Bulletin No. 1628

S U M M A R IE S O F

MANPOWER SURVEYS AND REPORTS

FOR DEVELOPING COUNTRIES

1 9 5 8 - 6 8

5 2 T '

r ^ J

U.S. DEPARTMENT OF LABOR

George P. Shultz, Secretary

BUREAU OF LABOR STATISTICS

Geoffrey H. Moore, Commissioner

June 1969

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Foreword

This publication is based on manpower reports and surveys prepared by consultants assigned 

to developing countries. The reports and surveys were assem bled and sum m arized by the Bureau 

of Labor Statistics of the U.S. Department of Labor under contract with the Agency for International Development, U.S. Department of State.

The Bureau is indebted to many organizations whose cooperation and assistan ce made p reparation of this publication possible. Special acknowledgment is due to the following organizations 

who searched their files to identify and supply copies of reports: International Labour Office, 

Education and World Affairs,** The Ford Foundation, Governmental A ffairs Institute, and Stanford 

R esearch Institute. In addition, many individuals, too numerous to list, aided in tracking down 

fugitive reports.

Sum m aries of the manpower reports and surveys were prepared by Evelyn R. Kay, of the 

Office of Foreign Labor and Trade.

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Preface

For many years manpower surveys, assessm en ts, fo recasts and projections have been made 

in differing ways, for various purposes, often repetitively, for many developing countries. Reports 

and surveys have been sponsored, supported, or conducted, by AID, its p red ecessor agencies, ILO, 

UNESCO, IBRD, OECD, Ford Foundation, and private contract agencies. This work has been 

diverse in ejq)licit objective, scope, depth, method, quality, and final utilization. P rojects have 

focused variously on total reso u rces and requirem ents, ch aracteristics of the total manpower 

pool, employment and unemployment levels, occupational composition, and outlook and requirem ents, 

som etim es in selected occupations and categories of sk ills and training.

A prelim inary review of AID manpower activities, requested by the Adm inistrator in 1966, 

found that no careful appraisal of any part of this experience had been made. It was not possible 

to find a comprehensive assem bly of the relevant m aterials in any central place. As a result, 

in March 1967, AID arranged for the Bureau of Labor Statistics to collect, organize, and classify 

the basic reports and surveys which would meet minimum requirem ents for system atic evaluation 

and would contribute a useful reference resource to the Agency’ s information system .

C ritical examination of the significance, adequacy, and applications of manpower survey findings 

has become m ore important with growing em phasis on appraisal of manpower requirem ents as 

a b a sis for planning of education and training program s. Still m ore crucial is the need for appraisal 

of the “state of the a rt” in this technical field in relation to the vitally important employment 

dim ensions of economic development. The inventory presented in this report, and availability 

of the basic documents which lie behind it, furnish an important partial resource for further study 

and evaluation, country by country, and on a com parative b a sis. Together, they constitute the 

first n ecessary step toward analyzing manpower development and planning efforts in developing 

countries.

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Preface—Continued

A word should be added regarding the lim itations of this report and the project which has 

made it possible. F irst, the report m akes no attempt to provide complete coverage of the subject 

for the countries covered, a task which would require a sifting of the country referen ces in the 

b asic documents and a supplemental canvass of indigenous country literature and so urces. Second, 

in general no linkage between the individual reports and surveys for a given country has been 

undertaken except as the documents them selves reveal this linkage.

This report reflects the existing record. Its use should advance the quest for best practice 

in this field, reveal steps to be avoided or taken with skepticism , and contribute to som e degree 

toward further wisdom in dealing with the important but elusive manpower and employment objectives in the international development effort.

Meridith B. Givens

Agency for International Development 

U.S. Department of State

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Contents

Page

Introduction.............................................................................................................................................. 1

A frica

R egion al.............................................................................................................................................. 5

C am e ro o n .......................................................................................................................................... 10

Central A frican R ep u b lic............................................................................................................. 12

Congo (B razzav ille)........................................................................................................................ 13

Dahomey.............................................................................................................................................. 14

E th io p ia.............................................................................................................................................. 15

G han a.................................................................................................................................................. 20

Guinea.................................................................................................................................................. 25

K en y a.................................................................................................................................................. 27

Lesotho................................................................................................................................................ 29

L ib e ria ................................................................................................................................................ 30

Libya..................................................................................................................................................... 32

M alaw i................................................................................................................................................ 35

M a l i ..................................................................................................................................................... 37

M orocco.............................................................................................................................................. 38

N ig eria................................................................................................................................................ 39

R h o d e sia ............................................................................................................................................ 43

Senegal................................................................................................................................................ 44

Sierra L eone..................................................................................................................................... 47

Somali R ep u b lic.............................................................................................................................. 48

S u d a n .................................................................................................................................................. 49

Sw aziland............................................................................................................................................ 53

Tanzania.............................................................................................................................................. 54

T o g o ..................................................................................................................................................... 63

T u n isia................................................................................................................................................ 64

U ganda................................................................................................................................................ 69

Am erican Republics

R egion al.............................................................................................................................................. 70

A rgentina............................................................................................................................................ 71

B o liv ia ................................................................................................................................................ 76

B r a z il................................................................................................................................................... 84

B ritish H onduras............................................................................................................................ 90

Central A m e r ic a ............................................................................................................................ 91

C hile..................................................................................................................................................... 95

C olom bia............................................................................................................................................ 99

Costa Rica ....................................................................................................................................... 102

Dominican Republic ...................................................................................................................... 103

E cu a d o r.............................................................................................................................................. 112

El Salv ad o r....................................................................................................................................... 115

G uatem ala.......................................................................................................................................... 119

G uyana................................................................................................................................................ 120

M exico................................................ 123

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Contents—Continued

Page

Am erican Republics - continued

N ic a ra g u a .......................................................................................................................................... 125

P a n a m a .............................................................................................................................................. 127

P e r u ..................................................................................................................................................... 131

Su rin am .............................................................................................................................................. 137

V en ezu ela.......................................................................................................................................... 138

West Indies (g e n e ra l).................................................................................................................... 153

Ja m a ic a ......................................................... 154

St. L u c i a ..................................................................................................................................... 155

St. Vincent................................................................................................................................... 156

Trinidad and T o b a g o ............................................................................................................... 157

E ast A sia and the Pacific

R egion al.............................................................................................................................................. 159

B u r m a ................................................................................................................................................ 160

China, Republic of ........................................................................................................................ 162

In don esia............................................................................................................................................ 168

K o r e a ................................................................................................................................................... 175

M a la y s ia ............................................................................................................................................ 178

Thailand.............................................................................................................................................. 180

Vietnam, Republic o f ...................................................................................................................... 191

Near E ast and South A sia

A fghanistan........................................................................................................................................ 193

C e y lo n ................................................................................................................................................ 194

C y p ru s................................................................................................................................................ 196

G r e e c e ................................................................................................................................................ 198

In d ia ..................................................................................................................................................... 200

Ira n ....................................................................................................................................................... 205

Ir a q ....................................................................................................................................................... 209

I s r a e l ................................................................................................................................................... 210

J o r d a n ................................................................................................................................................. 213

P ak istan .............................................................................................................................................. 216

S y r ia ..................................................................................................................................................... 226

T u rk e y ................................................................................................................................................ 227

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Summaries of Manpower Surveys and Reports for Developing Countries, 1958-68

Introduction

This collection of manpower reports and surveys represen ts a step in AID’ S long-range 

goal of appraising and evaluating manpower activities in developing countries. Every attempt 

was made to locate all AID-sponsored manpower reports and significant reports prepared by 

other organizations. The om ission of any AID report is unintentional and m erely indicative of 

the difficulty of locating and identifying elusive reports.

Manpower reports and surveys selected for this inventory cover the 10-year period 1958 to 

mid-1968. In all, about 300 reports were collected from various sources for this project. From 

this group, 226 were selected on the b a sis of their relevance to the field of manpower development 

and satisfaction of one or the other of the following criteria:

1. They deal with the overall planning and implementation of a manpower development program , 

taking into consideration the economic, social, and political factors in the country.

2. They provide technical assistan ce in specific a re a s, such a s m easuring current or potential 

manpower reso u rces and requirem ents, describing techniques to make these m easurem ents, analyzing educational and training institutions to meet manpower needs, or developing job placement 

se rv ice s.

The re st of the reports (about 75) were not included because they were prepared by the countries 

them selves, rather than by consultants, or because they did not conform to the above criteria. 

Reports prepared for developed countries or for Communist countries also were excluded.

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Sum m aries of the 226 reports collected for this project are arranged in alphabetical order by 

country within each region. They include, where possible, statem ents on the manpower adm inistrative and organizational machinery, highlights of the m ission accom plishm ents, and m ajor recom ­

mendations. The sum m aries should serve as a quick reference to manpower program s and technical assistan ce in specific countries. Manpower consultants preparing a follow-up study in the 

sam e country or a new program in another, but sim ilar, country should refer to the full reports. 

Copies of the reports are available on a loan b asis from the AID H istorical and Technical Reference 

Branch or from the U.S. Department of Labor library.

Consultants and students of manpower development will be interested particularly in the 

selected readings listed on the inside back cover of this report. These sources were either p repared or sponsored by the Agency for International Development. They include technical manuals 

for setting up and conducting manpower program s, proceedings of sym posia and sem inars on 

manpower subjects, and AID Manual O rders on strengthening labor m in istries and on manpower 

and employment development.

The following tabulation sum m arizes the reports, by region, of the various organizations 

responsible for their preparation:

O rganization T otal A frica American

E ast A sia 

and the

Near East 

and

T o ta l........... 226 65

Republics

89

P a c ific

34

South A sia 

38

Agency fo r In te rn atio n al

Development........................... 98 12 59 14 13

Education and World

A f f a ir s .................................... 11 10 1 — —

Ford Foundation...................... 16 14 1 — 1

In te rn atio n al Labour

O ffic e ...................................... 65 19 15 10 21

Stanford Research

I n s t it u t e ............................... 7 — 3 4 —

United N ation s......................... 6 2 2 2 —

U n iv e r s itie s............................. 10 1 5 2 2

Other o rg a n iz a tio n s.............. 13 7 3 2 1

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A broad range of topics relating to manpower is covered in this collection of reports. Although 

consultants usually were assigned a specific project, they tended to advise on several facets of 

manpower development and planning. Therefore, column totals on the following tabulation differ 

from the preceding tabulation because many reports contained more than one subject:

Subject A frica

Assessment of current 

manpower situ a tio n 

based on already

a v a ila b le in fo rm atio n .. . . 28

Manpower surveys

Establishm ent surveys

of employment......................... 25

Household surveys of

the labor fo r c e .................... 1

P ro jectio n s of manpower 

resources and req u irements .......................................... 20

Employment se rv ice

a c t i v i t i e s............................... 14

Education and tra in in g

program s.................................... 38

Manpower planning, adm in istra tio n , and

o rg a n iz a tio n ........................... 24

S t a t i s t i c a l se rv ic e s

and o rg a n iz a tio n .................. 4

S t a t i s t i c a l tech n iques......... 2

E ast A sia Near East

American and the and

Republics P a c ific South A sia

19 9 13

12 8 6

2 1 3

12 11 7

25 9 10

33 20 10

23 15 13

7 4 2

4 7 4

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A frica

Regional

Report on M iddle-Level O fficials in A frica 

(1963; 39 pages and 8 sections)

Prepared for UNESCO by Derek T. Healey

This is a collection of reports on 10 African 

countries. The reports relate to the supply of 

and demand for m iddle-level personnel in the 

social scien ces. The an alysis is based on manpower surveys already carried out in these 

countries and on other information that may be 

available. In addition, an analytical description 

of the facilities for training m iddle-level personnel in each country is provided.

The countries included in the report are 

Ghana (50 pages), N igeria (60 pages), Rhodesia 

and Nyasaland (46 pages), Tanzania (15 pages), 

Kenya (15 pages), Uganda (12 pages), Sudan (14 

pages), and Mali (in French, 28 pages). The 

sections on M adagascar and Senegal are m issing.

The following is a sum m ary of the conclusions reached by the consultant:

1. Only Ghana has a functioning Manpower 

Unit.

2. No worthwhile supply and demand e stim ates or fo recasts of m iddle-level manpower 

are available.

3. Techniques of collecting education and 

occupational data should be improved and expanded.

4. Employment Exchange functions should 

be expanded to meet demands of labor and 

em ployers.

5. Occupational and vocational guidance 

counseling should be initiated.

6. More flexibility should be developed in 

educational and training institutions to develop 

a well educated and adaptable labor force.

7. Standards regarding teachers of secondary schools should be established and maintained.

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A frica

Regional

French Education Policy in Sub-Saharan A frica and M adagascar 

(1965; 38 pages and 2 appendixes)

Education and World A ffairs: Study Committee on Manpower Needs and 

Educational Capabilities in A frica, prepared for AID

Reviews the French assistan ce program in education 

and in technical assistan ce a s of 1964. USAID is advised 

to follow the guidelines established by the French.

O bservations of French assistan ce

1. In the sub-Saharan and M adagascar 

region s, about 50 percent of the 8,500 French 

aid personnel were in education, concentrated 

largely in secondary education.

2. There were very few technical assistan ce 

“advisory" personnel in A frica. Most personnel 

were in “active" function categories such as 

doctors, engineers, and government administrato rs.

3. French policy favored reducing its personnel in “active" functions by m eans of increasing 

the output of local high-level manpower through 

secondary and university program s.

4. French policy favored strengthening local 

educational system s and training centers for 

form ation of “cad res" where needed, rather 

than creating specialized educational schools 

in the French pattern.

W eaknesses in educational system

1. M ass prim ary education reaches re la ­

tively few. Only a few people get a good education.

2. Secondary education is weighted heavily 

toward c la ssica l curricu la rather than the technical “L ycee."

3. The proposed training centers for form ation of cad res are m ostly in the project stage.

French education assistan ce policy

1. The French have a tim etable of 5 to 

8 years to produce well-trained cad res needed 

to replace their expatriate personnel in education and government service.

