be made aware of theopportunity to use recycled products, such as furniture made from recycled wood or the 300 tonnesof compost produced daily in Mesaieed. Citizens
also will be encouraged to see waste reduction andrecycling as an ordinary responsibility, adopted
out of respect for future generations.
Currently, most of Qatar’s nondomestic waste ends
up in a single landfill, at Umm Al Afai, which has
become a nuisance for neighbouring communities.
The government will formulate plans for closing thislandfill at the earliest possible date, once an alternative site for the nondomestic waste is established.
Hazardous waste is a special concern, but there
are no organized data on the nature and locations
Sustaining the environment for future generations

225

Figure 6.6 Qatar’s existing and prospective plans for waste management

With nondomestic waste (70% of total) still to beaddressed and most of it going to landfill

With source separation and material recovery to increase
recycling to 38% and limit landfill to about half—awareness raising is key to success

Waste generated
7,156 tonnes per day

Waste generated
7,156 tonnes per day

9% of nondomestic

Recyclingc
23%
of total

55% of domestic
41% of domestic
30%
domesticb
2,175 tonnes
per day

Transport to landfill

DSWMC
2010 Integrated
Domestic Solid Waste
Management Centre

100%of domestic

Transport to Domestic Solid
Waste Management Centre

Waste toenergy13%of total

25%
of nondomestic

Material
recoveryfacilitiesd
30%
domesticb
2,175 tonnes
per day

3% of domestic

Direct to recycle market

70%
nondomestica
4,981 tonnes
per day

Transport to waste to energy plant

42% of domestic

31% ofdomestic
DSWMC
2010 Integrated
Domestic Solid Waste
Management Centre

25% ofdomestic
75% of domestic

Recyclingc
38%
of total

Waste toenergy9%of total

Landfill: 53% of total

70%
nondomestica
4,981 tonnes
per day

75% of nondomestic
Landfill: 64% of total

91% of nondomestic

3% of domestic

Waste separation point (two bin system)a. Includes furniture, packaging waste, some electrical appliances and discarded items from construction activities that are described as development or maintenance waste (such as concrete formworks,
pipes, ceramics, glass, metal and the like.
b. Includes mixed household and commercial (office and market) waste.
c. Includes composting.
d. A single material recovery facility could be used in place of multiple facilities if a nondomestic solid waste management centre is constructed near the domestic solid waste management centre.

of hazardous waste, no capacity for its reduction
or recycling and no treatment capability for combustible or radioactive waste. The Solid and Hazardous Waste Management Framework, adopted
in 2009, will yield a detailed and comprehensive
plan for coordinated waste management responsibilities, taking into account all sources.
Targets• Establish a solid waste management plan,strongly emphasizing recycling.
• Recycle 38% of solid waste, up from the current 8%.
• Contain domestic waste generation at 1.6 kilogrammes per capita per day.

Nature and natural heritage conserved,
protected and sustainably managed
Qatar’s biodiversity is equally a part of its heritage and its future, embedded in the natural life
226

Qatar National Development Strategy 2011–2016

support system that needs to be protected overtime. In Qatari culture, natural conservation isunderstood to be a religious and moral duty.
In Qatar, as in many countries, biodiversity isfacing threats from a range of human activities.
Population growth and rapid urbanization have
put pressure on the delicate balance of natural
endowments, crowding out some elements in thebiodiversity mix. Construction and industrialization are impinging on fragile coastal habitats
and disrupting marine life. International shipping and trade have introduced invasive species
that pose threats for indigenous species. Over­fishing has emerged as both an ecological concern and a threat to future food supply. As aresult of all these trends, some 31 species, ranging from the Arabian oryx to the green turtle
and the brown shark, are categorized as threatened with extinction.

chapter

Climate change also has implications for Qatar’s
biodiversity, but scenarios remain imprecise. Nevertheless, warmer sea temperatures and higher
sea levels will inevitably disrupt marine ecosystems
in ways that could create new strains for future
generations.

6

Surveys by the Environmental Studies Center,
Qatar University, the Friends of the Environment
Centre and private companies have yielded conflicting data on the species present in Qatar. The
confusing mix of findings underscores the needfor a reliable and comprehensive biodiversity database and careful monitoring of changes.

Creating a national biodiversity databaseTo support needed analysis and eventual protection of the country’s biodiversity, the government
will back detailed surveys that establish biodiversity baselines to enable decision-­makers to build
new protections based on solid evidence.
Qatar has already experienced a preview of someof the biodiversity strains brought on by climatechange. In 1996, 1998 and 2002 the Arabian Gulf
experienced record ocean heat, with temperatures rising as high as 38 degrees Celsius, thatstressed the marine ecosphere. The turtle populations of Qatar, one of the country’s most famousand endangered species, are particularly sensitive to climate change. If temperatures continue to rise, experts warn of the potential for mass
deaths of turtles and fish, coral bleaching, flooding of sea turtle nesting grounds and a substantial increase in jellyfish. Systematic monitoring ofGulf sea temperatures, taking into account seasonal variations, thus needs to be part of the proposed database.
Meanwhile, it is now understood that overgrazing extensive areas of grassland has resulted in aloss of grasses and plant types and in a generaldecrease in vegetation density. This in turn has
reduced animal life, increased wind erosion andcaused losses in soil fertility.
Ensuring that protected zones and national parks
function constructively is also a challenge. Qatar
has six protected areas, covering 22% of its land
surface, but studies conclude that the network has
not realized its potential. A national park must
protect and monitor designated species, while promoting safe ecotourism, and, where appropriate,allow hunting and grazing.

The National Development Strategy 2011–2016
envisions a series of practical steps, beginningwith establishment of a central database by 2016
to inform decision-making, improve management
plans and support regional activities. The database will draw on international best practice indesign and could eventually be extended to cover
the entire Gulf Cooperation Council. Regional
databases exist in other parts of the world andare connected with global information sources,
but none currently exists in the Gulf Cooperation
Council (figure 6.7).
A few rehabilitation projects can raise awarenessand demonstrate the value of restoring habitats
and protecting vulnerable species. Expanded andmore actively managed protective areas can help
specific mammal or marine populations regain
healthy reproduction patterns away from thestresses brought on by human activity. Environmental impact assessments that incorporate biodiversity analyses would be required for any new
industrial, infrastructure or real estate project.
Experts have come to view marine life as a finite
resource, like oil or water, under pressure from a
population growing in wealth and size. Since 1995
the total catch in Qatar’s seas has quadrupled,with most of the fish locally consumed. But in atrend that highlights a worsening sustainability
problem, the total catch in 2006 continued to rise­—­despite a freeze on new commercial licences­—­while the per capita catch began to drop.
Several fish species are being depleted, though
precise data are not yet available. More thoroughregulation and consistent enforcement will bevital to conserving this critical resource. Supportive fishing technologies­— ­such as net meshes that
Sustaining the environment for future generations227

Figure 6.7 Qatar’s biodiversity management framework is contingent on the availability of a comprehensive
biodiversity database
Protected areas

Environmental impact
assessments

Managed by the Ministry of Environment.
Create, manage and evaluate protectedareas of Qatar.

Managed by the Ministry of Environment.
Frontline assessment of industrial,
infrastructure and real estate projects’
impact on biodiversity.

Comprehensive
biodiversity
databasea
Living marine resources
exploitation laws
Managed by the Ministry of Environment.
Laws pertaining to limits on fishing anddirect consumption.

Rehabilitation projects
Managed by the Ministry of Environment, withsome examples of private programmes.
Focus on largest pressing issues.
Projects usually involve public-private
partnerships.

a. Database would involve survey of existing species, populations and extinction threat level. Once established, monitoring of data would continue to expose endangered species.

allow young fish to swim free­— ­can reverse someof the effects of overfishing; aquaculture, which
has helped other countries lessen the pressure on
fish populations, also holds potential.
The government will introduce a series of living marine resources laws that limit fishing andconsumption for threatened species. Preventing
overfishing is an enormous challenge. Qatar’s
Fisheries Department is currently understaffed,
contributing to ineffective monitoring systems
and an overall increase in the fish catch despite
restrictions designed to lessen the pressure on fish
populations.
Win-win opportunities for economic and environmental gains exist. Qatar can benefit from developing effective regulations that will increase fishstock levels while diversifying its economy throughthe creation of a domestic aquaculture capability
to meet future demand (see chapter 3).
Apart from overfishing, stresses on an array ofmarine species have been evident in recent years:• Mass deaths of turtles and marine mammals.
228

Qatar National Development Strategy 2011–2016• Destruction and bleaching of coral reefs.
• Increase in red tides, which stem from concentrations of microscopic algae that create toxins
dangerous to fish and humans.
• Increased coastal flooding and erosion ofcoastal habitats, including nesting areas forturtles.
The additional stresses brought about by climatechange add new challenges. These include accelerated coastal erosion, higher sea-surface temperatures and changes in the distribution of pathogenic microorganisms. Together, the shifts could
substantially affect marine biodiversity.
Targets• Establish a comprehensive electronic biodiversity database.
• Expand actively managed protected areas.

More sustainable urbanization and ahealthier living environment
Doha has grown exponentially, supported by aconstruction boom of striking contemporarychapterbuildings. But the capital lacks the benefits thaturban green spaces provide. Much of the city is
devoid of sidewalks, bicycle lanes and tree-filledareas closed to automobile traffic. People are surrounded by buildings and, at peak times, congested roadways. To continue Doha’s expansion
without incorporating greenery and open spaces
would increase Qatar’s sustainability challenges.
Urban conditions over time would become more
crowded, and more subject to noise and pollution. Bringing a green dimension to urban planning could strengthen sustainability and makecities more liveable. The risk of respiratory disease and the strain of congested and sedentaryliving patterns would diminish for future generations. Health problems such as the high rates
of obesity, heart disease and diabetes would be
lessened.
The absence of green space is not inevitable.
Other densely populated cities such as Hong
Kong, Mexico City and Singapore have spaces set
aside for greenery and recreation. The world’s
best known and most visited cities are as a ruleenriched by parks, tree-lined avenues, public gardens and leafy residential areas. These features
make cities more liveable and attractive andyield two public health benefits. First, people aredrawn outdoors for recreation and leisure; second, the trees filter pollution and cool the air. In
addition, greener, more liveable cities are more
appealing to high-skilled expatriate families andtourists, which Qatar would like to continue toattract.
Functional green spaces

Significant shifts in the makeup of Doha areenvisioned. The government is devoting special attention to the urban environment, which
affects the lives of its citizens. Although Doha’s
initial design did not incorporate green spaces, the government’s strategy for improved
environmental management calls for the city
to be retrofitted in ways that more effectively balance the natural and built environment.
To make Doha a greener city, the government

6plans a network of green spaces as ribbons oftree-lined areas rather than large, open parks.
By 2016 there would be three tree-shaded corridors free of car traffic. Planners will also design
green spaces within future construction programmes. There would be two green infrastructure plans­—­a new residential area and a commercial zone­—­plus a third parcel for mixed use. City
managers will produce an annotated map showing
existing planting schemes. Added to these will bedemonstration planting schemes providing shelterand shade. One inner city green route, between
high-rise blocks and the City Centre Mall, will provide shade and greenery.
A greener capital will support other environmental priorities. The addition of broad canopied
trees should help improve air quality by absorbing
pollutants and trapping windblown sand and dust.
Certain solid waste could be converted into compost and used as a planting base. In addition, thesurplus water gathering in the city’s rising watertable could be drawn down to maintain the various green spaces. The added green spaces andtrees would likely support the goal of protecting
animal habitats, because migrating birds could
nest in the city’s trees.
Target• Establish three shady greenspace corridors in
Doha and monitor their effect on urban air
quality and health.

An increasingly environmentally aware
population
Successful environmental management will
require active engagement through society. Largecommercial corporations and policy-­m akers
have important roles to play. And so does every
individual.
There has been increased reliance on the automobile as well as high electricity and water consumption, including frequent car washing and lawn
sprinkling using the country’s scarce desalinatedSustaining the environment for future generations

229

water. Air conditioning accounts for two-thirds ofthe electricity used for residential purposes. Moreover, Doha’s skyscrapers are often continuously
air-conditioned and fully lit. The present patternsof growth and consumption need to be better
managed in order to secure health and prosperity
for future generations.
There is also evidence that a deeper environmental awareness is growing. For example, schools haveadded environmental studies programmes to thecurriculum. Civil society organizations focusedon the environment­—­including the Qatar Green
Centre, the Friends of the Environment Centre,
the Barwa Qatari Diar Green Buildings Institute,
the Qatar Natural History Group and the Qatar
Bird Club­— ­a re building membership and support. Although these groups do not yet have theclout of similar nongovernmental organizations
in countries where the environmental movement
is further established, they show that Qatar harbours an environmental consciousness that can bestrengthened and expanded.

and practice. New construction projects­— ­such as
the planned airport­— ­could also showcase design
features for green buildings.
Targets• Build an environmentally aware society.
• Appoint a well known national champion for
the environment to raise awareness and commitment through demonstration projects andconversation partnerships.