2. The French are rationing assistan ce funds 

to education by giving preference to p rofessional and technical schools, adult agricultural 

schools, and prim ary schools adapted for rural 

areas.

USAID education assistan ce policy

1. Should be part of integrated program .

2. Should grant scholarship only for graduate 

work ov erseas.

3. Should not try to tran sfer U.S. culture or 

institutions but should cooperate with French in 

their general approach to education and manpower development.

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A frica

Regional

Study of Manpower Needs, Educational C apabilities, and O verseas Study

(1965; 48 pages)

Education and World A ffairs (Report No. 1): Study Committee on Manpower 

Needs and Educational C apabilities in A frica, prepared for AID

Summary report of the general ch aracteristics and 

developments observed in nine African countries:

Ethiopia, Guinea, Kenya, L iberia, N igeria, Sudan3 Tanzania, Tunisia, Uganda.

This report sum m arizes observations and 

recommendations of a general nature as they 

apply to all or m ost of the countries surveyed. 

Detailed surveys were made in nine African 

countries: Ethiopia, Guinea, Kenya, L iberia, 

N igeria, Sudan, Tanzania, Tunisia, and Uganda. 

Seperate reports for each of these countries have 

been prepared 1 / and provide data on the 

following topics:

1. An assessm en t of available data concerning high-level manpower needs.

2. An appraisal of the capabilities of indigenous African educational institutions to meet 

manpower needs.

3. A survey of opportunities for study overse a s a s they relate to high-level manpower needs.

General Observations

1. M ost high-level manpower is employed in 

Government or education se rv ice s, and m ost of 

these personnel are non-Africans.

2. Only N igeria, Tanzania, and Kenya have 

produced reasonably satisfactory manpower 

analyses.

3. Effective manpower planning machinery 

has been developed only in N igeria and Tanzania.

4. All counties face shortages in high-level 

and m iddle-level manpower in the scientific and 

technical fields.

General recommendations

1. AID should strengthen research capabilities of universities in the expectation of a feedback to Government circle s.

2. AID should provide key operational 

personnel in addition to technical advice during 

the period of rapid Africanization.

3. AID should a ss ist educational planning by 

making skilled personnel available for planning 

and adm inistrative positions in Government 

agencies and in educational institutions.

4. AID should develop a comprehensive approach to educational planning by giving more 

attention to organization of an overall human 

resource development strategy.

1 / See individual country for sum m ary.

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A frica

Regional

E ast A frica: Study of Manpower Needs, Educational 

C apabilities, and O verseas Study 

(1965; 183 pages)

Education and World A ffairs (Report No. 3): Study Committee on Manpower 

Needs and Educational Capabilities in A frica, prepared for AID

This study covers three E ast African Countries: Kenya,

Tanzania, and Uganda.

The educational and manpower planning 

organizations and program s in each country 

are analyzed and recom m endations are made on 

the needs of individual countries. Recommendations cover each educational level based on 

surveys of manpower needs. An excellent bibliography lists all documents to 1965 relating to 

economic, manpower, and educational development.

Kenya—B asic guidelines for Kenya’ s development are contained in the Development Plan 

for 1964-70. The 1965 Manpower Survey 1/ 

provides the m ost recent data on current em ­

ployment and projections of future requirem ents. 

To meet these needs, Kenya must develop its 

teacher and technical educational facilities and 

continue to rely on ov erseas trainingfor developing some of these sk ills.

Tanzania—Manpower planning is relatively 

advanced, both in the system atic an alysis and in

the establishm ent of effective adm inistrative 

machinery. A number of surveys which provide 

excellent occupational information have been 

prepared. The need to train great numbers of 

high- and m iddle-level manpower will place 

an exceedingly heavy burden on the country’ s 

educational institutions, but the goal of selfsufficiency may be reached by 1980.

Uganda—Development has been impeded 

seriously by a shortage of trained manpower. No 

manpower survey is available com parable with 

those of Kenya and Tanzania. Indications are that 

m iddle-level rather than high-level manpower is 

an immediate need. According to various studies, 

this need will not be met by 1971.

JL/ See page 28.

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A frica

Regional

E ast African Manpower Utilization Study 

(1965; 59 pages and 6 appendixes)

African-Am erican Institute report, prepared for AID

Summary of the problem of human resource development 

and utilization in E ast A frica.

The main purpose of this study is to recom ­

mend m easures to in crease the rate of return of 

African students from the United States and to 

m axim ize their productive reintegration into 

their home countries.

Many E ast African students are attending 

universities and high schools in the United States 

and Canada. An attempt was made to establish 

a list of students for each country. Kenya has 

approxim ately 1,200 students in the United States 

and Canada, or 40 percent of total students; 

Tanzania, about 300 students; and Uganda, about 

400 students.

C ritical problem s which will affect the tim ely 

return and maximum utilization of these students 

by their governments were observed. F or exam ple, o v erseas study program s do not meet 

school priority manpower needs of E ast A frica; 

coordinated guidance program s are lacking, 

particularly among “unsponsored students;” and, 

to assu re return of students to responsible p o sitions, effective recruitm ent and pre-return job 

placement procedures are lacking.

Recommendations for alleviating and p reventing som e of the critical bottlenecks in manpower development and utilization cover the 

following topics:

1. Adm inistrative support—improvement in 

student recordkeeping procedures.

2. African training sem in ars—coordination 

between ad v isers in New York and in E ast 

African countries.

3. Student sem in ars—specialized training 

program s to supplement academ ic cou rses while 

studying abroad.

4. Guidance counseling and information 

serv ice s.

Monthly reports have been prepared by the 

A frican-Am erican Institute on manpower needs 

by detailed occupation in Kenya and in Tanzania.

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A frica

Cameroon

An Inter-Organization M ission Survey of Manpower 

(In French; 1962; 136 pages)

ILO Report to the Government of the Federal Republic of Cameroon; 

O IT/TA P/C am eroon/R .3; Paul C asselm an (Canada); John Andoff (Canada); M arcel F abri (Belgium)

A ssessm en t of the manpower supply and demand, and 

recommendations on improving survey techniques and 

training for sk ills.

The organizations involved in the manpower 

assessm en t survey included the International 

Labour Office, various offices of the United 

Nations (FAO, UNESCO), International Civil 

Aviation, the World M eteorological O rganization, and others.

In order to obtain information on the work 

force, a pilot study of 40 establishm ents which 

employed 10 workers or more was conducted. 

However, because of lack of qualified personnel to complete the survey, the resu lts are 

not included in this report. Manpower inform ation was obtained from several other sources 

to develop the occupational composition and 

needs for each m ajor economic activity.

Conclusions

1. Information for developing a national 

economic and manpower development plan was 

lacking.

2. The institutional structure was rigid, 

which impeded social and economic changes.

3. W orkers were instilled with traditional 

values and resented change.

4. The traditional educational system failed 

to prepare w orkers for the world of work.

5. Rush of ru ral m igrants to urban a re as 

transform ed ru ral underemployment into urban 

unemployment.

6. Educated young people are needed in the 

ru ral a re as to improve agricultural production.

Recommendations

1. Information on population, labor force, 

and training facilities should be collected as 

soon a s possible. D etails of the required manpower statistical data are explained.

2. Governmental organizations concerned 

with labor and labor problem s should be e s ­

tablished at the national level and expanded into 

local a re a s.

3. Education and training should be adapted 

to current needs, such as agricultural techniques 

in farm a re a s, introduction of vocational education to train for m iddle-level occupations, education for women.

4. Other recommendations deal with methods 

of checking the rural-to-urban m igration.

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Africa

Camaroon

Organization of the Employment Service 

(In French; 1962; 36 pages and 3 tables)

ILO Report to the Federal Republic of Cameroon; 

O IT/TA P/C am eroon/R .4; Roger Farine, (Switzerland)

D escribes manpower and employment problem s, and 

recom m ends the extension and improvement of the 

Employment Service.

Political insecurity and economic slack aggravated the problem of unemployed urban 

w orkers. In Douala alone, 20,000 w orkers, representing 17 percent of the population, were 

unemployed. P o ssib ilities of employment in the 

private sector were low, but the m ilitary, the 

civil serv ice, and utilities (railroads) were in a 

position to create jobs. Current Employment 

Service activities were inadequate because of 

lack of personnel and funds to operate efficiently. 

Training facilities also were organized inadequately and were not prepared to train for the 

modern economy. Some apprentices, however, 

were provided on-the-job training to meet the 

needs of individual establishm ents.

A survey in two provinces was conducted; it 

covered 400 establishm ents that employed 10 

w orkers or m ore. The following observations 

were made:

1. The employed work force is stable, except 

among unskilled w orkers.

2. Em ployers were solicited daily by job 

see k ers.

3. The greatest manpower needs were for 

stenographers and m echanics.

Some idea of future requirem ents for manpower was gleaned from the survey but not with

any certainty. Em ployers lacked confidence in 

projecting their requirem ents because of the unstable economic and political situation of the 

country.

A pilot Employment Service office was estab ­

lished in Douala to replace the previous unorganized activities. Its first duties were to 

estim ate labor force ch aracteristics, obtain job 

vacancy information, evaluate manpower needs 

in each industry, and to determine the manner 

in which to meet these needs.

Recommendations

1„ The M inistry of Labor and Social Laws 

should collaborate with other public and private 

organizations to promote a plan for improving 

ru ral labor conditions. The urban unemployment 

problem can be solved only by finding means of 

encouraging ex cess labor to rem ain on the farm s. 

This resu lt can be achieved by improving crop 

production (cocoa and coffee) and by developing 

cottage industries.

2o The M inistry should encourage industrialization by studying ch aracteristics of available labor supply and by training qualified 

manpower to meet industry needs.

3. The Government should consider the Em ­

ployment Service as its principal instrument for 

the development and training of manpower.

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A frica

Central A frican Republic

The Demand for and Training of M iddle-Level 

and Supervisory Personnel 

(In French; 1962; 40 pages and annex)

ILO Report to the Government of the Central African Republic; 

O IT /T A P /C en trafricain e/R .l; Paul Andre Bonnefoy

A ssessm en t of middle-! 

meeting training needs.

Out of a population of 1.2 million, about

480,000 men and women were in the labor force, 

m ostly in agriculture, hunting, and fishing. 

Only about a tenth of those in the labor force 

were salaried; the rem ainder were prim arily 

self-em ployed and fam ily w orkers.

E stim ates of available manpower are based 

on incomplete information of the population, 

labor force, industry and occupation, and sa la rie s of w orkers. M iddle-level and supervisory 

occupational requirem ents are based on an analy sis of the m ajor economic secto rs.

The types of training and educational facilities already available are discussed. Also d iscussed are the curricula offered, number of 

graduates and enrollees, and budget allocation. 

An an alysis of the effectiveness of the educational and training output relative to the needs 

of the various economic secto rs is made.

manpower and methods of

Recommendations

1. Training program s should be improved 

and expanded to meet the needs of a m odernizing economy.

2. The se rv ice s of the Com m ission on Technical Training should be utilized.

3. The Center for Labor Studies should p re ­

pare statem ents on occupational requirem ents.

4. The Agricultural School should be guided 

by a Com m ission representing labor, management, and independent farm w orkers to produce higher skilled farm technicians who, in 

turn, can train others.

5. The rem aining recommendations concern 

various types of training program s for developing specialized m iddle-level personnel for each 

economic activity.

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Federal Reserve Bank of St. Louis
Africa

Congo (Brazzaville)

Training and Improvement of M iddle-Level Personnel 

(In French; 1962; 35 pages and 2 annexes)

ILO Report to the Government of Congo (Brazzaville) 

OIT/TAP/Congo (B razzav ille)/R .l; Paul Bonnefoy

Review of available information on the labor force and 

on vocational education and training.

The purpose of the m ission was to a s s e s s 

available manpower information and technical 

training in order to aid the Government in planning and organizing a vocational educational 

system for the development of a qualified labor 

force.

Population was estim ated to be 800,000, of 

whom 358,000 were economically active. About 

three-fourths of the active population were engaged in agriculture. A large m ajority of the 

high- and m iddle-level wage and salary workers 

were non-Congolese.

About two-thirds of the school-age population 

attended prim ary schools, but the proportion of 

students in secondary schools was very low. 

Technical training attracted relatively few 

people. Information regarding output and types 

of cou rses of agricultural schools is provided. 

In addition, there are two higher level schools:

1. Lysee Technique de B razzaville is fash ­

ioned after the French system and is divided 

into industrial and com m ercial sections. About 

500 students attend the 6-year program .

2. Center for Adm inistrative and Technical 

Studies of the Institute of Higher Studies (attached

to the University of Bordeaux) conducts 2-year 

training program s for those preparing for 

m iddle-level technical and adm inistrative occupations.

Vocational training is conducted by several 

private and quasi-public firm s, such as the 

Com m ercial Company (50 technicians), National 

Bank (clerical and stenographic trainees), A irFrance (7 trainees), Shell Petroleum (8 depot 

chiefs).

Rec ommendations

1. Republic of Congo should replace foreign 

w orkers as soon a s possible.

2. Training should be expanded and improved 

to prepare local w orkers to replace foreign 

w orkers.

3. Employment Service functions should be 

initiated for the collection and analysis of manpower data, vocational guidance, placement 

se rv ice s, etc. Appendix I (26 pages) d escribes 

available information on manpower development 

and vocational training in the country. Appendix 

II (26 pages) contains all the available statistical 

data on manpower, education, and related 

information.

13

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Federal Reserve Bank of St. Louis
A frica

Dahomey

The Employment Situation and the Organization 

of the Employment Service 

(In French; 1962; 44 pages)

ILO Report to the Government of Dahomey; 

O IT/TA P/D ahom ey/R .l; Robert Andrez (France)

A review of available manpower data and a discussion 

of manpower problem s.

The purpose of this report is to review 

the existing Employment Service functions and 

to make recommendations regarding its im ­

provement and expansion, on the b a sis of an 

analysis of current and projected manpower 

needs.