Improved governance and regional andinternational cooperation
The government recognizes that transitioning tosustainable environmental management requires
effective and accountable institutions. Government teams will require unambiguous goals plus
clear lines of responsibility for delivering on them.
Decision-­makers will need to identify areas whereinternational expertise can be tapped, so that
Qatar can benefit from the most innovative thinking as it approaches one of the world’s most challenging sets of environmental vulnerabilities.

Environmental awarenessThe government will enlist the population in supporting and sustaining improved environmental
management. The campaign to protect Qatar’s
environmental endowment can draw on foundational values embedded in the country’s religious
and cultural heritage. The notion of protecting
the environment for the benefit of future generations has broad appeal.
To make the environmental movement more visible and influential, the government plans toappoint a respected national figure to serve as achampion for the cause. Demonstration projects
can also have an impact. A far-reaching schools
and environment programme can build on the
United Nations Children’s Fund Ecoschools proposal, with links to local initiatives underway at
the Qatar Green Centre and the Friends of Environment Centre. Specific industries, such as officemanagement and communications, will be encouraged to demonstrate the benefits of green design
230

Qatar National Development Strategy 2011–2016

Government will be making critical decisions on
uses of water and power, airborne emissions, waste
management and conservation of the natural
endowment. A culture of evidence-based policymaking will be needed, to be backed by information systems that ensure both informed decisions
at the outset and continuous monitoring to guarantee compliance and, over time, to measure
impact.
Environmental information database

Comprehensive and accessible documentation
will be needed at all levels. Knowledge sharing­—­across ministries and between government andthe private sector­— ­w ill be encouraged. Private
sector actors, academics and research institutes
will be fully informed and given incentives to seek
solutions to particular environmental challenges.
To make concrete the principles of gatheringand sharing better information, the Ministry ofchapter

Environment will mandate new reporting requirements, with all major industrial companies submitting quarterly environmental performance reports
covering their emissions, water discharge and hazardous waste treatment. Policy-makers will provide a template for all companies to use for thesereports.
The ambitious pace of change in management of
the environment will place significant demandson the Ministry of Environment. Despite recent
investments in training, there remain shortagesof professionals with needed scientific skills. The
ministry will need to strengthen capacity so it canfully monitor the environmental impact of a rapidly expanding economy.
The government will recruit technical specialists to guide the development of standards forresource management and environmental protection. To advance a practice of “ joined-up
government,” the National Development Strategy 2011–2016 envisions stronger interdepartmental dialogue on environmental issues,
including interministerial exchanges and staff
secondments.
When new investments and projects are undertaken, sponsors will need to carry out environmental impact assessments covering foreseeable
consequences for the environment, including animal and plant life, and plans to mitigate negative
impacts.
Gathering such assessments in an environmental information database, accessible to the public, could eliminate inefficiencies. Currently, suchstudies are neither centrally stored nor accessible.
Companies often undertake studies that others
have already completed.
A central information repository could combine
data from Qatar’s Biodiversity Database, its Air
Quality Management Project and its Waste Management Project. Keeping this information basecurrent, coherent and accessible will facilitate
links between science and environmental policy.

6

Target• Create a searchable electronic information
source at the Ministry of Environment.
Strategic partnerships

Addressing environmental concerns is a cross-­
generational, cross-­border exercise. One key function of government in the environmental sector is
to forge strategic partnerships with neighbouring
countries as well as private firms and internationalorganizations such as such as the United Nations
Educational, Scientific and Cultural Organization,
the United Nations Environment Programme andthe World Health Organization, which can provide key knowledge, human resources and technology. Qatar’s environmental challenges are shared
to some degree by countries in every region of theworld. Qatar will adopt an outward-looking, internationalist view to build partnerships that maximize the chance of successfully adapting both
policies and technologies. The government will
support several Qatar scholars each year to prepare them for environmental leadership.
Within the Gulf region countries share the challenges of hydrocarbon-driven growth and desert
conditions, including water scarcity. Moreover,because pollutants do not stop at national borders, environmental problems spill over, requiring
regional rather than national solutions. Strong
regional cooperation will require continuous
diplomacy and cooperation at all levels. Just as thenational government will require national databases to support environmental regulation andpolicies, the Gulf region will need regional databases to support regional initiatives.
Given its resources and commitment to strong
environmental management, Qatar has the opportunity to assume a leadership role in the environmental field. By continuing to work with countries
in the region through platforms such as the Gulf
Green Initiative and through international environmental protocols, Qatar can build some of thecritical links with governments, think tanks andthe private sector.
Sustaining the environment for future generations

231

There are specific areas where Qatar could establish leadership. For example, Doha could be heldup as a demonstration city for innovation in managing problems related to rising urban water tables.
Other leadership opportunities exist in Qatar’s
establishment of a regional air quality monitoring
programme and a regional biodiversity database.
The National Development Strategy 2011–2016
calls for the government to lead at least one
regional environmental project by 2016. Suchplatforms as the Gulf Green Initiative and otherinternational environmental protocols and agreement are opportunities for dialogue and regional
leadership. All governments are seeking ways toencourage investment in technologies that protect
the environment and to develop strategies for regulating environmentally damaging activities.
The private sector’s role in environmental conservation and preservation is critical and is understoodin the context of corporate citizenship. Companies
can be a source of pollution as well as incubatorsof innovations that can restore the ecological balance. Examples of corporate citizenship should be
applauded­—­such as Qatar Petroleum’s sponsorshipof research into sea turtles, a species threatened byextinction. To encourage more public-private collaboration, the National Development Strategy
2011–2016 calls for at least two projects to be implemented with the private sector by 2016.
As Qatar diversifies beyond hydrocarbons, thereis clear potential for the country to become a
global leader in the environmental sector. Frontier research and development initiatives currently under way at the Qatar Foundation’s Qatar Science and Technology Park can help realize thispotential. Doha may emerge as a global laboratory for addressing urban water tables, creating a
biodiversity database and launching a regional air
quality monitoring programme.
Target• Lead one regional environment effort, andlaunch two environmental projects involving
private sector participation.
232

Qatar National Development Strategy 2011–2016

Deepening the national commitment—
creating the knowledge base
The National Development Strategy 2011–2016 isdesigned to guide Qatar through a crossroads, balancing rapid economic expansion with protection
for the environment and the natural endowment.
The environmental programme calls for a range ofpolicies and investments to offset the stresses of rapid
population growth, industrial activity and urbanization (box 6.1). Equilibrium between growth and ecological sustainability will support the national foundational commitment to intergenerational equity.
New policies will require careful analysis of current evidence, along with modelling of future
trends. New environmental technologies require
research, regional and global links and adaptation
to local conditions. Management systems will needto adjust. Taken together, these requirements
point to a knowledge agenda that underlies theshift to improved environmental management.
As with any ambitious agenda for governance, thegovernment will develop new capacities and areasof expertise, including:• Institutional ability to write and enforce regulations.
• Mechanisms for tracking the environmental
impact of various economic activities and thegrowing economy in general.
• Techniques for measuring shifts in the marine
environment, water supplies and air.
• An approach for monitoring groundwater levels, because aquifer reserves are being depleted
at an unsustainable rate.
• Models for tracking and monitoring the healthof endangered species.
Longer term, Qatar will need sophisticated environmental institutions capable of building publicawareness, encouraging the most promising technologies and carrying out environmental research.
Knowledge in managing scarcity

Over time, Qatar will need to become adept atmanaging scarcity. For example, by substituting

chapterBox 6.1

Major environmental interventions carry knowledge demands

Qatar will support 11 projects to strengthen national
environmental management across all key sectors.
Through a lens of knowledge building, each interven‑tion will require study of global experience, assess‑ment of local economic, social and environmental
conditions, and careful adaptation. Evidence-based
policy-­making in each area will carry extensive knowl‑edge demands. The 11 projects called for in theenvironmental strategy from 2011 to 2016 are:
•
•

•

•

•

6

National water act: creating an integrated gover‑nance framework for water regulation.
Urban water table mitigation: carrying out re‑search, measurement and rule-making to man‑age Doha’s rising water table.
National flaring and venting: creating systems
for monitoring gas flaring in Qatar, establish‑
ing flaring guidelines and developing a plan for
reduction.
Air quality management: establishing a databaseand regulatory structure to mitigate unhealthy
airborne contaminants.
Solid waste management: creating structuresand guidelines to encourage recycling and reduce
waste generated by domestic and commercial
establishments.

knowledge or technology for water, all users
could get the maximum benefit out of the water
they draw from the country’s limited supply.
Understanding tariff structures and demand
management will be crucial as the government
creates fee structures that discourage waste andincorporate at least partial cost recovery. Suchstructures can be consistent with the government’s concerns for equity, because more water
will be available for everyone when wasteful use
is discouraged.
Knowledge for sustainability requires a reliable and detailed profile of the present situationthat takes into account water use and discharge,
air quality and emissions, solid waste including

•

•

•

•

•

•

Targeted recycling: employing public-private
cooperation to jump start the underdeveloped
recycling industry.
National biodiversity database: developing acomprehensive conservation programme tocreate a benchmark study of local species anddoing more to protect them through conservation
areas, rehabilitation of habitats, environmental
impact assessments for development projects
and new legal guidelines on consumption.
Functional greenspaces: creating a network of highcanopy greenways in Doha, equipping the city witha natural respiratory system that could reduce pollu‑
tion and provide shade and recreation for residents.
Environmental awareness raising: making a broad
communication effort to shift public sensibilities
with respect to balancing economic prosperity andenvironmental protection, critical to building sup‑port for environmental management into the future.
Environmental information management: creat‑
ing a searchable, electronic data source on theenvironment­—­fully accessible and kept current
within the Ministry of Environment.
Strategic partnerships: encouraging regional
collaboration to mitigate the effects of pollution
arising from development activities.

hazardous materials, and biodiversity. The government will build new databases and formulate new
ways of managing knowledge.
In some respects, knowledge development has not
kept pace with the country’s unprecedented economic expansion, urbanization and population
growth. Qatar will emphasize a scientifically astutegeneration, comfortable with technological innovation and change.
In many areas, Qatar has demonstrated a capacity
to set goals and achieve them. Its successes in theenergy sector supported investments that helped
achieve high human development. Basic and secondary education are now universal, and over two
Sustaining the environment for future generations

233

decades child mortality was halved and several diseases were eradicated.

connect to a balanced programme of growth andconservation of resources.

The government has also actively addressedknowledge and capacity deficits that could
impede development of environmentally sustainable management systems and a knowledge-based
economy. In 1995 the Qatar Foundation, with
$2 billion in resources, began investing in education, research and capacity development at alllevels. It supports a variety of programmes based
at international universities operating in Education City. The fund also supported the 2009 creation of the Qatar Science and Technology Park,focusing on energy, environment, health sciences
and information and communication technology.
A competitive research programme managed by
the Qatar National Research Fund brings together academia, government and the private sector.
In 2006 the government committed to spending
2.8% of GDP on research, bringing the level ofgovernment research support up to that of theworld’s major industrialized economies.

The need for integrated thinking and cross-­
sectoral coordination is central in addressing
stresses in the water system, for example. Integrated water management involves an entire value
chain, beginning with a balanced economic structure and targeted population growth carrying
through to a recycling phase (figure 6.8). Stakeholders span many corners of government, requiring the Ministry of Environment, operating at thecentre, to develop the skills for cross-sectoral networking, planning and execution.