More than half of the 2 million people in 

Dahomey are in the labor force. Of this total, 

about 25,000 persons are wage and salary 

w orkers. The economic and financial aspects 

of the economy are described as they relate 

to the utilization of available manpower. Problem s of unemployment, underemployment, overcrowding in the urban a re a s, and related topics 

are discu ssed in detail.

The principal se rv ice s of the Manpower 

Office (Employment Service) are to issu e work 

p erm its, to place w orkers in jobs, and to keep 

record s of employment and unemployment. An 

attempt has been made to maintain an inventory 

of all w orkers with a skill or profession, but 

these record s are incomplete.

Recommendations

Immediate action recommendations call for 

an expansion of placement activities, com pulsory 

announcement of job vacancies in establishm ents 

that employ 20 w orkers or m ore, requirem ents 

for State and quasi-public operations to hire 

through the Employment Service, and the initiation of vocational guidance and selection activities.

Recommendations concerning the collection 

of statistical data include periodic reports of 

em ployers on the manpower situation, social 

security record s for classification of industry, 

and the development of an occupational c la ssification system .

Other recommendations covered item s such 

as the creation of a committee to carry out 

ILO Convention No. 88 (Employment Service 

activities), allocation of scholarships, and 

creation of a committee to regulate the employment of foreign manpower.

14

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Federal Reserve Bank of St. Louis
A frica

Ethiopia

A ppraisal of Proposed Manpower Survey 

(1960; 10 pages and 15 tables)

Clinton A. Johnson, AID Manpower Consultant 

Alternative proposals are suggested in place of the 

proposed high-level manpower survey.

Available data on employment are m eager and 

unreliable. The M inistry of Com m erce, Industry, 

and Planning collected statistic s on employment, 

w ages, and occupational distribution in manufacturing and som e retail establishm ents. Employment information is available from quasi-government institutions, such as the Bank of 

Ethiopia, but not from the Im perial Ethiopian 

Government (IEG), the largest employer of 

trained manpower. Some information on educational and training facilities is also available 

from the M inistry of Education. In all, about 30 

documents were reviewed.

D iscussion s with government officials indicated a manpower shortage in high-level occupations, especially in the adm inistrative field. 

T eachers and doctors are also in short supply. 

However, there is danger in overestim ating 

requirem ents based on need, since the ability 

of the IEG to carry out economic expansion prop o sals depends on its effectiveness in collecting 

tax revenues. In the private sector, industrial 

development is handicapped by lack of capital 

and incentives to foreign investors. Hence, the

Five-Y ear Plan for 1957-62, drawn up by Yugoslav technicians, which calls for 140,000 new 

nonagricultural jobs, is considered a “wild 

d ream .”

Recommendations

Instead of the proposed high-level manpower 

survey, a manpower sp ecialist should be added 

to the USOM/Ethiopian Staff to carry out the 

following tasks:

1. Continue the analysis of manpower supply 

and demand.

2. Prom ote a labor m arket analysis program 

in the Central Statistical Office of the M inistry of 

Commerce and Planning.

3. Explore the possibility of organizing a 

National Placem ent Exchange for professional, 

adm inistrative, clerical, and skilled personnel.

4. Train personnel in the M inistry of Comm erce and Planning to operate the labor market 

analysis program .

5. Develop a manpower survey suitable for 

planning purposes.

15

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Federal Reserve Bank of St. Louis
A frica

Ethiopia

Ethiopian Training P olicies and Their Relationship to Unemployment

(1961; 5 pages)

Robert W. Landry, USOM/Ethiopia Training Officer

Recommendations for the establishm ent of adm inistrative 

machinery for manpower planning, training, and utilization.

The shortage of trained human reso u rces 

generally is conceded to be a m ajor problem 

faced by Ethiopia in its program for accelerated economic development. Despite the overall sh ortages, some se cto rs of the economy are 

faced with an overabundance of trained manpower. To alleviate the problem s of this p aradoxical unemployment and to assu re that future 

training of Ethiopia’ s manpower p arallels its 

requirem ents, it is n ecessary that Ethiopia 

develop an overall manpower schem e.

It is recommended that a Committee of Labor 

Utilization be form ed within the Im perial Ethiopian Government to be responsible for the development of policy concerning the planning, training, and utilization of Ethiopia’ s manpower. 

Responsibility for the implementation of Committee policy, a s well a s technical and adm inistrative m atters, should be vested in a

D irectorate General of Labor Utilization who is 

im m ediately subordinate to the chairm an of the 

Committee.

During the initial stage, the organization 

should concentrate on surveying present trained 

manpower reso u rces; surveying and extrapolating trained manpower needs; and acting as the 

Placem ent Exchange Center for all technical, 

m anagerial, teaching, clerical, and professional 

personnel.

At such time a s a strong central Ethiopian 

economic development agency is activated, the 

Labor Utilization Committee should be in a 

position to a s s is t in the a re a s of developmental 

planning, manpower forecasting, and educational 

and occupational guidance.

(Summary prepared by the author of 

this report.)

16

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Federal Reserve Bank of St. Louis
A frica

Ethiopia

Ethiopia’ s High-Level Manpower—A nalysis and Projections 

(1964; 74 pages and 11 tables)

Arnold M. Zack, U.S. Fulbright P ro fesso r, prepared for the 

Haile Se lassie I University

Manpower supply and demand are projected to 1972 and 

an occupational outlook statement is presented for each 

m ajor high-level occupation.

Current and future estim ates of high-level 

and skilled manpower were not available to a ss ist 

the Planning Board in determining whether the 

various projects of the 1962-67 Development 

Plan would have the n ecessary manpower to 

carry them to fruition. The Five-Y ear Plan 

estim ated total employment requirem ents for 

each economic sector but, since detailed information was lacking, no occupational requirements were made. It was n ecessary, therefore, 

to analyze currently employed manpower and 

to make projections of occupational needs.

An inventory of high-level (universitytrained) manpower was constructed by means 

of a survey of all fir m s that employed 50 w orkers 

or more and of sm all firm s that had clu sters 

of p rofession als. A total of 125 establishm ents 

were interviewed; they represented 60 percent 

of total nonagricultural employment and 90 p ercent of the nation’ s high-level employment. Twothirds of the 5,000 high-level personnel covered 

in this survey were Ethiopians.

A combination of c la ssic a l projection methods was used for estim ating high-level manpower demand for 1972: projection of current 

distribution of employment, regression an alysis, 

projection of production goals, and em ployers’ 

estim ates of needs. Wastage was calculated by 

using the UN Study of Age and Sex Patterns of 

M ortality. Based on these projections of demand 

and on an an alysis of the educational facilities 

to train enough people to meet this demand, e stim ates that the 1972 supply would fall far short 

of its goal were made. Therefore, it would be 

n ecessary to use m iddle-level manpower to fill 

some of the gaps and to continue hiring foreign 

w orkers.

Recommendations

1. A m iddle-level manpower survey is 

needed as a complement to the high-level manpower survey.

2. Manpower studies of various types should 

be continued by the Labor Department.

3. Employment Service functions should be 

introduced to aid in meeting em ployers’ needs.

4. The University should adapt its curricula 

to meet anticipated manpower demand.

17

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Federal Reserve Bank of St. Louis
A frica

Ethiopia

Study of Manpower Needs, Educational Capabilities and O verseas Study

(1965; 49 pages)

Education and World A ffairs (Report No. 6): Study Committee on Manpower 

Needs and Educational Capabilities in A frica, prepared for AID

An assessm en t of available manpower data and an 

appraisal of educational capabilities.

The Im perial Planning Board is the principal government planning agency through which 

all development projects are channeled. External aid is channeled through the Economic 

and Technical A ssistan ce Board in the M inistry of Finance, but little effort has been made 

to coordinate this foreign aid with the Second 

Five-Y ear Plan (1962-67). Information on manpower reso u rces and requirem ents was developed through several studies by UNESCO and 

by P ro fesso r Zack (see preceding summary) 

but they lacked the occupational detail necessary for educational planning. AID currently 

is negotiating for a study on the overall a s s e s s ­

ment of future manpower requirem ents.

D ram atic strid es have been made in education, despite an overcentralization of adm inistration and a lim itation of funds for education. W eaknesses of the system , a s pinpointed 

by the 1962 UNESCO study, still exist, such a s 

the sm all proportion of school age children in 

school (5.5 percent), the high dropout rate (50 

percent between grad es 1 and 2), poor geographical distribution of schools, low teacherpupil ratio s, low percentages of g irls attending 

schools, and poor teacher training.

P riority needs should be integrated in AID’ S 

own development strategy for Ethiopia. Continuous consultation with appropriate Ethiopian

agencies is n ecessary to revise the strategy 

periodically. Although existing studies fail to 

provide occupational needs, certain priority 

needs can be identified easily; specifically, 

secondary school teachers government adm inistra to rs, agricultural technicians, and m anagers 

and skilled w orkers for manufacturing industrie s.

Recommendations

1. A com prehensive manpower survey is 

needed.

2. New manpower planning machinery should 

be encouraged. AID should provide ad v isers to 

coordinate efforts of the proposed Manpower 

R esearch and Statistics Section of the Labor 

Department and the Interdepartmental Manpower 

Information Advisory Committee.

3. AID should a s s is t in the recruitm ent and 

training of government em ployees through the 

participant training program .

4. A ssistan ce to secondary education and 

teacher training should be continued by the 

University of Utah.

5. High priority should be assigned to in stitutional development at the university level.

6. R egistration of ov erseas students should 

be established.

18

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Federal Reserve Bank of St. Louis
A frica

Ethiopia

A Manpower Strategy for Ethiopia 

(1966; 79 pages)

E li Ginsberg (U.S., Columbia University) and Herbert A. Smith 

(Government of Israel), AID Manpower Consultants

A com prehensive study of the various factors affecting 

manpower development in a modern economy.

The Ethiopian Government established a National Manpower Advisory Committee in the 

M inistry of National Community Development as 

a resu lt of the recommendations of the Education 

and World A ffairs Committee report. (See p receding sum m ary.) This study is an outgrowth of 

the Committee’ s recom m endations.

Information on manpower supply and demand 

cam e from various so urces, such as the 1955 

census of population, the Planning Board, educational institutions, and conversations with 

knowledgeable people. The population figure is 

around 2.5 million, of which 6.7 percent is urban. 

The best estim ate of literacy in the country as 

a whole places it in the 5 to 7 percent range. 

L iteracy in urban a re as is higher; 52 percent 

of the m ale population 10 years and over are 

literate. The only prospect for a substantial 

rise in general literacy hinges on an expansion 

of the educational system in ru ral are as.

The Ethiopian Government is the prim e em ­

ployer of trained manpower—about 95 percent 

of all college-trained people are in the government sector. Therefore, the m ost important 

determinant of future demand for trained manpower will be the rate of growth in government 

expenditures. Difficulties are em erging in finding the right balance between professional and

subprofessional manpower. In numerous c a se s, 

it was observed that the high-level professional 

was underutilized because he had to spend a 

great portion of his time in activities usually a s ­

signed to technicians. These and other strategic 

manpower issu e s are discussed in full.

The educational output at each grade level was 

a sse sse d for each year since 1950. Enrollment at 

the lower grad es has expanded rapidly, but the 

dropout rate rem ains high. Only about 0.5 percent 

reach the first year of college and fewer than 

one-fourth of these graduate.

Recommendations cover every facet of a 

manpower development and utilization program . 

The following are a few exam ples:

1. Teacher training institutes should be e s ­

tablished and supplemented by Peace Corps 

volunteer teachers.

2. Contracts with foreign firm s should r e ­

quire that Ethiopians be trained for all skill 

levels.

3. Government sa la rie s should be independent of university degrees held; rather, a career 

system based on m erit should be developed.

4. A ru ral educational system should be expanded and broadened in order to develop a more 

productive agricultural society.

19

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Federal Reserve Bank of St. Louis
A frica

Ghana

Development of an Employment Information Program 

(1958; 26 pages)

ILO Report to the Government of Ghana; 

ILO /TA P/G hana/R.2; Knut Palm strom (Norway)

A report on the current sou rces of employment inform ation, the conduct of an establishm ent survey, and program s for continuing and improving the employment 

information program .

As a whole, existing statistical data on manpower were unreliable or out of date. The following are the two main sources of information:

1. The Office of the Government Statistician 

collected by m ail annual and quarterly data on 

em ployees in private nonfarm establishm ents. 

The resu lts generally were published two y ears 

late; no attempt at an alysis was made.

2. The 18 Public Employment Centers (PEC) 

submitted monthly statistical rep o rts to the 

Labour Department on unemployment, vacanc ie s, and placem ents. The law required that these 

data be analyzed to provide general employment 

m arket information. However, no analysis or 

ap p raisal of the employment situation was being 

attempted.

The consultant introduced sev eral fundamental changes in the method of operating the PEC ’ s 

in order to improve their efficiency and thereby provide reliable and m ore useful reports on 

local employment m arket conditions. To consolidate these im provem ents, he prepared a new

Manual of Instructions, which was distributed to 

the P E C ’ s.

Conclusions and Recommendations

The experience of the consultant confirmed 

the view that existing serv ice s could provide a 

solid foundation on which to start building an 

employment information program . The im provements initiated by the consultant in the adm inistrative organization and in technical competence 

of the officials concerned should be considered 

a s only the first stage. Considerable further 

development will be needed over the coming 

y e ars before the program will be providing the 

full range of information n ecessary for the 

formulation of manpower policy and before the 

country will be in a position to make full use 

of the information so provided.

Detailed recom m endations on adm inistrative 

issu e s and technical asp ects were made. The 

recommendations relate to developments which 

appear practicable in the next few years.

20

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Federal Reserve Bank of St. Louis
A frica

Ghana

Manpower Problem s in Ghana’ s Economic Development Program 

(1959; 3 pages and 4-page attachment)

Robert L. Thomas, Consultant, The Ford Foundation

This memorandum con sists of recommendations and conclusions regarding a manpower program for Ghana based 

on discu ssion s with high-level officials.