Other countries are embarking on similar struggles to establish clear policies for environmental sustainability, but there is no internationallyaccepted index for measuring progress or setbacks. For example, loss of marine biodiversity
is not well defined or integrated into any widelyused models. In some areas experts are still debating which concepts are applicable and have yet to
identify the data to be collected. Further off stillis the development of indicators for measuring
improvement.
Integrated knowledge

In moving to a comprehensive model of sustainable growth, Qatar will nurture analytical
approaches that cut across disciplines. Althoughmany specialized forms of knowledge and technical skills will be needed, the government will
work towards an integrative system, avoiding thedevelopment of knowledge in separate, parallel
cylinders. The education system will support amore diverse productive base, which in turn will234

Qatar National Development Strategy 2011–2016

Culture of information sharing

Equally important in the long-term agenda, Qatar
will develop the capacity and the culture for routinely processing, sharing and interpreting information. This, in turn, requires an open, transparent culture where knowledge bases are kept
current and easily accessible. Enlarging the discussion space for full participation by the private sector and civil society will help encourage new solutions to environmental challenges.
The Ministry of Environment collects an abundance of information, but reports come in different formats, and few are regularly made available
to the public.
In establishing functional knowledge systems,
the government will be in a strong position tomonitor both compliance with and impacts of
new policies and regulations. The government
will employ various vehicles for strengthening theknowledge base for environmental management.
Potential approaches include the following.
Pilot projects and demonstrations. Officials can learn
from experiences carried out on a small scale
before moving to systemic changes. Possible demonstration projects include:• A pilot programme testing the use of recycled, nonpotable water to irrigate urban green
spaces.

chapter

6

Figure 6.8 Integrated water management across the value chain

Action invalue chain

Naturalresources

Production

Distribution

Recycleand reuse

Consumption

Evidence-based policy and regulatory considerations
Upstream

Crosssectoral
dimensions

Downstream• Structure of• Environmentally
economic activity
friendly technology• Targeted population • Adequate
growthand efficient• Urbanization,
infrastructure
strategic land use• Economic andand food security
production
efficiency• Health and safety• Environmentallyfriendly technology• Adequate
and efficient
infrastructure• Economic andproduction
efficiency• Health and safety• Environmentallyfriendly technology• Adequate
and efficient
infrastructure• Pricing, incentives
and regulations• Water use education
and awareness• Environmentallyfriendly technology• Adequate
and efficient
infrastructure• Sustainable waste
management• Education andawareness

Environmental conservation
Cross-sectoral coordination by Ministry of EnvironmentKeystakeholders• General Secretariat
for Development
Planning• Ministry of Economy
and Finance• Ministry ofEnvironment• Ministry of
Municipality and
Urban Planning• Qatar Statistics
Authority• Ministry ofEnvironment• Kahramaa• Ministry of
Municipality and
Urban Planning• Supreme Council of
Health• Qatar Statistics
Authority• Research anddevelopment
institutions• Demonstration projects involving recycling.
• Tree-planting demonstration projects in Doha.
• Demonstration projects to showcase green
office spaces.
Research. Specific studies can fill identified information gaps. Examples include:• A hydrology study to understand the extent
and impact of seawater inflows along the coast.
• A study of urban air temperatures showing
the variations between green, leafy areas andblocks filled with buildings and roadways.
• Studies of human health and air quality links.
Partnerships and cooperation. Links allow a form ofknowledge building that is dynamic and fluid.
Examples include:• An international conference on rising urban
water tables.
• A study of practices in low-flaring countries
such as Canada and Norway.
• A regional air quality conference.

• Ministry ofEnvironment• Kahramaa• Ashgal• Ministry of
Municipality and
Urban Planning• Supreme Council of
Health• Qatar Statistics
Authority• Research anddevelopment
institutions• Ministry ofEnvironment• Ministry of Economy
and Finance• Supreme Education
Council• Qatar Statistics
Authority• Civil society• Research anddevelopment
institutions• Ministry ofEnvironment• Ashgal• Ministry of
Municipality and
Urban Planning• Supreme Education
Council• Qatar Statistics
Authority• Research anddevelopment
institutions• A regional biodiversity database.
Knowledge relationships in the region will be particularly useful in understanding the realities ofclimate change. Different regions and countries
can expect different shifts over time. But desert
coastal countries whose economies depend onhydrocarbons may face similar challenges andcould benefit from pooling information.
Knowledge can be acquired and lodged in electronic databases or published studies, but Qatar
will ultimately need a population capable of criticalthinking, along with the necessary scientific expertise and training to assess environmental challenges and tailor solutions that enable the country tohonour its obligations to future generations.
To maintain support for sustainable environmental management and intergenerational equity, policy-makers will need not only to make knowledge
available but also to make it accessible and relevant
Sustaining the environment for future generations235

to citizens. The effort will require openness as well
as strategic awareness-building. Information will
have to be distilled and presented in formats that
nonscientists can grasp­—­w ithout oversimplifying
or distorting the content.
Citizens will need to understand what is at stake inthe paradigm shift that the government is setting inmotion and what they and their families have to gain.
Individual commitments to saving water and electricity and avoiding unnecessary car travel will require
programmes to inform and mobilize. Without such
efforts, concern for the environment will becomea preoccupation of only a small circle of elites.
To maintain momentum, the government willcapture and make known experiences of measurable progress­—­for example, restraint in the use ofdesalinated water, new recycling activity, energysaving efficiencies in buildings and reductions innatural gas flaring.
Building the human capital for sustainable environmental management will require a clear assessment of the existing knowledge and current capacity needs. Consultations with relevant institutions
and stakeholders will be part of such an exercise.
Finally, placing Qatar’s resource management
on a sustainable path for future generations
will depend on critical innovations, such as newdesalination technologies that minimize the cost236

Qatar National Development Strategy 2011–2016

and environmental impact of production, renewable energy applications that lower carbon dioxide emissions and alternative transport strategies.
Building an education system, a network of partnerships, a private sector policy and a researchstrategy that makes such breakthrough innovations more likely will be among the government’s
key knowledge efforts.

Fostering cross-sectoral links
In many respects, tackling environmental challenges lies at the heart of the broader paradigm
shift envisioned in QNV 2030. The goals of a morediverse economy built on knowledge development, a highly trained population and capacity forinnovation all feed into improved environmental
management. In turn, progress in solving Qatar’s
environmental problems would advance the otherdevelopment goals.
Qatar’s strategy for improved environmental management is at the centre of the larger National Development Strategy 2011–2016 (figure 6.9). The environmental programme will be supported by otherpriorities, such as diversifying the productive baseand creating an education system that supports theprinciple of sustainable development. At the sametime, in achieving the environmental goals Qatar willcontribute to a more diverse economy and a healthier population. The two-way links will add momentum to achieving the full array of strategic targets.

Figure 6.9 Environmental sustainability is both a goal and an enabler to achieve the aspirations of Qatar
National Vision 2030

Other sectors as enablers for environmental sustainability

Adopt environmentallyfriendly behaviour withinfamily and household

Monitor health andsafety standards andsafeguard against risks

Healthcare

Develop sustainableeconomic structure andgreen technologies

Goal

Family cohesion
and women’s
empowerment
and culture

Education andtraining

Environmental
sustainability

Economic
diversification,
private sector growth,economic
infrastructure

Establish school curriculum
containing principles
of sustainability

Natural resourcesmanagement

Population, labour
force and Qatariemployment

Ensure sustainable andefficient natural
resource use

Balance population growthand sustainableurbanization

Enabler

Environmental sustainability as an enabler for other sectors

Reduce environmental risks
to families living nearindustrial areas

Develop healthier living
and working environments

Family cohesion
and women’s
empowerment
and culture

Healthcare

Foster diversification
into green industries

Education andtraining

Environmental
sustainability

Economic
diversification,
private sector growth,economic
infrastructure

Natural resourcesmanagement

Population, labour
force and Qatariemployment

Increase environmental awareness andencourage sustainable production andconsumption practices

Encourage sustainableconsumption of natural resources

Create more comfortable
and inspiring places tolive and work

237

Part 3
Institutions and implementation

Chapter 7
Developing modern
public sector institutions

7

Developing modern public
sector institutions
Qatar needs strong public sector institutions to reach the goals of Qatar
National Vision 2030 (QNV 2030) for social progress, human development,a sound and diversified economy and a sustainable environment. Achieving
these goals will require institutional and organizational capacity building,efficient and transparent delivery of public services, fruitful public-private
cooperation and partnerships, a vibrant climate for business and a larger
space for civil society.

Qatar’s institutions of public administration are
evolving rapidly and striving to meet the needsof citizens and customers of institutional services.
The Public Sector Development Project of 2007
recommended changes in the institutional framework. It motivated the government’s 2008 restructuring and the move towards a ministry portfolio-­
based approach of aligning accountability for agiven policy area within one ministry, improving
governance, focusing on outcomes, increasing
cross-ministry coordination and reducing fragmentation in decision-making.
Improved service delivery depends on credible,
client-focused and capable institutions that deliver timely and accountable services to citizens andrespond to their concerns. Achieving that will
require an unwavering commitment to modernizing all aspects of government that cuts across all
sectors and areas of society. Continuously searching for ways to make institutions more efficient
will strengthen Qatar in prosperous times andbuffer it against shocks in recessionary times.
Qatar’s government structure includes ministries,
Supreme Councils and other government agencies (figure 7.1). Their Highnesses the Emir andthe Heir Apparent head the executive authority,
assisted by the Cabinet and Prime Minister and242

six Supreme Councils. The Cabinet is charged
with overseeing policy execution. The Secretariatof the Council of Ministers (Minister of State for
Cabinet Affairs) provides a critical link between
the ministries and the Prime Minister/Council of
Ministers. Ministries and other government agencies report to the Cabinet and are responsible for
executing the relevant public policies and programmes. The Supreme Councils provide opinion
and advice, as well as having regulatory responsibilities. To support transparency, accountability
and governance, several central agencies report
directly to the Emir and the Heir Apparent,
including the State Audit Bureau, General Secretariat for Development Planning (GSDP), Public
Prosecution and the High Committee for Transparency. About 90,000 employees, Qataris andexpatriates, work in the government and otherpublic sector institutions.
Public sector development and modernization
will focus on developing the capabilities of these
institutions of the state and on strengthening
institutional collaboration. Building the foundations of the future state and ensuring highlevels of government performance will require
extensive collaboration and a culture of teamwork among line ministries and agencies at alllevels­—­ministers, department heads and section

chapter

7

Figure 7.1 Current organization structure of Qatar’s public sector institutions
The EmirSupremeCouncil for
Defence

SupremeCouncil for
Family Affairs

Qatar Central
Bank

SupremeCouncil for
Economic
Affairs and
Qatar
Investment
Authority

The Heir Apparent
State Audit
BureauMinistry of Social
Affairs

Ministry of Energy
and Industry

Qatar General
Electricity and Water
Corporation
Ministry ofEndowments andIslamic Affairs

General Authority for
Minors Affairs

Ministry ofLabour

Ministry ofForeign Affairs

Ministry of Businessand Trade

General Authority for
Civil Aviation

Ministry ofJustice

Legal and Judicial
Studies Center

Intellectual Property
Protection Center

heads­— ­a nd strong leadership. Critical in moving the public sector forward are the supportof top leadership and greater power for middle
management.

The drivers and levers of institutional
development and modernization
Two linked concepts—based on benchmarking
best practices in other countries that have successfully modernized their public sectors—underlie
institutional development and modernization.
One is the drivers of modernization, factors that
influence performance and the need to modernize and that serve as measures of institutional success: the public sector’s efficiency, effectiveness,value creation, transparency, accountability, relevance and customer engagement (figure 7.2).

SupremeCouncil for
Information andCommunication
Technology

Qatar News
AgencyGeneral Secretariat of theCouncil of Ministers(Minister of State
for Cabinet Affairs)

Ministry ofInterior

General Authority for
Tourism

Supreme
EducationCouncil

Prime Minister
Council of
Ministers

Qatar Statistics
Authority

Institute of
Administrative
Development

Ministry of
Culture, Artsand Heritage

PublicProsecution

SupremeCouncil of
HealthGeneralSecretariat
forDevelopment
Planning

Qatar Media
Corporation

Qatar Development
Fund

Ministry of Economy
and Finance

General Retirement
and Pension Authority

Ministry of
Municipality and
Urban Planning

Public Works
Authority

Qatar Financial
Center

Qatar Financial
Markets

Ministry ofEnvironment

RecycleCenter

The other is the levers that institutions must apply
to modernize: policy and planning, budget andfinancial management, human resources development, organizational alignment, procurement,
institutional processes, information technology
and performance management.
Formulating the right approach to modernizationand successfully adapting and applying the drivers and levers require understanding the government’s institutional framework. Strengthening thedrivers of modernization requires improving thelevers (lower part of figure 7.2): focusing on thelevers to build institutional capability will enable
an institution to be more efficient and effective,
create more value and so on. Focusing on policy
and planning, budgeting and financial management, organization, human resources, institutional
processes, procurement, information technology
Developing modern public sector institutions243

Figure 7.2 Performance management provides dynamic links between drivers and levers to achieve public
sector excellence
Drivers
Efficiency

Transparency

Increasing the ratio of outputs to inputs

Exposing the actions and decisions of the government and public sector to scrutiny

EffectivenessEngagement

Improving the quality of the elements that convert inputs to outputs

Engaging customers in public decisions and processes that affect their lives

Value creation

Relevance

Maximizing returns on investment and long-term sustainability

Linking government policy and outputs to society’s needs

Accountability
Being answerable for the consequences of government and public sector actions

LeversPerformance management

Human resources development• Visibility of performance• Outputs measured against defined objectives and targets• Corrective actions• Job description and hiring• Career planning and development• Performance management of employees• Performance goals• Training and capabilities

Policy and planning• Vision, leadership and culture• Institutional mandate within legislative norms• Strategic planning and policy(outcome based)• Targets and goals

Institutional processes• Interaction and coordination within and outside the institution with private sector,
other governments and the general public• Procedure workflows and processes• Inclusive of stakeholders (listening, communication and marketing)• Lean processes and process excellence

Budget management

Procurement• Budget planning and alignment with strategy• Budget execution• Monitoring of budget performance• Contracting and purchasing• Resource optimization• Vendor and project management• Risk mitigation

Organizational alignment

Information and communication
technology• Mandates and job family design• Responsibilities and interactions• Decision-making• Performance orientation and standards and culture• Accountability and collaborationand performance management will help build thenecessary expertise and capability in these important levers of modernization. Developing and modernizing these levers will strengthen the drivers
244

Qatar National Development Strategy 2011–2016• Workflow automation• E-government• Institutional integration• Responsivenessof public sector performance: improving efficiency and effectiveness, creating value, becoming
more relevant and transparent and demonstrating
accountability in delivering results.

chapter

7

Countries with modern institutions and excellent
Mapping Qatar’s institutional
development and modernization journey public sector performance exhibit similar characMapping Qatar’s public sector modernization
journey for the National Development Strategy
2011–2016 employed benchmarking, situation
analysis, diagnostics and focus areas for modernization (definition of future state) (figure 7.3).
Benchmarking best practices around the world

Benchmarking focused on the drivers and leversof modernization in five countries, identifying best practices in public sector performancearound the world. The five were Australia, Canada, Norway and Singapore, identified for international best practices, and the United ArabEmirates, identified for regional comparison.
All five have implemented structural changes
in public sector organization and service delivery and greatly improved public sector performance, particularly service delivery. The benchmarking analysis identified building blocks for
Qatar’s transition to modernization. The countries selected demonstrate excellence in public sector performance (government efficiency,ease of doing business, policy and regulations
and delivery on promises) and institutional performance (openness and effective governancemechanisms for expenditure, dispute and regulatory management).

teristics: a commitment to continuous improvement, enduring dedication to change, sustained
mobilization of resources and the ability to learn
from mistakes. Modern, well developed public institutions have robust processes. They focus
on human capital development, practice performance management and deliver public services consistently with efficiency and effectiveness,meeting the expectations of stakeholders. Theyshow a high degree of transparency and citizen
engagement and clear accountabilities, and they
set higher and bolder annual targets. Several models have been developed to examine how countries
achieve excellence in public sector performance,
but there is no single model to emulate. What has
worked in other parts of the world might not be
fully applicable to Qatar. Best practices based on
the analysis of benchmark countries are summarized by lever in box 7.1.
Evidence shows that the key focus areas for countries modernizing their public sectors are the eightlevers noted above. Building institutional capacity around these levers strengthens the drivers ofmodernization, which in turn serve as measures ofoutcomes for a country’s population. Elevating theimportance of human resources management, forexample, leads to increased employee capabilities.
A more capable public sector workforce is more

Figure 7.3 Mapping Qatar’s public sector institutional modernization journey
Benchmarking(best practice)• Performance management for
closing the loop with strategicplanning• Institutions with robust andeffective processes andsturctures with clear
accountabilities• Focus on human capitaldevelopment• High degree of transparency
and citizen engagement• Culture of continual
improvement

Situation analysis• Lack of strategic planningand performance management
framework• Little transparency in publicresource allocation• Lack of capability throughout
the public sector• Opportunity to improvecustomer focus in service
delivery• Lack of interinstitutional
collaboration

Diagnostic analysis• Many opportunities tomodernize Qatar’s public
sector identified• Macroeconomic, political andsocial factors call for
modernization• Constraints and requirements
to develop public sector
identified• Modernization necessary to
implement all sector strategies• Stages of development
identified based on benchmarks

Focus areas for modernization
Strategic policy and planning
Budget and financial management
Organizational alignment
Human resources development
Enabled institutional processes
Performance management

Developing modern public sector institutions

245

Box 7.1

Best practices, by levers of public sector performance

Each best practice identified through benchmarking
can be translated into distinct projects for public
sector modernization. Projects are refined later in thechapter and adapted to Qatar’s needs.
Performance management: decentralized outcomeand output-based measures but centralized monitoring• Measure periodically across individuals, organiza‑
tions and public services.
• Ensure central monitoring by the Ministry of
Finance or equivalent.
• Establish outcome- and output-based perfor‑
mance management with closed feedback loop.
Policy and planning: inclusive, bottom-up withcitizens’ engagement• Conduct robust evaluation of all alternatives
before issuing a policy.
• Allow departments and agencies, not just minis‑
tries, to initiate policy.
• Enable citizens to comment on draft policies online.
Budget management: multiyear, performance-oriented,
closely built on policy and planning framework• Allow for multiyear budgeting of programmes.
• Develop and prepare the annual budget process
within a strategic multiyear framework.
• Shape budgets to the policy framework and tie toperformance management.
• Coordinate centrally but allow for flexibility.
Organizational alignment: autonomy to empowered
departments with appropriate governance• Empower functional agencies as political actors(setting their own strategic goals and targets andallocating resources).

productive and achieves greater impact for its citizens. Optimized institutional processes minimize
errors and cost and therefore increase the efficiency of the public sector. Similar examples canbe cited for the other levers, leading to a positive
impact on citizens.
Countries use different sets of drivers to measurepublic sector performance and frame modernization efforts. Singapore, for example, singled out
productivity, quality, timeliness, responsiveness,246

Qatar National Development Strategy 2011–2016••

Set organizational frameworks to align ministry
and agency structures.
Establish appropriate checks and balances.

Human resources development: building capability
and performance management• Attract and retain the best talent by provid‑
ing the right incentives and a healthy work
environment.
• Establish transparent and performance-based
career development paths.
Institutional processes: citizen-centric andfeaturing cross-agency collaboration• Design processes to meet citizens’ expectations
and needs.
• Provide one point of contact with customers.
Procurement: transparent and fully automatedprocurement• Establish a common information platform for
public procurement.
• Develop clear processes and an easily integrated
system.
• Manage public e-procurement across thecountry.
Information and communication technology: easy touse one-window service• Offer one-window services online acrossinstitutions.
• Establish a common government information
platform, with data sharing.
• Engage citizens by involving them virtually.

effectiveness, efficiency and accountability in amodel to improve public services. No one country demonstrates best practices in every lever. The
best practice examples were selected for practicalapplication in Qatar; for instance, Singapore provides a better example of policy and planning for
Qatar than does Norway.
Benchmarking also identified five strategic enablers and five operational enablers for applying
best practices in modernization.

chapter

The five strategic enablers are building central capability before considering decentralization, institutionalizing the dissemination of central capabilities, clearly describing roles, changing employee
behaviours and attitudes, focusing on the enablers
of behaviour and mindset change, and creating
leadership in the middle and focusing on managerial value added.
The five operational enablers are developing budgets around outcomes and programmes rather
than institutions, prioritizing actions that simplify
processes and maximize stakeholder and customer impact, operationalizing performance monitoring and coordination, systematically managing performance of inputs as well as outputs andoutcomes, and giving change a chance by standing behind decisions over the entire commitment
period.
The situation analysis painted an overview of the
public sector and identified Qatar-specific opportunities for modernization along the levers andlinked to the benchmarking outcomes. It drew
on a review of documents on institutional development from previous work of GSDP and Cabinet departments; responses to a public sector
performance questionnaire sent to all ministries,

7

agencies and supreme councils; and a public sector employee survey that assessed employees’
engagement with their work and willingness andreadiness to change. Figure 7.4 summarizes theapproach taken in selecting and sequencing the
proposed institutional development and modernization projects.
A diagnostic analysis examined the gap between
best practices and Qatar’s current state. It analysed internal and external factors for modernization and defined maturity stages over the next few
years. The inputs from benchmarking, situation
analysis and diagnostics were then used to define
the future state and to provide the basis for 16 projects for developing and modernizing Qatar’s public sector.
Institutional development and modernization of
Qatar’s public sector will require a phased, prolonged effort to achieve well planned structuralchange. Initially, in a foundation building phase,change should be simple and focused on achieving ownership by all ministries and agencies,
including by public sector employees. Change
management is needed to balance the paceof change with the ability to incorporate andsustain it.

Figure 7.4 Project approach leading to prioritized and sequenced modernization programmes
Situation analysis

Future state design

Recommendations for modernization in six focus areas
Future state definition

Situational
scan

Prioritized, sequenced programmes and projects

Government
benchmarkMinistries and agencies
M1

Existing
document
review

Whole-government level
Ministry and agency level

Diagnostic
analysis

M2

M3

...

Focus
areas
and
leversWholegovernment
programmes
Ministry and agency
action plans

Public sector
employee survey
and interviews

Sectorstrategies

Performance management framework• Strategic policy andplanning• Budget and financial
management• Organizationalalignment• Human resources
development• Enabled institutional
processes• Performance
management

Opportunity to develop and modernize
Minimal Moderate Significant

Developing modern public sector institutions

247

To build a strong foundation, two projects must
start during the planning phase: expanding the
support role of central functions and developinga public sector performance management framework. Because line ministries and agencies lackthe comprehensive and robust capabilities andcapacity needed to implement all the National
Development Strategy 2011–2016 projects, thecentral functions in government will be vital torolling out the modernization projects, by providing coordination between ministries, offering
objective advice and defining the delivery of programmes to address critical challenges that cannot be addressed by a single ministry. The government performance management system will
better support and focus efforts and resources on
ensuring that the National Development Strategy
2011–2016 is implemented successfully. Key performance indicators will inform government about

gaps in performance and ways to bridge themmoving forward.
Institutional assessment of public sector
performance levers

As part of the situational analysis and diagnosticsof the institutional development and modernization strategy, government central functions, ministries and agencies responded to a questionnaire
intended to assess the levers that institutions need
to apply to enhance public sector performance.
Each lever was self-assessed against best practice international benchmarks and scored on ascale of 1 to 5, where 5 denotes strongest agreement with best practice. Figure 7.5 summarizes
the findings from the perspective of the wholeof government and of specific institutions. From
the whole-government response, the policy and

Figure 7.5 Self-assessed public sector performanceMini
En str yvir of
on
me
Mi
ni nt
Ju str ysti ofce
Mini
La str y
bo of
ur
Mi
ni
Int str yeri oforGenfor eral
De Secve re
Mi lopm taria
nis
en t
an tr ytPd ofFin E lann
c
in
an on
Mi
ce om gni
yan str y
d of
Ind E
n
Mi ustr ergyynis
Af tr yfai o
rs f S
oc
ial
Mi
nis
Af tr yfai o
rs f Is
lam
Mi
ic
nis
Cu tr yltu of
re
ict
Qa
ta
r

bin

et

Ministries and agencies

Ca

Ca

bin

et

Whole
Performance levers government

Policy and planning

3.4

Budget management

3.8

Organizationalalignment

3.8

Human resources
development

3.2

Institutional processes

3.5

Procurement

3.7

Information technology

3.7

Performance
management

3.1

3.7
Strongly agree (high capability today)
Agree (medium capability today)

248

3.2

3.8

3.4

3.7

3.9

4.1

3.1

4.1

Netural (opportunity to improve capability)
No response
Disagree and strongly disagree (significant opoprtunity to improve capability)

Qatar National Development Strategy 2011–2016

3.4

3.0

3.6

3.6

Averagescoreschapterplanning and performance management levers
stand out as requiring greatest capacity improvement. These findings are supported by resultsfrom previous studies. At the institutional level
there is considerable variation among ministries
and agencies in the ranking of the levers, withperformance management, human resources andpolicy and planning offering opportunities forcapacity development.

Possible pathways to public sector
institutional development
To measure public sector institutional performance, a model was constructed using the QNV2030 pillars and desired outcomes as a starting
point in developing a set of whole-government
indicators for measuring country-wide outcomesthat will be affected by public sector performance(figure 7.6). All indicative indicators will be measured and published regularly. As the performance7

management system becomes more embedded in
the reporting structures of government, the number of indicators can be expanded.
To modernize the public sector, executives must
understand the stages along the way (figure 7.7).
These stages were derived from the benchmarking exercise, tempered by an understanding of
Qatar’s unique circumstances. Institutions are in
the initial stages of modernization, with varying
degrees of readiness, willingness and ability toabsorb more change. Thus, speed needs to be balanced with the ability to absorb, adopt and sustainchange.
Careful sequencing of projects will be importantto accommodate links across levers; for example,
capacity building in finance to reform budgeting
processes and in information and communication
technology to develop citizen-centric platforms
and a central database.