In a memorandum to government officials, the 

consultant lists his observations on the types of 

manpower information needed for Ghana’ s FiveY ear Development Plan (1959-64). Although steps 

had been initiated to establish a labor m arket 

information program (see preceding page), it 

may be several y ears before the program is 

fully functioning. To bridge this gap, it is recom ­

mended that a manpower survey be conducted 

along the lines of a sim ilar one made in Uganda 

by the consultant. (See page 69.) He su ggests 

that the Ford Foundation provide a consultant for this project. (See following two 

pages.)

The Government of Ghana should go beyond 

taking a one-time manpower survey and make 

plans to establish a permanent organization for 

manpower development. Several pages of notes 

on the subject of a manpower program are attached. The m ajor topics cover the adm inistrative and organizational machinery required for 

a manpower development program and the principal kinds of statistical data n ecessary for manpower planning.

21

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Federal Reserve Bank of St. Louis
A frica

Ghana

Survey of High-Level Manpower in Ghana 

(1960; 17 pages)

Edward D. Hollander, Consultant, The Ford Foundation

This report is a direct outgrowth of the recom m endations made previously by a Ford Foundation consultant. 

(See preceding sum m ary.)

The purpose of the m ission was to conduct a 

survey of high-level manpower and to recom ­

mend organization and procedure for an effective 

manpower development program . The survey 

was to provide a benchmark for projecting supply 

and demand of highly trained people. It was hoped 

that the survey would also serve as a first step 

toward the establishm ent of a manpower organization.

During the 1950’ s, the economy grew 5 p ercent a year, about twice a s fa st a s population. 

Lacking official estim ates or projections, the 

consultant made his own assum ptions that the 

rate of growth for the 1960-65 period would continue at the sam e pace. Separate assum ptions 

were made regarding the im pact of the projected 

Volta River P roject, in accordance with plans 

submitted by engineers from K aiser Aluminum.

The survey covered over 200 establishm ents 

in both public and private secto rs of the economy, 

which represented about 90 percent of nonfarm 

wage and salary and government employment. 

Among the 241,000 em ployees covered, about

54,000 were working in 120 high-level adm inistrative, professional, technical, and skilled 

c ra fts occupations.

Projections of high-level manpower requirements indicate a net in crease of 39 percent over 

the 1960-65 period. Replacem ents for death and 

retirem ent bring this figure up to 62 percent. 

Requirem ents are la rg e st among prim ary school 

teachers and in the skilled manual occupations; 

but secondary school teachers and physicians 

will be the m ost difficult to find.

The m ost seriou s manpower problem is the 

underutilization and low productivity of the labor 

force. Capital investment and spread of technology eventually will improve underemployment, especially among those in agriculture and 

trade. Low productivity, resulting prim arily 

from poor nourishment and endemic illn ess, can 

be alleviated through vigorous national program s 

to in crease food production and to extend public 

health serv ice s.

Recommendations cover the procedures for:

1. Establishing a manpower organization.

2. Recruiting, training, and utilizing Ghanaians.

3. Introducing an institutional base for manpower program s.

4. Developing a program for manpower information and research .

2 2

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Federal Reserve Bank of St. Louis
A frica

Ghana

Survey of High-Level Manpower in Ghana 

(1960; 62 pages)

Robert D. Loken, Manpower A dviser, The Ford Foundation

Final report of the 1960 Ghana Manpower Survey. 

(See preceding sum m ary.)

The findings of the 1960 survey are described 

m ore fully in this final report. There are som e 

sm all discrepancies in data between the two 

reports but not enough to alter the conclusions 

and recom m endations. T ables on current occupational vacancies and projected needs are 

provided. Problem s of shortages and anticipated 

supply in each of the m ajor occupations are 

d iscu ssed.

Ghana can draw on three basic sources of 

supply to meet its high-level manpower requirements:

1. Those employed now—By upgrading those 

already in high-level occupations, m ost of the 

requirem ents for additional personnel will be 

met by 1965. Furtherm ore, if only 5 percent of 

the large pool of unskilled labor were trained 

for skilled trade occupations, more than 10,000 

em ployees would be added to the high-level 

segment by 1965.

2. The educational system —Schools and colleges will furnish about 25,000 additional persons 

to the high-level labor force. Vocational guidance

should be provided to middle and secondary 

school leavers; these are the alm ost exclusive 

source of Ghana’ s future high-level manpower. 

An inventory of personnel in training at technical 

schools, u n iversities, and on-the-job is provided.

3. Imported personnel—The use of ov erseas 

personnel should be lim ited to urgent needs only. 

Most expatriates can be hired on contract b a sis 

for short-term assignm ents.

Recommendations include the creation of a 

Manpower Committee representing all secto rs 

of the economy and coordinating all activities 

relating to manpower. The 1960 Manpower Survey should serve as b a sis for the preparation of 

a comprehensive manpower development plan 

to establish program s and targets.

Appendix A describ es the method used in 

estim ating wastage among high-level manpower. 

It was n ecessary to construct life tables of m ales 

from data derived from various studies made for 

other countries. The method used here would 

be adaptable to many other countries.

23

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Federal Reserve Bank of St. Louis
A frica

Ghana

Development of the Employment and Manpower Information Program

(1963; 138 pages)

ILO Report to the Government of Ghana;

ILO /TA P/G hana/R.7; A.N.K. Nair (India)

Report ap p raises the p ro g re ss of the manpower inform ation situation since 1958, evaluates the usefulness of 

this information in relation to manpower planning, and 

provides technical assistan ce and recommendations on 

other manpower program s and procedures.

The consultant worked directly with the 

Employment Service Branch in the Labour 

Department and cooperated with the National 

Planning Com m ission, the Central Bureau of 

Statistics, and the Department of Education. 

Eventually, a Technical Working Group was 

form ed consisting of representatives from all 

organizations concerned with the collection of 

manpower data.

Available Manpower Information

1. Establishm ent reports on employment and 

earnings, collected quarterly by Central Bureau 

of Statistics from establishm ents that employed 

10 persons or m ore—Although many recom ­

mendations were made by the 1958 ILO 

m ission, 1 / the program has not made much 

p ro g re ss.

2. Public Employment Centers (PEC) for 

monthly statistical sum m aries of their activities 

—Because of inadequate technical supervision 

at these Centers, quality of the work su ffers.

3. Factory inspectors reports on important 

information regarding occupational descriptions 

and salary ran ges—Lack of staff prevents adequate coverage of plants.

4. Survey of High-Level Manpower in Ghana, 

1960 2 J —This study provides a factual a s s e s s ­

ment of and projections for high-level manpower 

requirem ents.

5. Educational sta tistic s on enrollm ents, by 

type of co u rse—F igu res on the su ccessfu l 

completion of these cou rses are not available. 

24

6. Population census of 1960 (available 1963) 

—This source provides benchmark data for em ­

ployment and manpower studies.

Work of the M ission

With the advice and guidance of the Technical 

Working Group, the consultant worked out a plan 

for the effective development of the Public E m ­

ployment C enters, which included a test pilot 

project. More than half the publication is in the 

form of appendixes which make up a manual 

for establishing an effective employment service 

program :

1. Sample form s for collecting manpower 

information (20 pages).

2. Exam ples of operating activity reports 

(9 pages).

3. Procedure for collecting and analyzing 

employment and manpower information (36 

pages).

4. Interim recommendations (9 pages).

5. Letter from the Com m issioner of Labour 

regarding the collection of manpower information (3 pages).

1/ See page 20.

2 / See two preceding sum m aries.

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Federal Reserve Bank of St. Louis
A frica

Guinea

Report on the Punched Card Tabulating Equipment 

for the Republic of Guinea 

(1982; 14 pages)

J. L. M cPherson, AID Statistical Consultant 

Statement on one segment on an AID report.

The main portion of this report is on the subject topic. However, the consultant commented 

on the state of statistical competence of the professional Guinean. The observation was based on 

d iscu ssion s with persons in authority and r e ­

sponsibility regarding the compilation of sta tistics to be m achine-processed.

In essen ce, there was a complete lack of 

regard for the quality of the statistical data being 

p rocessed . M embers of the Office of Statistics 

felt their role was only to p ro cess the data and 

not to question the accuracy and com pleteness 

of the b asic input information. The most d istre ssin g element, to the consultant, was the 

obvious satisfaction of the profession als with 

this state of affairs.

Further questioning with regard to the d isposition of tabulated output revealed that the 

tabulations were kept secret within the GOG 

until they were at least 1 year old. The exp ress 

reason for this practice was “because we are 

not sure they are right and we do not want to 

subject the reports to outside c riticism .*

The consultant believes there is great need 

for competent statistical advice in Guinea. “Illadvised, ill-im plem ented statistical activities 

will result in unsatisfactory resu lts which will 

be blamed on the the data-processing equipment supplied by the United States. This 

would be an easy way out for them and deleterious to our image as a nation anxious 

to help.”

25

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Federal Reserve Bank of St. Louis
A frica

Guinea

Study of Manpower Needs, Educational C apabilities,

and O verseas Study 

(1965; 54 pages)

Education and World A ffairs (Report No. 7); Study Committee on Manpower 

Needs and Educational Capabilities in A frica, prepared for AID

A review of the current political, economic, and social 

situation in Guinea, and an analysis of manpower supply 

and demand.

The aftereffects of independence (1958) left 

Guinea seriou sly handicapped when it decided 

not to join the French community. In retaliation, 

the French pulled out virtually all middle- and 

high-level adm inistrative staff, technical p ersonnel, and capital equipment. They also r e ­

moved or destroyed much of the statistical data 

that had been compiled on Guinea’ s economy, 

labor force, and educational system . Despite 

assistan ce from the Sino-Sovietcountries, which 

encouraged monopoly of m ost en terp rises, little 

economic p ro g ress has been made. In addition, 

the M inistry of Economic Development prepared 

a Seven-Year Development Plan (1964-70), which 

is more of a list of proposed p rojects rather than 

an integrated strategy.

Little or no data are available on manpower. 

A 1957 labor force census indicates a nonfarm 

A frican labor force of 92,000 of which 420 are in 

m anagerial occupations and 18,000 in skilled and

sem iskilled jobs. Supply of trained manpower 

is very lim ited and acute shortages are likely 

to p e rsist for som e tim e because of the relatively 

few secondary school and university graduates. 

An an alysis of manpower needs of the country 

revealed that the m ost critical need is for 

secondary schoolteachers and for m iddle-level 

personnel. Guinea must set out a course to 

produce needed sk ills in the sh ortest and best 

manner possible.

Regarding AID’ S role in Guniea, a set of 

p rio rities should be established, conditioned by 

the political and economic instability of the country. Recommendations are aim ed at supporting 

the various schools producing m iddle-level 

sk ills. USAID also should encourage an integrated system of manpower and educational 

planning, which should include manpower planning machinery and a statistical office to 

collect pertinent data.

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Federal Reserve Bank of St. Louis
A frica

Kenya

Utilization of Manpower in the Kenya Public Service 

(1963; 17 pages)

John L. Thurston, Manpower Consultant, The Ford Foundation

An appraisal of the manpower situation, especially in 

Government Service, and the resu lts of the A fricanization program .

Kenya’ s forthcoming independence (1964) and 

the probable departure from Government service 

of sizeable numbers of foreign professional and 

adm inistrative officers will create a seriou s 

manpower shortage. Extraordinary efforts will 

have to be made to fill the manpower gap occasioned by the tim e lag between the departure of 

the expatriates and the return of A fricans from 

u niversities and colleges o v erseas.

In 1961, there were 6,000 ejqpatriateofficers 

in the public service. Of this total, 1,000 already 

have left the serv ice, 900 have filed retirem ent 

p ap ers, and 100 axe expected to retire soon. 

Thus, one-third will have left by the time of independence. By the end of 1965, it is estim ated 

that 2,700 will still rem ain on the ro lls. The 

resulting shortage can be met by only three

sources: new graduates, new expatriates, and 

existing staff. It is anticipated that by 1965 only 

550 eligible graduates will be available to fill 

the vacant posts. Therefore, the most immediate 

course of action to meet requirem ents appears 

to be through recruitm ent, training, and prom otion of those on the current staff who may not 

meet normal requirem ents of education and 

experience.

Recommendations

1. Retain expatriates as a holding operation.

2. Improve higher educational institutions.

3. Upgrade current em ployees.

4. E stablish a strong Africanization and 

training unit, responsible also for producing 

statistical data.

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Federal Reserve Bank of St. Louis
A frica

Kenya

High-Level Manpower Requirem ents and R esources 

in Kenya 1964-1970 (1965; 46 pages)

Calvin F. D avis, Manpower Consultant, The Ford Foundation

A manpower supply and demand survey to serve as base 

for revising educational and training program s and 

policies.

The high-level and m iddle-level survey included 348 public and private establishm ents 

that employed 100 w orkers or m ore and rep resented three-fourths of total nonfarm employment. The survey covered 165 important occupations.

An analysis of the resu lts indicates that 

sh ortages, on the average, are not as serious 

a s expected. For exam ple, the supply of university-trained personnel will be nearly sufficient 

to meet minimum needs; a 20-percent shortage 

in m iddle-level and professional-supporting occupations will occur, shortages in skilled technicians and office w orkers will be seriou s; and 

shortages in the skilled manual worker category 

will be minor. In some individual occupations, 

however, serio u s shortages will exist by 1970 

and in others, wasteful su rplu ses.

Recommendations

1. The proposed Manpower Planning and 

Program m e Section in the M inistry of Economic 

Planning and Development should be established.

2. The Statistics Division should issu e an 

Employment Trend Report, and should improve 

techniques of employment surveys.

3. The Africanization program should be expanded and improved.

4. Educational planning should be coordinated and integrated with other plans and p rogram s to meet the occupational needs of the 

country. The various methods and system s are 

described in detail.

5. Various m easu res for increasing the 

supply of high-level manpower in the Government sector also are described.

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Federal Reserve Bank of St. Louis
A frica

Lesotho

Manpower Situation in Basutoland 

(1964; 59 pages)

ILO Report to the Government of Basutoland; 

IL O /T A P /B asutolan d/R .l; Dr. Walter Elkan (United States)

This report a s s e s s e s the manpower situation and recom ­

mends steps to improve the collection and analysis of 

manpower data for economic planning.

Sources of Manpower Information

1. 1956 Census of Population.

2. 1956 Social Survey—sam ple survey of 

households.

3. 1956 Census of Agriculture.

4. Annual R eports—record of number of 

p a sse s issued to those leaving the country to take 

employment in the Republic of South A frica.

5. 1963 Survey of Establishm ents, conducted 

by the Chamber of Com m erce—occupations of 

skilled w orkers by income and employment 

sector.

6. R ecords of m iners recruited on contracts 

through the T ransvaal and Orange Free State 

Chamber of Mines.

7. Department of Education Annual R eports— 

training facilities and number of enrollees and 

graduates at each educational level.

Recommendations

1. The proposal of the Government of Basutoland to set up a Central Statistical Office should 

be carried out.

2. Integration of statistical data on manpower 

should be the responsibility of an economic adv iser attached either to the Central Statistical 

office or to a separate planning office.

3. Adm inistrative machinery should be 

created for economic planning and, later for 

manpower planning.

4. For the short term , the employment situation and the adequancy of the educational and 

training system s should be reviewed periodically.

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Federal Reserve Bank of St. Louis
A frica

L iberia

A Pilot Survey of High-Level Manpower in Liberia 

(1961; 70 pages)

William Langbehn, AID Manpower Adviser

A detailed description of a manpower supply/demand 

study.

This report on high-level manpower requirements is one of a se rie s prepared as an overall 

economic survey of L iberia under the direction 

of Northwestern University, Evanston, 111. The 

consultant was a member of the University 

Survey Team and worked closely with the Bureau 

of Economic R esearch of the Government of 

L iberia. By identifying the magnitude of existing 

and prospective shortages of high-level manpower, the team hoped that Government, educational institutions, and establishm ents would 

institute action program s to provide training in 

high-level occupations.

The report describ es the various steps taken 

to conduct a pilot survey of establishm ents for 

estim ating current levels of employment and 

projected needs in 25 selected occupations. 

Techniques used in conducting the survey are 

outlined; exam ples of the questionnaire, and the 

instructions for completing the questionnaire, 

are suppliedo R esults from the establishm ent 

survey provide information on the current (1961) 

levels of employment in the surveyed occupations, non-Africans employed in these jobs,

trainees, vacancies, and estim ated employment 

requirem ents in 1966.

For purposes of analyzing and projecting each 

occupation, estim ates of supply and wastage were 

calculated. Supply data for each occupation were 

obtained from various educational institutions in 

Liberia, and information on students abroad 

cam e from Government of L iberia so urces. 

W astage was estim ated from various sources. 

Each occupation is then described in detail, 

after all these factors are taken into consideration.

Based on the resu lts of this survey, the 

consultant d iscu sse s the manpower problem s in 

L ib eria and m akes recommendations for 

alleviating some of these problem s. A short 

section evaluates the techniques used in this 

survey and m akes recommendations for im proving subsequent studies.

Appendix E sum m arizes a recent report, 

Survey on the P resen t Vocational Training 

F acilities and the Future Vocational Training 

Needs of L ib e ria, by Dr. Hans B aritsch of ILO.

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Federal Reserve Bank of St. Louis
Africa

Liberia

Study of Manpower Needs, Educational C apabilities, and O verseas Study

(1965; 42 pages)

Education and World A ffairs (Report No. 5); Study Committee on Manpower 

Needs and Educational C apabilities in A frica, prepared for AID

Educational study for the purpose of delineating AID’ S 

role in manpower and educational development in L iberia.

L iberia is attempting to launch a 5-year development plan. The Office of National Planning is to 

be the staff arm of the National Planning Agency. 

The Department of Education, the Bureau of 

Labor, and the Office of National Planning probably will coordinate to form a National Manpower 

Com m ission. It is assum ed that one of the first 

task s of the Com m ission will be to estim ate 

L ib e ria’ s manpower requirem ents and to propose a strategy by which all training program s 

could be utilized most effectively.

P recise data on current employment of highlevel manpower are not available. Langbehn’ s 

1961 survey is lim ited to certain manpower 

fields and to m ajor em ployers; the government 

census of 1962 fails to distinguish between 

high-, m iddle-, and low-level manpower. Noneth eless, even with these lim itations, statistics 

from these surveys can be useful for manpower 

planning.

The bulk of the report d escrib es the educational capabilities of L iberia and the availability

of ov erseas scholarships. About 10 percent of 

the national budget is allocated to the Department 

of Education; additional funds are available from 

external grants and loans (USAID, Peace Corps, 

Ford Foundation). Current enrollment, the 

number and quality of the teaching staff, and the 

curricula of each education and training facility 

are discussed in detail.

Recommendations for AID action

1. Encourage the development of the education and manpower planning machinery in Liberia#

2. Support boarding facilities and consolidation of sm all schools at the secondary level.

3. Continue to improve secondary teachertraining techniques and m aterials.

4. A ssign highest priority to the development 

of an effective instructional program at the 

university.

5. Support ov erseas postgraduate study.

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Federal Reserve Bank of St. Louis
A frica

Libya

Manpower in Libya 

(1960; 13 pages)

E .L . Keenan, AID Manpower Consultant 

D escription of Libya*s manpower problem s.

The many facets of Libya* s manpower situation are categorized into the following m ajor 

segm ents:

Manpower in the short term

Current manpower needs can be satisfied 

somewhat by stepping up the use of training 

facilities already inexistence and by intensifying 

on-the-job training. Audiovisual training has 

proved successful for short-term development 

of large numbers of w orkers in other countries 

and may be a useful technique in Libya.

Manpower in the long term

School attendance is increasing at the lower 

grade levels, but six years of schooling is not 

enough preparation for the technical and 

mechanical knowledge required for many jobs. 

T eachers should be trained to provide occupational guidance to students at a relatively early 

age. To meet anticipated demand for middle- and 

high-level manpower requirem ents, technical 

and teacher training at the secondary and university levels must be improved.

Balance between foreign and Libyan w orkers

The national goal is to fill all positions with 

Libyan w orkers. On the other hand, em ployers 

want qualified w orkers who know their job and 

know how to produce. In the short run, Libyans

can fill sem iskilled and some skilled positions 

through on-the-job training or apprenticeship 

with short-term wage subsidies. These system s 

are cheaper and fa ste r than expanding the 

vocational school system . On-job training also 

perm its upgrading people already employed. 

More attention should be paid to increasing labor 

productivity rather than enforcing rigid labor 

law s which make it difficult and costly to d ischarge inefficient w orkers.

Manpower in Government

The various shifts of personnel in Government resu lt in poor manpower utilization. To 

cope with this situation, training-within-government program s should be initiated to provide 

training to Government w orkers. Foreign 

experts already employed by the Government 

could a s s is t a s training instructors in their 

special a re a s of competence.

Recommendations (other than those indicated 

above)

1. The new M inistry of Labor and Social 

A ffairs should plan and adm inister a manpower 

program coordinated with the overall economic 

goals.

2. The Libyan Development Council eventually should coordinate the various ph ases of 

manpower development with various M inistrie s. organized labor, and organized em ployers.

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Federal Reserve Bank of St. Louis
A frica

Libya

A Manpower Information Program 

(1962; 24 pages)

ILO Report to the Government of the United Kingdom of Libya; 

IL O /T A P /L ibya/R .7; C .P. Van Rijn (Netherlands)

An assessm en t of current and anticipated manpower 

supply and demand, and recommendations for the development of a manpower information program .

Existing sources of data include the 1954 

Census of Population, 1956 Census of Employment and Production, 1958 National Income E stim ates, the biannual establishm ent survey, and 

social security record s. Data from these sources 

are not com parable with each other and are incomplete for the purpose of an alysis. Improvements in the methods used in the establishm ent 

survey are most likely to yield the m ost potentially useful data for manpower an alysis.

Recommendations

1. A separate Department of Manpower should 

be established in the M inistry of Labor and Social 

A ffairs. This Department should exercise a coordinating function, in consultation with rep resentatives from government, em ployers, and 

w orkers, to determine the need for manpower 

information and to allocate responsibility for 

collection, an alysis, and dissem ination of the 

resu lts.

2. Information from the establishm ent su rvey should be utilized better. Bylaw , em ployers 

are required to prove details of their work 

force to employment offices every 6 months. 

Specific recommendations for improving the 

various step in the collection of information are 

detailed. For exam ple, the Department of Labor 

should prepare a card index on em ployers, by 

using social security card s as a check.

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Federal Reserve Bank of St. Louis
A frica

Libya

A Survey of Requirem ents of P rofessional, Technical and 

Skilled Manpower in Libya, 1934-69 

(1964; 64 pages)

A.N.K. N air, ILO Expert

A step-by-step description of a manpower survey and an 

an alysis of occupational needs.

The purpose of the survey was to collect manpower information regarding employment, occupations, shortages, anticipated requirem ents, 

and supply of trained personnel. The survey 

covered all government facilities and three 

industries in the private sector: petroleum mining; construction; and automobile sa le s, service 

and rep air. It was believed that these sectors 

employed m ost of the high- and m iddle-level 

w orkers. Vocational training institutes furnished 

data on the output of trained personnel, and the 

M inistry of Education and the Civil Service 

provided data on persons in ov erseas or government training.

Many problem s were encountered in collecting information from establishm ents. Despite 

repeated v isits to individual firm s, there were 

long delays in the receipt of the returns. Lack 

of staff and tim e prevented adequate industry 

coverage. The absence of a national occupational 

classification system created considerable difficulty in classifying occupations. M oreover, it

was believed that estim ates of future manpower 

requirem ents were understated. Despite these 

problem s, the re su lts of the survey provided 

the planning and training authorities with some 

quantitative data, which did not exist before, to 

enable them to appreciate the magnitude of manpower needs and to prepare a manpower development plan.

Recommendations

1. Additional training program s of higher 

quality should be available and should include 

training o v erseas.

2. Better utilization of manpower should be 

made by placing people in occupations for which 

they were trained.

3. The wage and salary policy should be 

reviewed in order to provide incentives to young 

people to enter technical and skilled fields.

4. The continuing study of manpower supply 

and demand should be strengthened and im ­

proved.

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Federal Reserve Bank of St. Louis
A frica

Malawi

High-Level Manpower in Nyasaland’ s Development 

(1962; 29 pages)

George Seltzer (University of Minnesota), Manpower Consultant for Carnegie Corporation; 

article in Manpower and Education, Country Studies in Economic Development, 

Frederick Harbison and Charles A. M yers, editors (New York, McGraw-Hill 

Book Company, 1965), pages 268-296

A policy-oriented discussion of key manpower issu e s 

confronting the Government of Nyasaland (later Malawi).

Nyasaland is in the p ro cess of transition (as 

of 1962) from a territory within the Federation 

of Rhodesia and Nyasaland to self-governing 

status. The new Malawi Government will face 

m assive problem s in all a re a s of development.

Agriculture is the dominant economic activity; nearly half of the G ro ss Domestic Product 

com es from agriculture which em ployes about 38 

percent of total labor force. Thirteen percent 

of the labor force are employed in construction 

activities and 10 percent are in manufacturing.

Nyasaland is a substantial exporter of labor 

throughout central and southern A frica. In 1960, 

about 160,000 N yasas were working outside the 

country compared with about 152,000 employed 

internally. It is , however, an im porter of highlevel and skilled manpower. Over 90 percent of 

all adm inistrative and professional personnel 

come from European countries.

B asic education in Nyasaland has its roots in 

m issionary activities. A dual school structure 

has prevailed for both A fricans and non-Africans. The form al education p ro cess usually does 

not yield high-level manpower qualified to enter 

employment; custom arily, additonal training or 

education is required. The resu lts of a 1962 

study of current and projected manpower r e ­

sources and requirem ents are described.

The establishm ent of a Manpower Council is 

essential for coordinating and developing a manpower program . Its basic role is two-fold:

1. To provide assurance the manpower, education, and socioeconomic decisions are made 

in a common fram e and with direct reference 

to one another.

2. To prepare an action-oriented human 

resource program in support of development 

goals and targets and to oversee its operations.

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Federal Reserve Bank of St. Louis
A frica

Malawi

Education for Development 

Education in Malawi 

(1964; 81 pages)

Am erican Council on Education, prepared for AID

D escribes the present educational situation in Malawi 

and recom m ends that priority be given to expansion 

of secondary education and to introduction of higher 

education.

The purpose of the survey team was to a s s e s s 

Malawi’ s needs for educational institutions and 

cu rricu lar em phasis and to propose an educational plan for Malawi’ s economic and social 

development for the next 15 y ears. Whenever 

possible, the team correlated its work with the 

manpower survey recently completed under C arnegie Corporation (see preceding summary) 

auspices and with the Malawi Government’ s 

economic development plan.

Malawi’ s 3.7 million population (1963) is 

growing at a rapid rate; the number of children 

needing education is increasing at an even 

greater rate. About 360,000 children (half of 

the total) are in prim ary schools, 3,000 in 

secondary schools, 900 in vocational schools, 

and over 200 in foreign schools. The 11 teachertraining schools do not prepare enough teachers 

adequately. In light of these and other facts, 

the Government has given education high priority 

and is devoting 3 percent of its g ro ss dom estic 

product to education.

The team made detailed recommendations for 

the development of education at each level on 

the b a sis of analyses of available data and projections to 1980. P rio rities are suggested and 

cost estim ates are provided.

The team specifically recom m ends the 

establishm ent of an educational planning function 

within the M inistry of Education and the University. In addition, a representative from this unit 

should work closely with the Manpower Council, 

which had been proposed by the Carnegie C orporation Manpower Survey Team .

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Federal Reserve Bank of St. Louis
A frica

Mali

Manpower Study for Mali 

(1961; 47 pages)

Valmore J. Doucett, AID Manpower Consultant

A survey of manpower reso u rces and requirem ents in 

M ali.