Figure 7.6 Constructing a public sector performance model for Qatar
Qatar National Vision 2030 pillars and outcomes

Illustrative whole-government indicators

Human development• Physically and mentally
healthy population• Educated population• Capable and motivated workforce• Tertiary school enrolment• Programme for International
Student Assessment testscores on math and reading• Adult literacy rate

• Life expectancy at birth• Infant survival rate
• Labour force
participation rate
• Female labour force
participation rate

Social development• Social care and protection• Sound social structure• International cooperation• Real disposable income
per capita (World Economic
Forum)• Judicial independence• Corruption Perceptions Index(Transparency International)

Economic development• Sound economic management• Responsible oil and gas exploration• Suitable economic deversification• GDP real growth• Inflation• Stability of GDP growth• Economic diversificationindex• Ease of doing business(World Bank)• Foreign direct investment
as a share of GDP• Quality of infrastructure (World
Economic Forum)

Environmental development• Balance between development
needs and protecting
the environment• Nationally protected areas(share of total land area)• Electric power consumption
per capita• Domestic water consumption• Environmental Performance
Index

Publicsectorperformance

Developing modern public sector institutions249

Figure 7.7

Overview of best practices journey to modernization
Current
state

Laying the foundation
for capabilities

Embedding institutional
capabilities

Developing cross‑institution
excellence

Maturity level

Levers
Policy and planning• Short-term, one institution
specific• Centralized oversights withstandard process• Multiyear, performanceand budget linked• Coordinated, country-levellong-term outcomes

Budget management• Operational institution
based, not linked toperformance• Programme based,enabling performancetracking• Outcome-based flexible
multiyear process• National-level outcomesfully linked to strategicplans

Organizational alignment• Functional silos withlittle accountability foroutcomes• Strong central coordinationand process orientation• Proactive crossinstitutional collaboration• Decentralize structurewith productive leanorganization

Human resources
development• Few set standards, lack ofperformance management• Individual development
programmes andincreasing staff
accountability• Career paths tied toperformance; line manager
autonomy• Strong motivation; meritbased career progression

Institutional processes• Departmental-centric;
manual• Streamlined within entities• Citizen-centric by entity;enhanced by information
technology• Customer need-based
one-window processes

Procurement• Manual process lacking
transparency• Automated and clearly
defined; standardized• Online procurement,
including evaluation of
goods and services• Transparent strategic
procurement including
supplier integration

Information andcommunication technology• Lack of common
infrastructure and limited
online service• Data standards andincreased online
communication• Central platform and data;
online services• Most services online
with virtual platforms for
citizens and customers

Performance management• Lack of measurement andlinks to plans• Defined key performanceindicators linked tocentrally monitored plans• Standard format andcommon reporting
standards• Quarterly measurementof outcome-based goals
linked to budgeting; public

Intermediate steps to modernization have been
benchmarked, and short- and medium-term targets have been set. Building on this wealth of
information, targeted projects have been developed, prioritized and sequenced over 2011–2016,
for government as a whole and for individual
institutions.
A three-phase building block approach to modernization has been developed (figure 7.8). The
first, and longest, phase is laying the foundation for capabilities in fundamental areas at thewhole-government level. This phase will emphasize enhancing collaboration. The second phasedeals with embedding institutional capabilities;
institutions will create a high degree of capability
and capacity, but implementation must be flexible
so that designs can be improved, as needed. The
third phase focuses on developing cross-institutional excellence by creating a culture of collaboration in delivering services.

250

Qatar National Development Strategy 2011–2016

Programmes to develop and modernize
public sector institutions
During much of the National Development Strategy 2011–2016 period, institutional development
and modernization will be devoted to the foundation stage and to six focus areas, based broadly on
the eight levers of public sector performance:• Strategic policy and planning.
• Budget and financial management.
• Organizational alignment.
• Human resources development.
• Enabled institutional processes.
• Performance management.
While each focus area derives from different leversof public sector performance, all have outcomesthat directly affect the seven drivers of public sector performance: efficiency, effectiveness, value
creation, accountability, transparency, engagement and relevance (figure 7.9).

chapter

7

Figure 7.8 The three phases of institutional development and modernization: a long-term journey
Short term
2011–2014

Medium term
2015–2020

Long term
2021 onwards

Capability growth

National Development Strategy 2011–2016 focus Beyond National Development Strategy to meet Qatar National Vision 2030
• Strategic policy and planning• Budget and financial management• Organizational alignment• Human resources development• Enabled institutional processes• Performance management

Developing cross-institutional
excellence
Embedding institutional
capabilities

Laying the foundation
for capabilities
Institutional
collaboration

CentralsupportTime

Focus area

Aims

Outcomes

Strategic policy
and planning

Establish an effective strategic planning and policy-making
process in all ministries in coordination with the central
functions• Effective planning and policy framework linking Qatar
National Vision 2030, National Development Strategy
2011–2016, central functions and ministries

Budget and financial
management

Reform the budgeting process to allow for greatertransparency and effectiveness of spending• Efficient allocation of financial resources• Greater transparency

Organizationalalignment

Ensure effective institutional structures focused onservice delivery with a strong role of central functions
and agencies• Strengthened central functions and agencies• Streamlined institutions

Human resources
development

Focus on fundamentals of people development to improve
longer term capacity and capability

Enabled insitutional
processes

Promote standards in processes and transactions toenable consistent application and efficient integration• Efficient and leaner processes• Effective integration for coordinated service delivery

Performance
management

Establish a comprehensive framework to manage
institutional performance• Public sector governance and performance framework

Programmes

Laying the foundation

Figure 7.9 Focus areas with outcomes that will drive Qatar’s public sector performance• Improved talent development• Motivated and engaged employees

Developing modern public sector institutions251Within these six focus areas, the 16 targeted projects on the whole-government level were designed
to bring Qatar’s public sector up to best practicelevel. These projects are part of the first foundation-laying step in the long-term modernization journey. Each project addresses a major gap.
The suggested projects are not prescriptive but
are designed to be flexible, with a high degree ofstakeholder participation and ownership. Timing
and implementation will depend on the capacity
and readiness of each institution. The proposed
projects allow setting clear targets and refining
them as the projects are planned and implemented. The projects will be reviewed and adapted, as
needed, in a collaborative process with the leadstakeholders.

Strategic policy and planning
Strategic planning is a new concept for Qatar’s
public sector, as most entities lack strategic planning capabilities. Entities that have plans have notlinked them to QNV 2030. In the short term (by2013), Qatar should focus on building a strong
foundation for strategic planning, with all entities
preparing well defined, standardized planning
processes and annual strategic plans. The Cabinet’s Central Policy and Planning Department candrive a top-down coordinated planning process.
Customers and clients can also have a say in the
short term, but on a limited basis with feedback
gathered through surveys and other basic data collection methods.
Several requirements were identified for achieving the short-term goals, including building policy
and planning capabilities in each entity, starting
budget reform, building planning capabilities in
the central functions, collaborating across entities and raising awareness of QNV 2030 and the
National Development Strategy 2011–2016.
By 2016, Qatar can achieve multiyear strategicplanning that is linked to QNV 2030. Plans should
also be linked to the national budget and to a
performance management system that is closely
linked to budget allocation. In the medium term
252

Qatar National Development Strategy 2011–2016(by 2016), all entities should participate in outlining the multiyear strategic planning for their sectors, and central collective planning should end.
Customer and client voices should be heard regularly through channels such as surveys and focus
groups.
Attaining the desired level of performance relative to plans will require a central public sector
database to effectively monitor implementationof the National Development Strategy 2011–2016. Among the most important requirements
to reach the goals at the medium term are multiyear, programme-based budgeting; a high level of
institutional collaboration and coordination; theavailability of planning experts; and an active performance management framework.
The overarching goal of the two projects in strategic policy and planning is to establish a strategicplanning process and to support line ministries
and agencies in developing their own strategicplans.
Formulate and implement a whole-government
strategic and operational planning processThis project is designed to sharpen the focus ofeach ministry and align plans to key objectives,
helping ministries evaluate trade-offs in resource
allocation and focus employees on common goals
and targets. The Cabinet’s Central Policy andPlanning Department will be the main stakeholder and responsible function of this project, setting
up guidelines and coordinating and managing
activities. The Ministry of Economy and Finance(MOEF), GSDP and the Cabinet’s Central Organization and Development Department will provide coordination and management support during the 21-month implementation (9 months fordesign and 12 months for rollout). The projectwill develop an annual planning process with
top-down and bottom-up validation and clear
timelines. It will launch a pilot of the new strategic and operational planning process in selected
ministries before rolling out full execution in all
ministries.

chapterTarget• Develop a clear annual planning process(including timelines) tied to QNV 2030 and
the National Development Strategy 2011–2016
budget and report strategic plans to the Cabinet’s Central Policy and Planning Department.
Develop strategic planning capacity and capability
within entities, and link them to the Cabinet’s
Central Policy and Planning Department

This project will enable ministries and agencies
to develop their own strategic plans with minimal
help from the Cabinet’s Central Policy and Planning Department. That department will take thelead in building the capability and capacity of line
ministries and agencies, the Cabinet’s Central
Policy and Planning Department and GSDP will
help with coordination and management and theInstitute of Administrative Development­— ­w ith
the help of other local and international training institutes­—­w ill develop training programmes.
Approximately 27 months will be required to complete the project (9 months for design and 18 forrollout).
Target• Install strategic planning process in ministries
and agencies, with the staff and expertise necessary to develop strategic plans.

Budget and financial management
The budget reform project, to be implemented
over several years, will modernize and develop
national budget and financial management practices. The current budget, based on line-item
accounting, will create bottlenecks during budget planning for institutional development andmodernization and other National Development
Strategy 2011–2016 projects. Global experience
recommends that programme-based and multiyear budgeting processes be formulated in thecontext of the preparation of the annual budget. Multiyear budgets should be used to encourage the constructive involvement of ministries
and agencies in the budget process and should

7

evolve as a gradual practice. The value and theusefulness of the multiyear budget approach
will depend on the reliability and accuracy ofthe medium-term budget estimates. The proposed reform will tie strategic plans to financial
resources, maximizing revenue efficiency andeffectiveness.
Qatar’s budget is based on line-item accounting
and consists of four categories: salaries and wages,
operating expenditures, assets and major projects.
Implementing the National Development Strategy
2011–2016 will require incorporating budgeting
based on programmes, along with performancetracking, to increase transparency. With the aidof the MOEF, operational activities will be budgeted on an annual basis and projects on a multiyear basis. Key financial performance indicators
will be defined, and performance will be measured against financial spending. The whole budget process­—­planning, execution and monitoring­—­w ill be automated.
Achieving these changes will require securing government commitment to budget reform,building financial capabilities within the MOEF,
introducing financial management systems
and tools, preparing a performance management framework and starting multiyear strategicplanning.
In the medium term (2016), Qatar can basebudgets on desired outcomes, not just on proposed projects and plans. The planning horizon
should span more than one year, even for operational purposes. Entities should have greater
autonomy to reallocate funds among line items
during the annual budget cycle. And progressshould be evaluated against defined key performance indicators when deciding on an entity’sbudget.
Reaching the 2016 targets will require qualified
capabilities in all entities, multiyear strategic planning; stronger top and middle management andfull application of financial management systems
and tools.
Developing modern public sector institutions

253

Link expenditure management to strategicplanning, increase transparency and automate
budget processes

Reforming the budgeting process is a key projectfor institutional development and modernization.
Reforming and automating the budgeting process
will facilitate budget creation and resource allocation, strengthen the link between strategic planning and financial planning, increase the transparency of spending and help ministries evaluate
trade-offs in allocating resources. The MOEF willlead the efforts to set up, manage, coordinate andimplement the new budgeting process. GSDP, theCabinet’s Central Policy and Planning Department and the State Audit Bureau will provide support during the design phase.
During the design phase over the first year of the
project, tasks will include shifting from annual to multiyear budgeting and from line-items toprogramme-based budgeting, linking budgetary planning to strategic planning, designing theautomated budgeting system, building financial
capabilities in line ministries and agencies andrecruiting expertise to lead the new budgeting
process. During the next two years, a fully operational and automated budgeting process (planning, execution, monitoring) will be implemented
across all government entities. Achieving this outcome will require completing the strategic planning process by the end of the first year of budgeting reform.
Target• Implement a fully operational and automatedbudgeting process across all government entities.