P rior to the arrival of the consultant, questionnaires regarding employment had been sent 

to all M inistries; only one was returned. D irect 

contact with individual M inistries was not p ermitted and travel restriction s prevented direct 

observation. Available data from other record s 

were inadequate. Some information on students 

abroad was obtained through the Office of Foreign 

A ffairs and the M inistry of Plan and Rural 

Economy.

The population figure of Mali is 3.8 million, 

of which 95 percent are ru ral and 97 percent are 

illiterate. Only 8 percent of school age children 

attend school. P er capita income is US$52. Life 

expectancy is 37 y ears.

Based on the Five-Y ear Plan, estim ates of 

manpower requirem ents for industrial estab ­

lishm ents were made. E stim ates of Government 

employment were projected on the b a sis of the 

number of vacancies reported in the 1961 budget. 

N early 600 students are being trained abroad, 

about half in France and about one-fourth in 

Communist countries. About 160 are in the proce s s of being selected for technical training in the 

U.S.S.R. Most of the skilled w orkers will have 

to be imported until training facilities are adequate to meet the needs.

An interesting section on com parative studies 

d escrib es the experiences in training people of 

other developing countries: Indonesia, L ib eria, 

N igeria, and Libya.

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Federal Reserve Bank of St. Louis
A frica

Morocco

Diagnostic Report on Manpower Statistics 

and Conditions in Morocco 

(1966; 44 pages)

D O LIT A C jy Staff Paper No. 27;

Kenneth G. Van Auken, J r ., Manpower Consultant

An inventory and evaluation of available manpower data 

and recommendations for short-term and long-term manpower development program s.

Most of M orocco’ s economic and social 

problem s are a resu lt of the rapid rate of 

population growth, 3.3 percent annually (projected to 3.5 percent in 1960-70). Agricultural 

output has not kept pace with population growth 

and has forced a rural-to-city m igration and 

importation of food products. Labor-intensive 

program s and a firm educational base for the 

development of skilled w orkers are needed. 

An especially strong em phasis should be made 

to produce w orkers with technical sk ills in 

agriculture.

The Planning and Statistical Division of the 

M inistry of Development faces the problem of 

skilled manpower shortages and im balances, 

which were revealed when the Five-Y ear Plan 

(1965-70) was drawn up. However, there is a 

lack of current and reliable manpower data 

for a sse ssin g and planning action program s. 

Data sources include:

1. 1960 Census (lacks detail in occupational 

sk ills).

2. National Accounts: section on employment 

in manufacturing and mining (1964).

3. Establishm ent survey of high-level manpower (1963).

4. Pilot survey of establishm ents for em ­

ployment and wages (1958).

The M inistry recognizes the lim itations of 

these so u rces and currently is attempting to 

improve and expand its data-gathering activities.

It is recommended that at le a st two U.S. 

manpower experts be assigned to work with 

the Planning Division to help develop manpower 

program s. Most urgent work is required to 

combat the high urban unemployment, about 

28 percent of the urban work force, by applying 

the experience of the U.S. Civilian Conservation 

C orps to orient urban unemployed youth toward 

agricultural and ru ral pursuits. Upgrading ex isting sk ills is another m ajor area for technical 

assistan ce. Course work to produce agricultural 

extention w orkers and other farm w orkers can 

help improve food production and work opportunities in the ru ral a re a s. In the long run, 

an inventory of sk ills and a survey of skill 

needs should be prepared in order to determine 

educational and training needs, Steps on how 

these task s can be accom plished are described.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

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Federal Reserve Bank of St. Louis
A frica

N igeria

Investment in EducationJL/

(1960; 139 pages)

Sir E ric Ashby, Chairman of the Com m ission on Post-School C ertificate 

and Higher Education in N igeria (financed by Carnegie Corporation)

A comprehensive report of N igeria’ s educational needs 

up to 1980, based on projections of high-level manpower 

requirem ents.

One of the basic documents used by the Comm ission to project education needs was the study 

prepared by Frederick Harbison on N igeria’ s 

high-level manpower needs. A copy of this study 

is included in the Com m ission’ s report.

Harbison estim ated that 31,000 additional 

high-level personnel and 55,000 additional technical and supervisory personnel would be needed 

by 1970. The current educational system is not 

capable of producing this quantity. The short fall 

would have to continue to be filled with expatriates. (About one-third of high-level manpower is 

foreign.) Some upgrading of sk ills can fill the gap 

a little, but not to the extent required.

Harbison concluded that N igeria’ s m ost u rgent need is for a fivefold expansion of intermediate (technical) education. At the university 

level, the m ost urgent need is for technical and 

scientific education. Although technical education is m ore costly than liberal education, N igeria 

should be prepared to support this program .

The m ajor recommendations of the Com m ission aim at upgrading current sk ills and designing a postsecondary system to psodce the

estim ated 1970 needs. In order to a s s e s s educational needs at the higher levels, the Com m ission 

estim ates the number of pupils and teachers in 

prim ary and secondary gram m ar schools up to 

1970. The final report covers in detail all levels 

of the education system . The acceptance of the 

Com m ission’ s report appears in Educational 

Development 1961-70, Sessional Paper No. 3 of 

1961, Federation of N igeria, along with modifications and changes in the recommendations.

To provide guidance and balance between 

education and manpower, the Com m ission re c ­

ommended the establishment of an InterRegional Manpower Board and a Manpower Secretariat. 2 /

J j Also known a s the Ashby Com m ission 

Report.

_2/ A National Manpower Board was established in 1962, m em bers of which are drawn 

from all sectors of the economy. Several interesting and informative manpower studies 

have been published by this board.

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Federal Reserve Bank of St. Louis
A frica

N igeria

Establishm ent of an Employment M arket Information Program

(1962; 24 pages)

ILO Report to the Government of N igeria; 

ILO /O TA /N igeria/R .3; R.N. Jackson (United Kingdom)

A review of the employment service organization and 

sources of employment data.

The Labour Division of the Federal M inistry 

of Labour operates a field organization of labor 

offices; a main labor office is in each of the 

three regional capitals. There is no separate 

budgetary provision of a national employment 

exchange as such. Employment exchanges are 

operated at m ost labor offices, but their control 

is only one of the many duties of a labor officer. 

Very little specialization, such as testing and 

counseling, is done. The offices are poorly 

equipped and scantily staffed. This situation will 

be aggravated when new responsibilities are 

assum ed as a resu lt of the acceptance of the 

Ashby Com m ission Report. (See preceding sum ­

m ary.)

Available data on employment were insufficient for effective employment service operations. They consisted of the following:

1. 1952-53 census (a 1962 census is underway).

2. Annual establishm ent report of employment and earnings.

3. Quarterly review of labor inspection 

activities and sim ilar m atters.

4. R egistrations and placem ents of the em ­

ployment exchanges.

Steps were taken to conduct a pilot survey 

of establishm ents to obtain the n ecessary current 

data. An index of establishm ents was compiled 

for Lagos and later extended to cover all of 

N igeria. All manufacturing establishm ents that 

employed 40 w orkers or m ore, all nonmanufacturing estalishm ents that employed 100 or 

m ore, and selected government agencies were 

included in the survey. The questionnaires were 

m ailed and followed by personal v isits. Occupational classification was done by the consultant 

and his counterpart. L ater an Occupational 

R esearch and A nalysis Unit was set up in the 

Employment Services Branch. The resu lts of the 

survey confirmed the p ressin g need for trained 

technicians, a need mentioned by the Ashby 

Com m ission.

Specific recommendations covered im provements in the adm inistrative, financial, and 

functional asp ects of an effective Employment 

Service Office. The index of establishm ents 

should be maintained; other agencies possibly 

could supply the needed information. Future 

establishm ent surveys should be based on the 

method devised by the consultant and a manual 

of procedures should be prepared when these 

methods have been standardized.

40

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Federal Reserve Bank of St. Louis
A frica

N igeria

Study of Manpower Needs, Educational C apabilities, and O verseas Study

(1965; 58 pages)

Education and World A ffairs (Report No. 8): Study Committee on Manpower 

Needs and Educational Capabilities in A frica, prepared for AID,

Report a s s e s s e s available data on high-level manpower 

needs, ap p raises capabilities of Nigerian educational 

institutions to meet these needs, and surveys opportunities for study abroad.

The National Development Plan, 1962-68, 

prepared by the M inistry of Economic Development, called for an average annual G ro ss National 

Product growth rate of 4 percent. Highest priority 

was given to agriculture, industry, and training 

of high-level and interm ediate-level manpower. 

Accomplishments to date were difficult to a s s e s s 

at this time (1965) but many ob servers concluded 

that N igeria fell short of its goal.

The National Manpower Board, created in 

1962, prepared a com prehensive establishm ent 

survey of high-level manpower needs in government, educational institutions, and private industry. There is a severe shortage of skilled manpower. Revised projections indicate that 

Harbison’ s 1970 estim ates of m iddle-level manpower were too low by nearly h a lf.J./ In fact, 

1963 employment already approximated 

Harbison’s 1970 target. This discrepancy arose 

because he defined interm ediate personnel in 

term s of education received or required, wherea s the Manpower Secretariat counted all those

who actually were working in the occupation 

re g a rd le ss of their educational background. 

This situation su ggests the critical importance 

of in -service training and upgrading of those 

already employed.

Excellent descriptions of the manpower 

machinery and of the educational capabilities of 

N igeira are provide.

The m ajor recommendations of this report 

concentrate on the “desirable direction s* of U.S. 

Government aid. AID should give first priority in 

its assistan ce strategy to the development of 

indigenous institutions and second priority to 

scholarships and other student aid at Nigerian 

u niversities. Lower priority should be given to 

a s s is t N igerians to study in the Unites States. 

Each of these item s is explained in detail.

1 / Copy of Harbison’ s study is included in 

the Ashby Com m ission report. See page 39 for 

reference.

41

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Federal Reserve Bank of St. Louis
A frica

N igeria

Nigerian Human Resource Development and Utilization 

(1967; 200 pages)

Education and World A ffairs Report: Committee on Education and Human 

R esource Development, Nigerian P roject T ask Force, Frederick H. Harbison

Manpower needs of the Nigerian economy and the 

educational and training system .

The purpose of the project was to a s s is t 

AID in evaluating and planning its program 

of assistan ce to N igeria in the area of education 

and human resource development.

N igeria is fortunate in having available well 

developed planning machinery. The principal 

integrating body is the National Economic Council and its subsidiary, the Joint Planning Comm ittee. In the area of education and human 

resource development, there are the Joint 

Consultative Committee for Education, the 

National Manpower Board, and the National 

U niversities Com m ission.

P art I of the report d escrib es the problem s 

and manpower needs of the Nigerian economy; 

P art II analyzes its training and educational sy stem , both form al education at all levels and inserv ice training; and P art III d iscu sse s the 

financing and efficiency of form al education.

The sum m ary presents five p rio rities for 

AID action:

1. The educational and training system 

should be directed more effectively to the needs

of the interm ediate and low productivity secto rs, 

especially sm all industries and ru ral enterp rise s.

2. C ritical high-level and m iddle-level p ersonnel, such a s scien tists, technicians, management personnel, teachers, should be trained 

to fill the needs of the high productivity sectors.

3. Existing educational and training r e ­

sources should be better utilized through 

improved planning and coordination among 

governmental units.

4. Better qualified teachers should be developed by upgrading through in -service training 

program s.

5. To facilitate achievement of these p rio rities, “development orientation* should be encouraged throughout the educational and training 

system . Such a system incorporates two vital 

elem ents: (a) an employment orientation whereby youth are trained to serve a s productive 

m em bers of society, and (b) service on the part 

of the educational system to the critical national 

development goals (social, political, and 

economic).

42

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Federal Reserve Bank of St. Louis
A frica

Rhodesia

Manpower Development and Utilization P olicies and P ractices 

in the Rhodesian Private Sector and their Interrelationships with the Management System:

A C ase Study 

(1966; 295 pages)

New York University, Graduate School of B usiness Administration:

Ph.D. dissertation by C harles G. Nowacek

A study of the practices and p olicies of private firm s 

and statutory boards that affect manpower development

and utilization in Rhodesia.

Since mid-1950, the labor m arket has moved 

rapidly toward an advanced stage of maturity. An 

increasing number of m ale A fricans are em ­

ployed in manufacturing, mining, and construction and have relatively stable attachments to 

the urban labor m arkets. However, the continued 

use of worker registration for controlling mobility and the weakness of the trade union mechanism 

are signs of structural inhibitions to full labor 

m arket maturity.

For the economy as a whole, and within firm s, 

training of manpower d eserves more reso u rces, 

attention, and planning of government and top 

management. The output of skilled w orkers is 

inadequate to m eet current and future needs of 

industry. Industry should encourage general upgrading of all sk ills of the work force by depending prim arily on apprenticeships and in -service 

training rather than on external sources of 

supply.

Given the political stability in Rhodesia in 

term s of the assum ptions outlined and the political-racial context, both the constitutional government and the juridical system should provide 

the fram ework for a continuation of past industrial and social development. This fram ework 

should provide the means of escaping not only 

the policies of apartheid but also the im plementing m easures im plicit in these policies. It 

should also encourage attitudes and the institutional patterns of advancing the growth and 

development of Rhodesia a s a whole, within 

m ultiracial schem es, system s, and subsystem s 

of manpower adm inistration.

43

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Federal Reserve Bank of St. Louis
Africa

Senegal

Development of a Manpower P rogram 

(In French; 1962; 52 pages)

ILO Report to the Government of the Republic of Senegal; 

O IT/T A P/Senegal/R .2; Leon Reneau, (Belgium)

A ssessm en t of manpower situation in Senegal.

The Four-Y ear Economic Development Plan 

(1961-64) did not include statem ents on human 

resources or on manpower development. 

Recognizing this om ission, the Government 

created a M inistry of Education and Training 

to provide the n ecessary trained manpower to 

meet the economic goals. Current data are 

insufficient to provide an accurate picture of 

the employment situation. The few data that are 

available are described.