Organizational alignment
The projects in the organization alignment focus
area will improve the efficiency and effectivenessof line ministries and agencies in at least three
ways. First, they will more clearly define the roleof the central functions and agencies. In countries
that are just beginning to modernize, as Qatar is,central functions and agencies need to actively
254

Qatar National Development Strategy 2011–2016

support line ministries and agencies in identifying
and overcoming weaknesses and gaps and should
develop standards guidelines for other entities toadapt and follow. Second, the government restructuring project, begun in 2008, will need to berevisited to align support and common functions
and eliminate redundancies. Third, line ministries and agencies need to increase their effectiveness by trimming and optimizing spending on
administrative functions and focusing more institutional resources on frontline and core services.
Qatar’s 2008 government restructuring project isstill under way. In its journey to modernization,
Qatar should build on this effort. By 2013, Qatar
should align administrative functions, start tobuild strong capabilities in central functions andagencies, establish distinct roles and responsibilities within and across entities and foster collaboration among the entities and between them andthe central government functions. Entities shouldbe held accountable for results and outputs in the
short term. Dedicated strategic planning teams
should be built within each ministry with experienced staff and strong links to the Cabinet’s Central Policy and Planning Department.
The most important requirements for the shortterm are optimizing the size of each ministry andagency, strengthening central organization functions to promote collaboration, introducing citizen-centred service delivery and promoting a culture of teamwork and collaboration.
Qatar can further enhance its organizational
design by 2016. Individual agencies should be granted greater autonomy to set their own targets andallocate resources, which should speed decision­making. Organization structures within each ministry should be reviewed to remove inefficiencies
and duplication, to reduce overlaps with other ministries, to close gaps and to optimize the size ofadministrative functions. Collaboration across agencies and institutions should become more active.
Among the important requirements to reachthese goals are installing a common information

chaptertechnology platform to promote cross-entity collaboration, a central public sector database androbust performance management framework, andclearly defining roles and responsibilities.
Strengthen the role of central functions inmanaging government performanceThis project focuses on strengthening the central functions and agencies so that they can support the early stages of institutional development
and modernization and better manage overall
government performance (by coordinating public sector governance, linking strategic planningto performance and sharing expertise with ministries and agencies). The central functions andagencies should demonstrate high levels of capability by displaying best practices in their own
organizations.
The project will need approximately 27 months
to complete. The first nine months will focus on
defining and legislating central roles and responsibilities, the operating model and level of intervention of each central function and agency, collaboration mechanisms between central functions
and agencies, and governance mechanisms forresolving conflicts. Global best practices will guidedesign of the role of central functions in Qatar. A
centre of excellence and expertise will support theother central functions and agencies in developing the necessary knowledge and skills.

7

decision-making. The Cabinet’s Central Organization and Development Department will lead thiseffort, with the support of GSDP and the Cabinet’s
Central Policy and Planning Department and Central Human Resources Department. An estimated
16 months (4 for design and 12 for rollout) will
be required to complete this project. Changes
in organizational structure will be designed andimplemented in all ministries and agencies, andthen job families and job descriptions will bealigned with capabilities based on the new functions and structures.
Targets• Establish the operational and regulatory
responsibilities of each government entity
across all ministries and agencies.
• Align job families and descriptions across all
government line entities, based on the final
structures, functions, standards and guidelinesof all institutions.
Optimize administrative spending as a share of
total costs, streamlining support functions

Revisit the organizational structure and roles in all
entities to align functions and remove redundancies

This project will increase the efficiency and effectiveness of administrative functions in ministries
and agencies, focusing their efforts on frontline
services and promoting customer-focused institutions. The MOEF will lead the effort to optimize
administrative spending by defining country-widestandards, while the Cabinet’s Central Organization and Development Department will help toalign organizational structures with standards.
The project is expected to last approximately 28
months (4 for design and 24 for rollout). Budget
and human resources requirements for administrative functions will be benchmarked against
global best practices to increase efficiency andreduce waste.

This project seeks to optimize the organizational structure of the government. It is intended toincrease the efficiency and effectiveness of the
public sector by promoting leaner institutions,aligning organizational designs and function,and improving accountability and transparency inTargets• Define standards and targets to optimize
administrative spending and human resourcesin the medium and long terms.
• Establish systems for ensuring reductions in
the administrative share of total cost for all

Target• Establish a centre of excellence managed bycentral functions and agencies to provide technical training support.

Developing modern public sector institutions

255ministries and agencies that are tied to thebudgeting system and overseen by the MOEF.

Human resources development
The quality of human resources in Qatar is vitalto institutional modernization. The 2009 Law on
Human Resources Administration was designed
to attract highly qualified people to the public sector, but many opportunities remain to advance
this goal.
In the short term, there are several areas for
improvement. Job descriptions should be defined
across the public sector. The Cabinet’s Central
Human Resources Department should develop
guidelines to help entities plan the size and skill
composition of the workforce. Staff development
programmes should be designed based on individual career needs. Staff accountability should
be increased to improve productivity, and a standard performance management framework for
public sector employees should be designed andimplemented by all entities. A country-wide talentsourcing strategy is needed to link ministry-level
workforce planning and labour policy to ensure
the availability of highly qualified staff across all
sectors.
Reaching this stage will require implementing astandard human resources management system(including processes, common technology platforms and a central human resources database);
recruiting and developing strong leaders in mostentities, producing a training manual, developing or hiring well qualified human resources personnel and developing key human resources processes (such as workforce planning and careerdevelopment).
The medium-term stage would then involve moresophisticated capabilities and developments. By
2016, entities should be empowered to manage
their own human resources and multiyear workforce planning, while the central human resources
function consolidates national workforce planning.
A career path should be defined for each employee
256

Qatar National Development Strategy 2011–2016

and tied to performance. Line managers shouldhave greater autonomy in areas such as careerdevelopment and training needs. Finally, an individual performance management system, based oncompetency standards, should be fully in place.
Reaching the medium-term goals will require complete commitment from top authorities to develop
the public sector’s human resources; amendmentof policies and standards to strengthen implementation of the 2009 Law on Human Resources
Administration to enable hiring and retention ofexperts and professionals (both Qataris and expatriates); highly qualified and experienced humanresources staff in all entities; fully implemented
and widely used human resources management
system, and clear, well defined institutional goals
and targets linking individual and institutional
performance.
Enhance policies to attract talent under the2009 Law on Human Resources Administration

This project will reduce the barriers to hiringhigh-potential individuals for the public sector
and will be an important milestone for designing a national talent-sourcing strategy in line withthe 2009 Law on Human Resources Administration. With the help of GSDP, the Cabinet’s Central Human Resources Department will lead theeffort, which will last about nine months (threemonths for design and six for rollout). By theend of the project, compensation structures anddetailed guidelines and policies for performanceoriented hiring policies will be in place.
Targets• Identify gaps between talent supply anddemand, and develop the value proposition for
attracting required talent.
• Define criteria for hiring local talent rather than expatriates and review compensation structures and policies for performanceorientation.
• Establish policies in all ministries and agencies for implementing the 2009 Law on Human
Resources Administration.

chapterDevelop a country-wide talent-sourcing strategy

This project will accelerate the build-up of capabilities required to modernize the public sector
and support the transition to a knowledge economy. The Cabinet’s Central Human Resources
Department will lead the effort, while GSDP will
help design the strategy. Design will take about 4
months, and rollout another 24 months. The project will identify the skills and capabilities required
to fill talent gaps and establish partnerships withnational and international universities and otherorganizations to facilitate access to the required
talent. Interviewing and hiring will be coordinated with ministries and agencies with a view to
identifying and hiring highly skilled public sector
employees.
Target• Identify and recruit skilled personnel for amodern public administration.
Implement a country-wide, comprehensive training
strategy based on need assessments, linked tocareer development

The aim of this project is to build the required
capabilities to modernize the public sector;
increase its efficiency, effectiveness and value creation; and build a capable national workforce.
The Institute of Administrative Development
will lead the effort to develop a national training
strategy, with the help of the Cabinet’s Central
Human Resources Department. The design willtake approximately 6 months, and implementation another 24 months. The project will build therequired expertise for country-wide training for
public sector employees and establish long-term
career development strategies for all job levels andfamilies linked to that training.
Targets• Provide training for public sector employeesthat matches Qatar’s needs and employees’ professional development goals.
• Transform the Institute of Administrative
Development into a strong, demand-driven

7

training centre, with the expertise to develop
long-term career strategies for all job levels
linked to training programmes.
Create human resources procedures and standards
to develop skills and enhance the work environment

This project will strengthen motivation among
public sector employees and improve the work
environment. The Cabinet’s Central Human
Resources Department will lead the effort to create human resources procedures and standards,
with the help of GSDP and the Cabinet’s Central Organization and Development Department.
The project, which is expected to last 27 months(9 for design and 18 for rollout), will result inmapped job levels and families across ministries
and agencies. To advance implementation of the2009 Law on Human Resources Administration,
middle management will be empowered to introduce measures to boost employee motivation anddiscipline.
Targets• Foster public sector employee motivation anddiscipline.
• Establish clear human resources standards andprocedures, including for workforce planning,
recruitment and hiring; career development;
and a system for performance management.

Enabled institutional processes
A final important component, once all strategies
have been defined, is the daily operation of government institutions. Current processes focus
on procedures rather than on citizens and customers (the private sector, other public sector
institutions and civil society). For example, customers must visit multiple locations to registera business. Other processes, such as public procurement, are outdated and not optimized. Collaboration and coordination across government
entities is meagre. To strengthen institutional processes, Qatar should strive to match bestpractices in benchmark countries, with theircitizen-­centred focus.
Developing modern public sector institutions

257

In the short term, Qatar should focus on streamlining processes within each entity. A responsibility assignment matrix has to be developed for allprocesses. Traditional service delivery channels
need to be expanded to cover delivery of services
to customers by phone, regular mail or fax. Backoffice processes, meanwhile, should be simplified
and automated. Institutional processes withineach entity need to foster interagency collaboration and coordination. Key requirements for thisnear-term stage include stable organization structures for each entity, advanced information technology capabilities (including platforms, staff andstructured databases) and up-to-date websites.
For 2016, Qatar will have more ambitious targets
for citizen-centred service delivery processes ineach entity. Information technology use should beenhanced to integrate processes and provide online
service delivery, at least for some offerings. To makeone-window service delivery a reality, collaboration
among entities within each sector must be high andactivities harmonized. Important requirements
include stronger central organization and information and communication technology functions;common information technology platforms, a central public sector database and fully automated processes within and across entities.
Provide one-window services to customers forfrequent requests

This project will simplify access to public services (such as through single-user identification for
online service offerings). The Cabinet’s Central
Organization and Development Department willlead the effort, with the help of GSDP during thedesign phase and ictQATAR during implementation. Approximately 33 months will be required to
fully implement the project (9 for design and 24
for rollout). Major outcomes include streamlined
and automated processes for delivering services,mechanisms in place to facilitate collaborationand coordination among entities delivering sharedservices, and a service delivery website establishedfor each entity that will merge into a governmentwide service delivery website by the final stage of258

Qatar National Development Strategy 2011–2016

the project. All government services will be readily
accessible online.
Target• Enable all citizens and customers to accessall public services online, using a single-user
identification.
Deliver integrated services to businesses acrossthe full lifecycle from setup to exit

This project aims to simplify how businesses accessservices (through one point of contact) throughout their lifecycles. The Ministry of Business andTrade will lead design and implementation, withthe help of the Qatar Chamber of Commerceand Industry in design and implementation and
ictQATAR in implementation. The project will lastan estimated 33 months (9 for design and 24 forrollout). This project will develop a central business database of all businesses in Qatar. It will
streamline and optimize service delivery, with amechanism to facilitate collaboration in delivering shared services. And finally, businesses will beable to access all government services through one
website with one common company identification.
Target• Simplify and improve business access to public
services online through a one-stop shop.
Enhance procurement policies to establish
standards for tendering, contracting and managing
supplier performanceThis project will increase transparency in public procurement, maximize value for money,
preserve public funds and improve the qualityof goods and services. The MOEF and the central tendering committee will lead the effort todesign and set up guidelines for public procurement in approximately 9 months (3 for designand 6 for implementation), with ictQATAR’s help
in implementation. The major outcomes will beclear and detailed processes (including standard
templates) for public tendering and contracting,an efficient supplier performance managementchapter7

system and an e-procurement system to integrate
suppliers. The new processes will enable the Central Tendering Committee of the MOEF to monitor procurement (awards, pricing and progress
updates).

implementation. The project will culminate in
the creation of central databases and repositories.

Target• Install an efficient and modern electronic procurement system.