The Employment Office has not been able 

to render useful service because of the com ­

petition from private employment placement 

offices. According to a recent labor law, the 

Government plans to grant the Employment 

Service complete monopoly in placem ent functions.

Two manpower surveys were conducted to 

determine occupational requirem ents for m eeting the needs of the economic plan. The surveys 

covered both public and private se cto rs of the 

economy. The resu lts indicate that the number 

of high- and m iddle-level manpower in the public 

sector must be increased by a third (or 9,000), 

and in the private sector by 5,000. A survey 

also was made of the various training institutions 

to determine availability of trained manpower.

Recommendations

1. Surveys of manpower reso u rces and r e ­

quirements should be made on a continuing 

b a sis.

2. An inventory of trained manpower should 

be maintained by utilizing record s of training 

institutions.

3. The adm inistrative machinery for manpower development should be expanded and 

improved.

44

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Federal Reserve Bank of St. Louis
Africa

Senegal

Organization of the Employment Service 

(In French; 1963; 34 pages)

ILO Report to the Government of the Republic of Senegal; 

O IT /T A P /Sen egal/R .3; Leon Reneau, Belgium

Description of the functions and operations of the

Employment Services.

As the resu lt of the labor law of 1961, the 

Employment Service was established on the 

b a sis of the ILO Convention No. 88. However, 

because of its sm all budget, it has not been able 

to fulfill the needs of an effective manpower 

serv ice. For exam ple, only one agent was a s ­

signed to carry out placement and registration 

functions in each regional office. (The law provided that these functions be separate.) Lack of 

funds also delayed the collection of statistical 

information such as number of w orkers em ­

ployed. The functions and operations of the 

Employment Service offices are described in 

detail.

The structure of the central office at Dakar 

and of the four regional offices appears to be

adequate for normal Employment Service functions, but the opening of two new regional offices 

was not justified.

Recommendations em phasized that the work 

which was started by the consultant should be 

continued. This work consisted of collection of 

registration statistics, improvement in placement procedures, and adaptation of ILO occupational classification system . In addition, an 

inventory of establishm ents should be developed.

A National Consultative Com m ission on Statistic s, at the level of the Com m issioner General 

of the Plan, should be established. The Chief of 

the Employment Service should be an effective 

member of the technical section of the Planning 

Organization.

45

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Federal Reserve Bank of St. Louis
A frica

Senegal

The Organization of the Employment Service 

(In French; 1964; 17 pages)

ILO Report to the Government of the Republic of Senegal;

O IT/T A P/ Senegal/R. 5;

Continuation of the work 

ILO consultant.

This report is an elaboration of preceding 

recommendations concerning the organization of 

the central and regional Employment Service 

offices in accordance with the labor law of 1961.

Recommendations described the efforts 

which should continue or should be initiated to 

provide an effective Employment Service. R ecommendations were made on the following topics:

Alfred Caron, (Belgium) 

started by the preceding

1. Improvement of physical facilities.

2. Cooperation among the various offices 

and with the central office.

3. Popularization of Employment Service 

activities.

4. Training of personnel.

5. Preparation of a technical manual.

6. Improvement of operating procedures.

7. C lassification of occupations.

46

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Federal Reserve Bank of St. Louis
A frica 

Sierra Leone

Survey of Manpower Requirem ents at Higher and Intermediate Levels

(1965; 59 pages)

Report to the Government of Sierra Leone, prepared by Robert Brown (London) 

A prelim inary study based on lim ited available data.

The first Census of Population, conducted in 

1963, indicates a population of over 2 million, of 

which 90 percent is directly dependent on ag riculture. About 63,000 people in the labor force 

are wage earn ers. Surveys of establishm ents and 

of educational and training institutions were conducted by the consultant to analyze currently em ­

ployed nonfarm manpower, to estim ate future 

needs, and to compare these needs with anticipated educational output. The methods used in the 

establishm ent survey and in the educational 

training capability survey are described fully and 

detailed tables on the resu lts are presented in 

the appendix.

An analysis of manpower supply in relation 

to estim ated needs rev e als that serio u s deficiencies will occur in alm ost every occupation

at all levels of education. Government administrative officers represent the only real surplus, 

prim arily because certain students are on government scholarships and “bonded” to government se rv ice s on graduation.

Recommendations

1. Manpower needs should be reviewed periodically in order to revise manpower and 

educational planning.

2. A Manpower Planning Unit should be 

established in the Development Office and integrated with all planning functions.

3. After organization of this Unit and processin g of census data, a fu ll-scale supply and 

demand manpower survey should be conducted.

47

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Federal Reserve Bank of St. Louis
A frica

Som alia Republic

Som alia Manpower Survey 

(1966; 4 pages)

A irgram A347, May 14, 1966, prepared by A m em bassy M ogadiscio

Summary of an ILO report on the manpower situation 

in Som alia (full text, 11 pages).

Because of high birth and m ortality rate s, 

Som alia has an unusually large proportion of its 

population in the preworking age. Approximately 

75 percent of the population is dependent on the 

other 25 percent. No national figures are cited, 

but recorded unemployment in M ogadiscio was 

four tim es higher by the end of 1963 than it 

was in 1960 and is expected to get w orse.

The ILO consultant, Dr. Nizan, recommended 

concentration on labor-intensive rather than 

capital-intensive projects to help absorb the 

large potential pool of unemployment. To bring 

this about, he proposes bringing new farm are as 

under cultivation, introducing agrarian reform ,

constructing re se rv o irs and ponds, developing 

fo rest and fish eries reso u rces, and promoting 

community development program s.

P resent shortages in skilled manpower also 

will continue to get w orse unless certain steps 

are taken. The country particularly needs 

scientific and engineering graduates. These can 

be trained by o v erseas study and by intensive 

on-the-job and technical school training.

In sum m ary, the study m akes an “excellent 

case for planning for education, not as a desirable 

adjunct to, but as a n ecessary and integral part 

of, economic planning.”

48

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Federal Reserve Bank of St. Louis
A frica

Sudan

Establishm ent of an Employment M arket Information Program 

(1965; 38 pages)

ILO Report to the Government of the Republic of the Sudan; 

ILO /O TA/Sudan/R.9; H. P. Davenport (India)

An intensive study of all asp ects of manpower development and planning in Sudan.

An Employment Service had been established 

in Khartoum; but the methods of registration, occupational and industrial classification, and sta ­

tistical collection made the data unsuitable to 

serve a s a source of employment m arket information. To obtain up-to-date information r e ­

garding employment in industrial establishm ents, the consultant conducted surveys of 

establishm ents to obtain information on employment, occupations, in -se rv ice training program s, vacancies, and sim ilar data. Only about 

50 percent of the surveyed establishm ents 

responded. Population and labor force p rojections were made on the b a sis of the 1956 Census 

of Population. The resu lts from the surveys and 

these projections aided in the preparation of the 

proposed Ten-Y ear Plan.

Conclusions

1. Manpower problem s were developing as a 

resu lt of the rapid in crease in the number of 

persons of working age, the shortage of skilled 

personnel, and dependence of foreign w orkers.

2. The development of manpower was hampered by the lack of coordinating manpower 

adm inistrative machinery.

Recommendations

1. O fficials should promote wide understanding of the need for manpower planning.

2. A manpower advisory committee and coordinating machinery should be established to 

integrate manpower policy with economic and 

social development planning.

3. The work of the existing Manpower Planning Adm inistrative Unit should be reviewed. 

(Work consisted of survey techniques.)

4. The Employment Service should be o rganized according to ILO Convention No. 88.

5. In view of the serious shortage of skilled 

w orkers as revealed by the survey, the valuable 

comments made by respondents should be re ­

examined.

6. A manpower assessm en t and planning consultant should be assigned to aid in carrying out 

the various recommendations, and a suitable 

local counterpart officer should be identified.

49

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Federal Reserve Bank of St. Louis
A frica

Sudan

Functions and Activities of the Department of Labor 

(1965; 26 pages)

DOLITAC 1 / Staff Paper No. 3;

Arthur W. Motley, Manpower Consultant

Review of current labor program s and recommendations 

for the establishm ent of a workable M inistry of Labor.

The purpose of the m ission was to make 

a detailed analysis of the functions and operations 

of the Department of Labor in Sudan. The 

effectiveness of the Department would be im ­

proved by AID’ s assistin g it to provide leadership 

for the creation of a viable labor movement and 

to contribute to a long-term economic development program . The recommended organizational pattern and a sum m ary of the various 

recom m endations, actions to be taken, and 

technical serv ice s needed appear in the appendix.

Under the M inistry of Labor, three specific 

functions should be established:

1. Manpower—responsible for all activities 

of the Employment Service, vocational training, 

apprentice training, on-the-job training.

2. S t a n d a r d s —responsible for ordinances 

providing worker protection: collection of 

w ages, protection against job in juries, factory 

inspections, workmen’ s compensation, child 

labor.

3. Labor relations—responsible for trade 

disputes, registration of trade unions.

Recommendations

1. The Labor Department should assum e 

leadership in manpower planning in coordination 

with other M inistries.

2. The Employment Service should be 

improved and reorganized at national and local 

levels. E specially needed are ru ral employment 

development program s and labor m arket information program s.

3. The M inistry should hire additional p e rsonnel and provide in -service training in order 

to carry out the various recom m endations.

4. AID should provide technical assistan ce 

in all asp ects of the reorganization of the 

Labor M inistry. Technical se rv ice s are listed 

in the appendix.

J j U.S. Department of Labor International 

Technical A ssistan ce Corps.

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Federal Reserve Bank of St. Louis
A frica

Sudan

Study of Manpower Needs, Educational C apabilities and O verseas Study

(1965; 42 pages)

Education and World A ffairs (Report No. 4): Study Committee on Manpower Needs 

and Educational Capabilities in A frica, prepared for AID

An assessm en t of available data on manpower needs, an 

appraisal of educational institutions, and a study of 

ov erseas training opportunities.

The Ten-Y ear Plan of Economic and Social 

Development (1961-71) was form ulated by the 

Economic Planning Secretariat of the M inistry 

of Finance. Data on manpower are too scarce to 

be of assistan ce in planning for high-level manpower development. The record s of some of the 

research conducted by various foreign technicians (ILO, UN, AID) have been lost or m islaid. 

The manpower analysis conducted by Edwin C. 

Crosby 1 / in 1960 was reviewed a s the m ost com ­

prehensive available study to date.

According to estim ates, high-level manpower 

supply would meet alm ost 75 percent of the additional personnel required by 19 71. M iddle-level 

manpower supply appears to be in greatest need 

for assistan ce since only 12 percent of requirements are expected to be met. Specific needs at 

this level are for technically trained personnel.

Recommendations

1. More effective manpower planning m achinery should be encouraged.

2. A ssistan ce should be provided to developing m iddle-level manpower.

3. Training of employed manpower should be 

supported.

4. USAID should continue its present support 

for the University of Khartoum and perhaps increase its assistan ce.

5. O verseas training should be maintained 

especially for the development of m iddle-level 

manpower.

1/ Of the Education Division of USAID/Sudan.

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Federal Reserve Bank of St. Louis
A frica

Sudan

High-Level Manpower Requirem ents and R esources 

Republic of Sudan, 1968-1972 

(1967; 55 pages)

John B. Seal, J r ., Manpower A dviser, The Ford Foundation

A ssessm en t of the employment situation of graduates of 

higher education institutions in Sudan.

A survey of public and private establishm ents 

was conducted to determine the occupational 

distribution in each nonfarm economic activity. 

Only a little over 2 percent of Sudan’ s population 

hold nonfarm wage employment. Of this group, 

the public sector employs 87 percent. F ive-year 

estim ates were projected on the b a sis of the 

returns from establishm ents. E stim ates of 

supply were based on an analysis of the output 

trends of secondary and higher education institutions.

The m ajor portion of the report analyzes 

the relationship between supply and demand 

projected to 1971. In order to establish meaningful relationships, specialized sk ills are 

matched with specialized requirem ents. Only 

in this way can scarce reso u rces be allocated 

to the priority needs of economic development. 

About 10 pages of tables present these details.

Recommendations

1. Sudan should invest in secondary and 

higher education solely in the amounts n ecessary

to fill the educational and skill needs for 

economic development. D etails of the adm inistrative mechanism to effect this recommendation 

are provided.

2. Sudan should establish a Manpower Planning and P rogram Section in the M inistry of 

Finance and Econom ics to implement the recom ­

mendations made in this report into an active 

program . Other manpower organizational units 

also are recommended to carry out manpowerrelated functions.

3. The Manpower Branch of the M inistry 

of Labor and Cooperation should prepare manpower and employment reports periodically; for 

exam ple, establishm ent surveys, labor force 

surveys, educational statistics.

4. Personnel program s, such a s recruitm ent 

and selection, placem ent, vacancy an alysis, 

in-service training, retirem ent system , should 

be expanded and improved for effective utilization of the Public Service.

52

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Federal Reserve Bank of St. Louis
A frica

Swaziland

Manpower A ssessm ent 

(1965; 81 pages)

ILO Report to the Government of Swaziland; 

ILO /TA P/Sw aziland/R . 1; A. V. Tottle (United Kingdom)

Prelim inary assessm en t of manpower reso u rces and 

requirem ents with particular reference to skilled manpower requirem ents.

Available information consisted of the 1956 

Census of Population, the 1960 sam ple survey of 

the labor force, quarterly establishm ent surveys 

of employment, and fragm entary data from v a rious other sou rces. Information about future developments was contained in “Swaziland Development Plan 1963-66,* which was little more than 

a listing of desirable projects to be submitted to 

the B ritish Government for approval and allocation of funds. The lack of national income sta tistics and of staff made comprehensive planning 

im possible. As a result, little information could 

be deduced about future manpower requirem ents.

Quarterly establishm ent surveys had been 

conducted to obtain information on current em ­

ployment of wage earn ers in the nonfarm sector. 