Performance management

Implement standards for information transactions
and knowledge management

This project will improve the efficiency of internal processes and public service delivery and help
decision-makers perform their duties. With thehelp of Qatar Statistical Authority, ictQATAR willlead a 24-month effort to design (6 months) and
implement (18 months) standards for each transaction. Major outcomes will include central electronic data repositories (such as citizen/customer
databases, business and healthcare registries),
clear roles and responsibilities in managing knowledge and data, and systems and tools allowing easy
access to the central data repositories. Standard
templates will be created to facilitate report preparation for decision-makers.
Target• Establish a modern electronic system for data
and knowledge management.
Establish a standard information technology
platform to facilitate integration of ministry services

This project will facilitate the one-stop shop,
promote active collaboration and coordination
among government entities and improve government efficiency. The 24-month design (6 months)
and rollout (18 months) of the standard government information technology platform will be led
by ictQATAR, with other ministries and agencies
providing design support. Outputs include completion of the government information technology blueprint architecture, based on global bestpractices and recent technology trends. External
technology experts will validate the design andTarget• Launch an integrated electronic services platform.

To achieve the goals of the National Development
Strategy 2011–2016, Qatar needs a robust performance management framework to monitor andevaluate implementation across all sectors, to allocate financial resources appropriately and linkthem to strategic plans and institutional performance. The current government structure does
not accommodate these activities at the whole-­
government level.
A well defined performance management framework enables measuring, managing and assessing
outcomes against targets. It creates options for central functions to address underperformance. It adds
robustness in integrating measures of performanceacross entities. It provides early-warning indicators
to support scenario analysis and corrective actions
to avoid problems. Finally, it can drive behaviouralchanges by promoting accountability for achieving
targets and making performance transparent.
Creating a performance management frameworkwith a robust design requires:• Establishing a detailed annual performance
management process and a full performance
management cycle that sets targets, identifies
key performance indicators, creates reports
for measuring and assessing those indicators,
takes corrective actions and rewards great
performance.
• Developing key performance indicators tomeasure target achievement.
• Creating well defined roles with clear
accountabilities.
• Designing a data-gathering and data-reporting
process that ensures the integrity and timely
availability of high-quality data.
• Integrating key performance indicators andpresent them in standardized reports.
Developing modern public sector institutions259• Tracking facts and manage a closed feedback
loop for corrective actions.
Implementing a comprehensive performance
management system will be challenging. It must
be a flexible process, adapted to Qatar’s needs andadjusted according to the lessons of experience. A
good way to start is to focus on the most importantand strategic indicators.
Establish a public sector performance
management framework with definedinterventions to resolve performance gaps

This project is critical for developing and modernizing public sector institutions. The aim is to tie financial and human resources to strategic plans, trackprogress and outcomes, identify performance gaps totrigger corrective actions and create a robust framework for achieving development goals. The Cabinet’s
Central Policy and Planning Department will leadthe effort to establish a performance management
framework, with the help of other central functions
and agencies (GSDP, Qatar Statistical Authority, State
Audit and the MOEF). The project is expected torequire 33 months to complete (9 months to design
and pilot the performance management framework,and 24 to fully roll it out). This project will link institutional performance to strategic plans and budgeting,define clear targets and key performance indicators
at each level (centre, sector and ministry/­agency),
detail standards and timelines for measurement andreporting, establish processes for corrective actions,and design and implement information technology tools to facilitate performance management.
Targets• Establish a performance management system forthe public sector, including government agencies.
• Link institutional performance to strategicplans and budgets.

Project priorities and fosteringcross‑sectoral links
To avoid bottlenecks and smooth implementation,
the 16 projects have been prioritized, detailed and260

Qatar National Development Strategy 2011–2016

sequenced, and the requirements and risks havebeen identified. The projects were prioritized by
impact and implementation complexity. Impact
was calculated as the average of each project’s
urgency and importance and of value creation
to institutions (in development and modernization), citizens and customers, and the country as
a whole. Implementation complexity was based on
input requirements (resources), capability requirements, institutional barriers and time to impact.
Projects were plotted on a matrix of impact andimplementation complexity. This tentative prioritization will help determine the sequence of
implementation.
Project priorities

Three projects­— ­strengthening the role of thecentral functions, enhancing policies to attract
talent and developing a public sector performance
management framework­— ­w ill start as soon as
possible because of their critical impact on the
National Development Strategy 2011–2016. The
remaining top-priority projects are set to start in
2011. Reforming the budget process, developing
strategic and operational planning and building
strategic planning capability and capacity are set
to start in 2011 because of their impact on otherprojects starting in that timeframe. Enhancing
procurement policies should also start in 2011 to
improve procurement across the public sector.
Priority 2 projects are set to start in 2012. Implementing standards for information and knowledge management is set to start in 2012 becauseof the importance to other projects starting thatyear. The remaining projects (priority 3) are set tostart in 2013. Implementation will be monitored
closely by the lead stakeholders, who should intercede as needed to ensure that project benefits arecaptured. Some institutions may need to adjust
their project structure to fit their needs and work
style.
Central functions are crucial to implementing the
National Development Strategy 2011–2016 and toadvancing the broader institutional developmentchapterand modernization effort. A high-level framework for the future state incorporates three roles:
ensuring coordination and collaboration among
ministries, providing objective advice and defining strategies and programmes to address critical challenges for the country that cannot be
addressed by a single ministry.
Fulfilling these roles requires understanding theoptions. The most pertinent criterion is the capability level in individual ministries. As a starting point,
two options can be considered. One is to begin witha centralized model and, as capability grows, movegradually to a decentralized model. A second is tostart with a supportive centre that provides flexible
support to ministries. This support must be clearly
defined and communicated so that ministries andagencies can take advantage of the relationship.
Figure 7.10

7Fostering cross-sectoral links

Institutional development and modernization isa critical enabler for driving change, achieving
the National Development Strategy 2011−2016
outcomes and targets in all sectors and realizing
the goals of QNV 2030 (figure 7.10). The national institutional development and modernization programme will promote an outcome-based
approach to strategic planning as an effectivemeans of managing resources and advancing
transparency and accountability. It will foster aculture based on performance and cultivate thedevelopment of public service delivery−oriented
mind-sets. Capacity building programmes conducted by the Institute of Administrative Development will be realigned to give individuals the
skills needed to achieve the outcomes and targets.

Institutional development and modernization as an enabler of all sectors

Institutional development and modernization as an enabler of all sectors• Building capacity, such as inoutcome-based strategicplanning and implementation
Sustainableeconomic
prosperity• Creating a culture for
performance based
management, including
monitoring and evaluation

Environmental
sustainability• Fostering interagency
collaboration• Improving productivity andpublic service delivery

Caring andcohesivesociety

Institutional
development andmodernization

Effective Qatariparticipation
in a productive
labour force

Goal

Educated andcapable population

Healthy
population

EnablerDeveloping modern public sector institutions

261

Chapter 8
Moving from strategy
to implementation

8

Moving from strategy
to implementation
Qatar’s National Development Strategy 2011–2016 is comprehensive
and multidimensional. Each part entails different challenges, so careful
implementation will be vital to its success. The machinery of implementationis already in motion, but the pace needs to be accelerated and achievement
strengthened. Success will depend foremost on demand by the country’s
leadership for regular information on progress and results. It will also
depend on mainstreaming the strategy across the whole government.

Ministries and agencies will need to take ownership of the National Development Strategy 2011–2016, develop their own operational plans andaccept accountability for delivery. At the centre, theStrategy will have to influence processes that drive
decisions on how resources are used and provide
operational tools for assessing individual projects
and policy proposals in an integrated way. Major
challenges lie ahead, particularly in building thehuman and institutional capabilities for effectiveplanning and project execution, but also in providing the legal basis for some proposed innovations.

Embracing an expanded orientation andnew ways of working
The expanded orientation embedded in the
National Development Strategy 2011–2016 calls
for integrated decision-making. Decisions on economic direction and speed must be balanced withconsiderations of human development, social
development and environmental development. Sustainability dictates that current claims on resources be weighed against the ability of future generations to meet their needs. Policy-making andinvestment within the framework of the National
Development Strategy 2011–2016 will require integrated assessments of national projects and close
collaboration across traditional sector boundaries.
264

The implied shift in programme planning andmanagement is sweeping. Rather than build programmes around inputs or processes, budgets will
be determined by the specific and often measurable results identified in the operational plansof ministries and agencies. These in turn will be
crafted to support Strategy goals and targets.
Qatar’s political leaders will drive the changes
foreshadowed in the Strategy. They will demand
information on progress. Individual ministries
and government agencies will be accountable for
implementing the elements of the Strategy thatfall within their mandates. This accountability willneed to be matched by commensurate delegated authority and empowerment across and within agencies. Increasingly, implementing agencies
must take a sectorwide view of their activities andcoordinate with other actors on strategy, planning,budget and operations. Coordinating mechanisms
at the centre of government, including new budget processes, will support this new orientation.

Strategic thrusts
Preparation of the National Development Strategy 2011–2016 has been inclusive and participatory, spanning ministries and agencies across government, the private sector and civil society. It haschapterdrawn on a wide body of knowledge and experience, and emerging strategic thrusts have beenclosely guided by Qatar National Vision 2030 (QNV2030). The Strategy endeavours to leverage andintegrate existing development initiatives, fill gaps
and align planning and activities. Backgroundsector reports prepared by Task Teams propose
numerous interventions to support specific goals.
Table 8.1 aggregates these interventions around 20
key challenges and the responses suggested by the
National Development Strategy 2011–2016. These
strategic thrusts provide a platform for identifying
and designing targeted programmes and projects
for implementing the Strategy.

The building blocks of implementation
Moving from identifying strategic thrusts to implementing interventions requires careful planningby implementing agencies and support from thecentral functions of government. The concepts
and targets identified in the National Development Strategy 2011–2016 and in the sector background reports will need to be transformed into
detailed project blueprints focused on achievable
results that reflect the strategic directions in table
8.1. To the extent possible, there should be a focus
on “quick wins” (box 8.1).
These blueprints must include logical assessments
anchored in sound diagnostics; proven approaches and learning; measurable outputs, outcomes
and impacts for measuring and evaluating progress; clear accountabilities and built-in mitigation
measures tailored to identifiable risks. The financial and human resources needed to manage andimplement each project and sustain its benefits
must also be in place. And project risks and successes will be critically influenced by stakeholder
awareness, understanding and ownership.
But projects should not be judged in isolation. To
ensure effective integration and sequencing andproper resource allocation to priorities to achieve“value for money”, the National Development Strategy 2011–2016 calls for a portfolio view of projects
by implementing agencies and nationally. AmongBox 8.1

8

The value of quick wins

Certain projects promise significant impact without
creating complex implementation challenges. For
example, lifting the compensation ceilings in the2009 Law on Human Resources Administration andbudgeting for active recruitment of qualified profes‑
sionals could yield visible results fairly quickly.
Perceptible progress in one sector can moti‑
vate teams working for results in other sectors
and convince the public of the government’s com‑mitment to the National Development Strategy
2011–2016 and its capacity to deliver. In the earlystages of reform, outstanding performance canbe held up as an example.
Capturing success stories is not only motivatingand helpful in building momentum behind the largerchange effort. Reporting on successful outcomescan also inform subsequent analyses and identify
best practices in programme management.

implementing agencies this portfolio perspective
will emerge in strategic and operational plans thatare part of a broader sector focus (see chapter 7).
To mitigate risks at an institutional level, the capabilities of government central functions will bestrengthened so that they can deliver advice andsupport to implementing agencies. At the national
level funding priorities will be articulated throughreformed budget processes and a programmatic
approach to public investment planning (see chapter 3). Strengthened management, monitoring (process and results) and evaluation systems—informed
by appropriate indicators at the project, institution,
sector and national level—will support strategy
implementation and integration (see below).
New planning and business processes and systems
will take root at a pace that acknowledges current
limitations on capabilities and experience (seebelow). In addition, because all challenges cannot be tackled simultaneously, projects with maximum impact and feasibility need to be identified
and prioritized (figure 8.1). Interdependencies
must also be kept firmly in mind when planning
project phasing.
Moving from strategy to implementation

265

Table 8.1

Qatar’s 20 key challenges

Qatar National
Vision 2030 pillar

Promotingsustainable
prosperity

Promoting humandevelopment

Taking an integrated
approach to soundsocial development

Sustaining theenvironment for future
generations

Developing modern
public sector
institutions

266

Major challenges

Strategic responses

Ensuring sustainability in a setting where hydrocarbon
resource depletion is still the dominant source of income

Establishing a hydrocarbon depletion policy; sustaining
high rates of saving and making sound investments inhuman, capital and financial assets for the future

Promoting stability in an environment where hydrocarbon
price volatility creates risk and presents challenges forcalibration of economic policy

Reforming budgetary and fiscal processes, public
investment programming, liquidity management anddomestic capital market development

Enhancing efficiency in the use of all resources tosupport high standards of living for current and future
generations

Promoting competition, trade and investment; improving
regulation; strengthening demand management for water,
power and fuel; reforming agriculture

Diversifying the economy to create durable wealth andsupport wider societal viability

Bolstering enterprise creation and private sector
development; improving the business climate,strengthening regional integration; reforming the labour
marketRebalancing the healthcare system to reduce theemphasis on hospital-based care and increase
integration between levels of care

Establishing an integrated healthcare system to shift thebalance of care towards a patient-focused, preventive
and community-based model

Meeting critical needs for a high-quality workforce acrossthe health sector (and affecting other sectors)

Developing and implementing a national workforce planthat takes a multifaceted approach and optimizes the
skills mix

Raising the achievement of Qatari students at all levels,
especially in math, science and English and, throughthat, increasing educational attainment

Strengthening reforms in K–12 and higher education toease demand and supply constraints

Coordinating education and training providers andaligning with labour force needs

Addressing quality, efficiency, inclusiveness andportability across the entire education and training
systems

Aligning labour market composition of Qataris with theobjectives of a diversified knowledge economy

Realigning demand and supply in the Qatari workforce,with an emphasis on continuously upgrading skills

Reducing reliance on low-cost, low-skilled foreign labour

Reviewing the sponsorship law and identifying ways of
attracting and retaining higher skilled expatriate workers

Balancing the forces of modernization and globalization
with the support of traditional Qatari family values andpatterns of family formation

Implementing cross-cutting measures to strengthenfamily ties, values and relationships

Strengthening social inclusivenessLaunching a multistakeholder programme thatstrengthens an inclusive social protection system

Improving road safety and ending the growing epidemicof traffic accidents, particularly among youth

Introducing a holistic approach to road safety, withcross-sectoral partnerships

Preserving traditional Qatari culture and Arab identity

Using culture as a platform to safeguard and develop
Qatar’s national heritage

Encouraging a more active lifestyle for young people, toreduce the health-related risks of inactivity

Promoting local sports participation and development as
part of a comprehensive, active lifestyle programme

Reforming unsustainable water consumption patterns

Establishing an integrated water management planacross the value chain

Encouraging sustainable urbanization and consumption
patterns that reduce environmental stresses

Promoting more sustainable urbanization and a healthierliving environment

Strengthening weak institutional capacities

Strengthening the role of central functions to support
institutional development and modernization

Expanding human resources capacities across the public
sectorApplying policies to attract talent, including staff
development programmes

Establishing a centralized system for managing forresults and for linking resource allocation to strategicplans

Launching a public sector performance management
framework linking institutional performance to strategicplans and budgets

Qatar National Development Strategy 2011–2016

chapter

8

Figure 8.1 Assessing the impacts and feasibility of programmes and projects
Criteria and weight for setting priorities for programmes and projects
ImpactCriteria

Feasibility

Description

WeightCriteria

Description

Weight• Need for change
exists• Critical area
versus secondary or
tertiary focus• Role in National
Development
Strategy
2011–201630%

Budget• Financial supportand resources
required to executeinitiative

30%

Speed of impact• Time taken forchanges totake effect• Quick fix orlong term

30%

Skill set needed• Required skill set
and capabilities• Presence of skills
and capabilities

30%

Urgency• Action required
now versus ability
to delay action• Size of problem
and need to resolve

40%Complexity• Difficulty in
executing initiative(stakeholders,legal changes,
cultural shift, time
for changes)

40%

Importance

Very highIllustrative prioritization framework for sequencing programmes and projects into implementation waves
5

Implementation timeframe
Project 8
Project 14

Project 5

Project 7
Project 12

Feasibility

Project 103Project 11
Project 22

Project 2

Project 6

1

Very low

Very low

Priority 2
2011–2016

Project 13

2

3

National
Development
Strategy
2011–2016

Project 15

Project 3

Project 1

1

Priority 1
2011–2013

Project 944ImpactTo implement the National Development Strategy
2011–2016, ministries and agencies will need competent project management functions. Where these
do not exist, establishing them must be a priority.
Where they do exist, they may need strengthening. While staff redeployments might address somegaps, qualified and experienced people are vitalfor effective project management functions. Over

Priority 3> 2016
5
Very highwhat is likely to be an extended transitional period, some agencies may have to “buy-in” such services under arrangements that transfer knowledge
and build national capabilities. However, humanresources constraints will need to be addressed
across a much broader front. Inadequate attention
to project management functions will jeopardize
project quality and could lead to project failures.
Moving from strategy to implementation

267

The human resources constraint
The National Development Strategy 2011–2016
calls for individuals or teams within government
to work in ways that may be new to them. In manycases Qatar lacks sufficient capacity to implement
policies and programmes successfully.
Human resources shortages in key sectors could
undercut the delivery of major outcomes. For
example, the Strategy calls for a large expansionof primary and preventive healthcare. But Qatar
has only 1.9 primary care physicians for every
10,000 people, far below the World Health Organization recommended level of 5.6. Expanding primary care coverage will require recruiting qualified expatriate health professionals and training
Qataris. This picture of acute skill gaps is repeated across the public sector. Experienced regulators, scientists, engineers, economists, statisticians,
health specialists, social policy experts, financial
analysts, project specialists and other experts are
all in short supply. Increasingly, qualified andcapable Qataris are being lured to attractive positions in the private sector.
Recognizing the ubiquitous constraints onhuman capabilities and the threats to successful implementation of the National Development Strategy 2011–2016, the Cabinet’s Central
Human Resources Department will lead in crafting a central recruitment plan. Ministries responsible for managing programmes will, as a priority, conduct skills assessments identifying gaps.
Partnerships with universities, the private sector
and others will be explored for bridging capacity
shortfalls.
Easing human resources constraints may require
modifying the 2009 Law on Human Resources
Administration so that it does not inhibit efforts
to retain Qatar’s best talent in the public sector.
Given the small number of citizens, the increasing demands on government and the complexityof Qatar’s economy and society, strategic and flexible international recruitment of high-level experts
and specialists warrants consideration.
268

Qatar National Development Strategy 2011–2016

The imperative of building local capabilities in
the public sector (see chapter 4) and in the private
sector (see chapter 3) has already been expressed.
But the point merits underlining. A concerted
capacity-building effort across all sectors of government will be spearheaded by the Institute of
Administrative Development, supported by the
Cabinet’s Central Human Resources Department.
The Institute will build and operate a world-classtraining centre to help agencies develop the capabilities needed to realize their strategic goals
and to assist Qataris in developing their career
potential.

Budgetary resources for the strategy
National Development Strategy 2011–2016 projects and programmes will need to be supported
by fiscal resources. But much more than budgets
is involved. As explained in chapter 3, the Strategy foreshadows a new integrated approach tothe allocation and use of the state’s resources. A
new fiscal architecture will promote alignment ofspending with leadership directions and priorities
set out in the Strategy. This new architecture will
be supported by a modern and technically soundlegal framework for public sector financial management and by other innovations, including apublic investment programme. These will reinforce the link between the National Development
Strategy 2011–2016 and economic management of
the country.
In the immediate future—fiscal year 2011—
resources will be made available to support
National Development Strategy 2011–2016 priorities. Budget resources may be used to fundrecruitment of new personnel where there are skill
gaps or to procure professional services for technical and advisory purposes. Limited resources may
also be made available to support capital expenditures. The Ministry of Economy and Finance’s
Budget Call circular sets the policy and provides
technical and fiscal parameters to guide budget
preparation. To release resources to support priorities, it will be important that implementing
agencies identify potential savings in other areas.

chapter

The Ministry of Economy and Finance, the General Secretariat of the Council of Ministers andthe General Secretariat of Development Planningwill provide targeted support to aid implementing
agencies in adjusting to new arrangements.
The fiscal 2011 budget will be prepared under thebudget law of 1975, with chapter classification of
spending. However, a functional classification of
expenditure (based on the United Nations classification of government functions and sectors) will
be piloted. A functional classification is needed tosupport sectorwide approaches to budget preparation and to pave the way for programmatic budgeting that focuses on results. In fiscal 2011 a sector wide approach may be piloted in health andeducation, with agencies working collaboratively to prepare budgets that serve common (programme) goals. The Ministry of Economy and
Finance would consider agency budgets together
with agencies as a group rather than bilaterally.
Beyond fiscal 2011, momentum will build towards
programmatic budgeting, anchored in a new functional classification of expenditures and based on
strategic and operational plans developed andowned by ministries and agencies. To support
budget modernization, new templates and technical guidelines will be produced for preparing projects and budgets and relevant training will be provided. By fiscal 2013 or 2014 it is anticipated thatsignificant capital projects will be considered within a public investment programming frameworkthat supports broader portfolio assessment. By
that time, too, fiscal planning parameters would
be firmly anchored in a forward looking macrofiscal framework.

Bridging the information andknowledge gap
Successful implementation will require closing
information gaps. Much new information was
unearthed in preparing the National Development
Strategy 2011–2016. A strategic, systematic and sustainable approach to collecting and disseminating
statistical information is needed. Qatar Statistics

8

Authority is mindful of these needs and is working
hard to meet them.
There are data gaps in virtually all sectors. The
authority to collect information and to establish
how was conveyed in legislation approved early in
2011. Indicators need to be developed that measure Qatar’s progress in achieving the goals of the
National Development Strategy 2011–2016 at a sector and national level and that reflect the priority
accorded sustainable and integrated development.
Citizens, civil society, the private sector and others
will need access to better information so that they
can contribute more effectively to Qatar’s development efforts. The government requires better dataand information to direct policy, guide project
design, allocate resources efficiently and monitor
and report on progress in processes and results.
These issues are closely connected to the monitoring and evaluation of Strategy implementation
and results (see below).

Implementation through participation,communication and advocacy
In general, effective consultation and participation of stakeholders or target groups in project
design and implementation can raise awareness,create trust, foster ownership, improve project
design and increase the chances of beneficial
results.
But strong participatory processes may not always
be sufficient. Some goals of the National Development Strategy 2011–2016 will be achieved only if
the government convinces other actors to alter theirattitudes or behaviours. Support for some elementsof the Strategy will demand consistently implemented and clearly communicated advocacy campaigns
conducted by people with specialized knowledge ofcommunications for behaviour change, social marketing and opinion research tools.
Consider, for example, the goal of improving childwell-being and welfare. Simple regulatory shifts
will not be enough to alter patterns of poor physical fitness and low university enrolment of men.
Moving from strategy to implementation

269

Agencies involved in child welfare will need tounderstand why certain patterns have emerged
before effective advocacy campaigns can be
designed to change them. In other, often sensitive,
areas, a better understanding of the prevailing situation is needed to support informed and effective advocacy.

Monitoring and evaluation
The final step in successful implementation ismonitoring and evaluation.
At a project level, continuous ministry and agency tracking of milestones using built-in systems
for monitoring process (outputs) and results canstrengthen accountability for delivering agreed
outcomes and can provide critical information on
performance. Active monitoring of project performance enables implementing agencies to identify
obstacles and tackle them before they derail projects or jeopardize outcomes.
Some monitoring and evaluation structures are
already in place. For example, the environmental management strategy is supported by a system
built on process and impact indicators. Process
indicators are determined by activities with a timeframe for implementation, defined responsibilities for carrying them out and indicative costs foreach of them. Impact indicators are determinedby baselines and targets for each key output.
For all projects, the implementing agency will
establish measurable indicators, create or refine

270

Qatar National Development Strategy 2011–2016

information-gathering systems to collect related
data and record and analyse the information.
Realistic timelines that take limitations and constraints into account are crucial. They can enable managers to know when milestones have been
missed and signal possible bottlenecks in the regulatory structure, deficiencies in skill levels orbudget shortfalls.
All projects under the National Development
Strategy 2011–2016 will be evaluated at completion
to reinforce a culture of accountability for delivering results. In addition, evaluations can provide
critical learning about successes and shortcomings
from which follow-up programmes can benefit.
At a sector level, systems for aggregating information and distilling lessons with broader applicability will be important. In due course, sector
spending reviews could be considered, as mightsustainable development audits. Where to housethese new functions within government would
have to be decided.
At a national level, evaluation is an important sourceof knowledge about what has worked or not worked,
and why. It also can show how social, human, economic and environmental dimensions of the
National Development Strategy 2011–2016 interact.
A mid-term assessment of the National Development Strategy 2011–2016 at a project, sector
and national level in the second half of 2013 will
inform future refinements of strategic directions.

2011~2016

Qatar National Development Strategy 2011–2016

Qatar National
Development Strategy

Towards Qatar National Vision 2030