The resu lts of these surveys were analyzed to 

make estim ates of current and future manpower 

needs by occupation, industry, locality, and educational requirem ents. Because the coverage 

varied from quarter to quarter, the data were not 

com parable; therefore, an analysis of the em ­

ployment trend was not possible.

For the m ost part, the survey tended to confirm what already was known about manpower. 

Twenty percent of all paid jobs were held by 

expatriates. Unless educational output is higher, 

there is little chance of many local people r e ­

placing expatriates in these jobs.

Recommendations

1. G reater attention should be paid to the 

creation of employment in planning future economic development.

2. Training of local people should be emphasized in order to replace expatriates.

3. Vocational guidance and training opportunities should be offered to direct people into 

m iddle-level and technical activities.

4. An effective labor m arket organization 

should aim at reducing current surplu ses and 

shortages. D etails of such an organization are 

provided.

5. A pilot Employment Exchange Office 

should be established.

53

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Federal Reserve Bank of St. Louis
A frica

Tanzania

Human R esources and Manpower Planning in Tanganyika 

(1960; 30 pages)

John L. Thurston, Consultant, The Ford Foundation

The development of human reso u rces in Tanganyika 

is m ore critical than in m ost developing countries 

because of its em ergence toward independence and the 

attendant urge for Africanization.

The consultant recommended against conducting a job survey at the present time (1960) 

because there is no danger of oversupply of 

trained w orkers in the immediate future. It 

was suggested, however, that a job survey and 

an educational output survey be conducted 

around 1963.

In the meantime, because of the great im portance of agriculture to the economy, effort should 

be expended to develop skilled agricultural 

ad v isers or extension w orkers to aid farm 

fam ilies. Recruitment and training of such 

w orkers will be a form idable job over the next 

few years.

Government Service is an important em ­

ployer of trained manpower. The need to 

Africanize and the expected lo ss of one-third 

of the presently employed expatriates will create

strong p re ssu re s on the Government Service 

to find adequately trained manpower to fill not 

only the vacancies but also the anticipated 

expansion of se rv ice s. It was recommended that 

a training unit be established in the M inistry 

of Education to which four training experts 

from the United Kingdom or the United States 

would be assigned for at le ast 3 years.

Other types of activities for review include 

entrance requirem ents for high- and m iddlelevel jobs, standards and requirem ents, job 

an alysis, and job testing. One section of the r e ­

port analyzed the current educational system 

and output. Only a very sm all percentage of 

Tanganyika’ s children attain a high school education. T eachers and school facilities are in 

crucial need. Calculations are made to estim ate 

the cost of supplying the required number of 

teachers.

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Federal Reserve Bank of St. Louis
A frica

Tanzania

Survey of High-Level Manpower Requirem ents and R esources in Tanganyika, 1962-67

(1962; 81 pages)

George Tobias, Consultant, The Ford Foundation

This analysis of high-level manpower reso u rces and 

requirem ents is a followup of previous studies and 

recommendations.

This report advances by one step the continuous p ro c e ss of making approxim ations of manpower re so u rces and requirem ents and of 

suggesting program s n ecessary to bring them 

into balance.

Information from a survey of establishm ents 

and from other available statistical data formed 

the b a sis for making a high-level and skilled manpower inventory. Em ployers were asked to report 

their current employment by occupation and other 

information on nationality of w orkers, vacancies, 

trainees, and sources of new w orkers. They also 

were asked to estim ate employment needs 2 and 

5 years ahead and to base their projections on 

anticipated production plans. This type of information, supplemented by assum ptions on m ortality and retirem ent ra te s, was the b a sis for 

projecting the number of additional w orkers 

needed for replacem ent of each occupation. The 

program of Africanization also was taken into 

account to determine som e of the lo sse s to 

various occupations.

The supply of high-level manpower to meet 

this demand was estim ated from a review of the 

educational system . Training facilities and curricula w ere analyzed to determine the level and

quality of output. Against a total requirem ent of

8,000 w orkers in high-level occupations over the 

next 5 years, slightly over 2,200 trained people 

will be available. The report d iscu sse s in detail 

the supply of m edical w orkers and teachers and 

the output of trade schools.

To maintain a continuous review of the manpower situation, a Human R esources Secretariat 

should be established in the Economic Development Com m ission. The Secretariat should be 

responsible for initiating and developing program s, setting p rio rities, and seeing that they 

are carried out by the appropriate M inistries.

The staff should be drawn from present em ­

ployees of various M inistries and should be 

knowledgeable of Tanganyika’ s social, economic, 

manpower, and educational problem s.

A statistical system also was proposed with 

m ajor responsibility for coordinating all economic and social data in the Statistics Division 

of the T reasury. Responsibility for collecting 

statistical data on manpower should rem ain in 

the appropriate M inistries. Several recom ­

mendations were made concerning the collection 

of labor m arket information, survey techniques, 

occupational classification , and sim ilar subjects.

55

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A frica

Tanzania

Survey of the High-Level Manpower Requirem ents 

and R esources for the Five-Y ear Development Plan 1964-65 to 1968-69

(1965; 21 pages)

Robert L. Thomas, Consultant, The Ford Foundation

The establishm ent survey of 1964 reveals that the 

target goal of self-sufficiency in high-level manpower 

will be reached in 1980, if proposed educational and 

manpower program s are carried out.

The first manpower survey was made in 1962 

by George Tobias. (See preceding sum m ary.) 

Since that tim e, national manpower planning 

machinery was established and a Five-Y ear Plan 

was form ulated. A new survey was needed to 

obtain information to prepare supply and demand 

projections for specific high-level occupations 

under the conditions for development laid down 

in the Plan.

The 1964 study surveyed all large establish ­

ments in Tanzania; they represented nearly 

three-fourths of all nonagrieultural employment. High-level manpower was concentrated 

in government and in the larg er establishm ents. 

All adm inistrative, management, professional, 

technical, skilled cra fts, and clerical occupations, which were considered high-level and 

skilled, were categorized according to educational and training requirem ents.

The establishm ent survey provided occupational information on employment, vacancies, 

number of jobs held by A fricans, and employer 

estim ates of requirem ents in the 5-year period

to 1969. The numbers of persons actually r e ­

quired to fullfill employer demand were calculated by adding lo sse s (death, retirem ent, and 

Africanization) to anticipated net in creases 

Where possible, refinem ents were made to these 

basic projections. Tables showing both industry 

and occupational projections and their com ­

ponents are presented.

Supply data were estim ates based on educational and training output. University-trained 

manpower supply was estim ated by straight extrapolation of current levels among the various 

disciplines. No attempt was made to estim ate 

the shortfall in skilled occupations since m ost 

sk ills were acquired on the job and through 

prom otions.

The an alysis reveals that the target goal of 

self-sufficiency in high-level (professional and 

technical) manpower will be achieved by 1980, 

if the proposed educational program s are carried 

out. Some problem s with developing skilled 

(manual) occupations exist, but there is every 

reason to believe the difficulties which do exist 

will be resolved satisfactorily.

56

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Tanzania

Integration of Educational and Economic Planning in Tanzania

(1965; 78 pages)

George Skorov, UNESCO, International Institute of Educational Planning (IIEP)

This study explores the problem s of formulating educational development plans and evaluates the methods used 

in Tanzania to overcom e these problem s.

The first half of the study sum m arizes the 

economic development plan and the labor force 

and employment situation to provide a setting for 

the main th esis of the study. Existing studies on 

manpower needs and reso u rces are evaluated. 

Consideration is given to the fact that the various 

consultants started practically from scratch and 

that they often had to substitute experience and 

imagination for facts and figu res which were not 

available.

The Hunter Study (1962) was the first rough 

assessm en t of high-level manpower in E ast 

A frica. Its m ajor purpose was to a s s is t those 

engaged in university planning. The m ajor criticism s of the study were that insufficient occupational details were supplied and that a constant correlation between the relative size of 

employment and changes in national income was 

assum ed.

The Tobias Survey (1962) was a landmark in 

manpower surveying in Tanzania and the first 

system atic inventory of high-level manpower by 

broad occupational groups. Its main weakness 

was that the study could not be related to a sp ecific economic program since there was no development plan yet in existence.

The Thomas Survey (1964) was geared to the 

economic development plan, its occupational 

coverage was more inclusive than the Tobias 

study, and its conclusions on the educational 

system were m ore precise. Its m ajor weakn esses were the application of a developed country’ s annual rate of economic growth to an 

underdeveloped country and the assum ption that 

the existing occupational distribution would be 

the sam e in 1970.

The second half of the study evaluates the 

manpower and educational planning program s 

that resulted from these surveys. An an alysis of 

the economic outlook of Tanzania indicated that a 

m ore cautious approach to manpower projections 

would be required since the projected high rates 

of economic growth and productivity may not be 

achieved. All the manpower surveys made clear 

the vital role of secondary and higher education, 

especially in scientific and technical fields, in 

order to meet high-level manpower requirements. It was suggested that any surplus educated 

manpower would be absorbed by the increased 

rate of Africanization and, therefore, the danger 

of overestim ated needs is really not so 

great.

57

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Tanzania

Job A nalysis, Africanization, and Manpower Management in Tanganyika

(1965; 6 pages)

John B. Seal, J r ., Manpower Utilization Officer to the Government of 

Tanganyika, A rticle in Personnel Administration (July-August 1965) p.36ff.

This article deals with the efforts to Africanize the 

Civil Service through the technique of job an alysis.

Africanization of the Civil Service has been 

an important objective of the Government of 

Tanganyika. While the number of A fricans 

employed in the Civil Service increased from 

78 percent in 1951 to 88 percent in 1961, they 

were largely concentrated in the lower levels; 

only 20 percent were represented in the higher 

ranks. The Ford Foundation was invited to 

examine the economy from the standpoint of 

human reso u rces development and manpower 

planning. The report 1/ submitted in 1960 concluded that (1) expatriate officers would be 

needed for several more years; (2) su p ervisors 

m ust be responsible for job-training activities; 

(3) the Government m ust provide outstanding 

profession al leadership to develop an expanded 

training program ; and (4) maximum efforts are 

needed to adjust both entrance standards and job 

content to facilitate hiring A fricans into the 

Civil Service. Thus, job an alysis as a management technique would be a partner in the 

trem endous training and staffing effort facing 

the country.

The Ford Foundation sent three job analysts 

to coordinate the training effort toward A fricanizing the Civil Service. Their first task* 

occurring in the m idst o f independence activities* 

w as to survey high-level adm inistrative jobs.

These included 80 posts in 12 M inistries and 

constituted the “elite co rp s” of the Civil Service. 

The resu lts becam e the benchmark documents 

for job analysis and m easurem ents. The report 

consisted of position descriptions, functional 

and organizational ch arts, and observations and 

recommendations of all factors related to job 

perform ance. One of the m ajor problem s encountered in this survey was the distru st engendered 

by operating officials and their fear that their 

jobs would be downgraded. This apprehension 

required constant salesm anship to explain the 

real purpose of job analysis and m easurem ent.

Specific outcome of the survey resulted in 

a more effectively organized and flexible cadre 

of adm inistrative talent at a large saving in 

annual sa la rie s. Since the time of the survey, 

by 1965, alm ost 89 percent of the total Civil 

Service was African and nearly half of the highlevel positions were held by African officers. 

The next step was to extend job analysis throughout all secto rs of the economy in a way to 

convince both management and em ployees of its 

worth. In its modest way, job analysis can help 

determ ine the speed and direction in the development of African business le ad ers of tomorrow.

1/ See sum m ary on page 54.

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Strategy of Implementing a Manpower Program in a Developing Country 

Paper delivered to Conference of International Institute of Educational Planning

(1966; 59 pages)

Robert L. Thomas, Consultant, The Ford Foundation

A description of the actions taken to implement a 

manpower program in Tanzania and an evaluation of the 

effectiveness of these m easu res are “relevant to other 

sub-Saharan, newly independent countries.”

Two basic or “m aster” policies govern Tanzania’ s manpower program :

1. Achieve self-sufficiency at all skill levels 

by 1980.

2. To achieve this ambitious goal, invest in 

education that is related to the sk ills needed for 

economic development.

N ecessary preconditions to a successful manpower program include:

1. Support by highest political lead ers and 

government officials.

2. Integration of program with the economic 

development plan.

3. D irect communication between chief manpower planning officer and chief executive of 

nation.

4. High-level manpower requirem ents exp re sse d in specific occupational term s for guidance of educational planners.

The section on the “P ro c e ss of Implementation” d escrib es the steps taken to bring supply 

into balance with demand through Tanzania’ s 

educational system . The implementation of the 

various policies are discu ssed in detail. Much 

of the su cce ss of the program is the resu lt of 

occupational counseling based on employment 

m arket information. Training of high-level p rofessional and technical w orkers can be done in

the school system . M iddle-level w orkers can be 

produced by le s s form al m eans through upgrading, better utilization of current skilled w orkers, 

on-job and apprentice training, and retention of 

skilled expatriate w orkers.

A strong central planning organization is e s ­

sential to the accelerate economic development 

of a developing country, and a manpower planning 

unit is a n ecessary part of that organization. 

Tanzania’ s Planning Organization is independent of any other government agency and has been 

given great authority. It developed the five-year 

plan in collaboration with other M inistries. One 

of the features of the Planning Organization is 

the establishm ent of Planning Units in the M inistrie s. These units are integral p arts of the 

M inistries but provide a focal point for the Central Planning Organization in dealing with the 

M inistries.

Within the Planning Organization, the Manpower Planning Unit created a National Manpower Advisory Committee made up of m anagement, labor, and government le ad ers. This 

com m ittee obtains advice, reactions, and 

opinions on such p rojects as the National Apprenticeship Plan, trade, testing, etc.

The re st of the report d escrib es the role of 

the public and private secto rs in the p ro cess of 

developing and utilizing sk ills. Special em phasis 

is placed on the development of a flow of information needed to carry out an effective manpower 

program .

59

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Manpower Development for Industrialization 

Country C ase Study: United Republic of Tanzania 

(1966; 67 pages)

Prepared for the Center for Industrial Development, United Nations, by 

Robert L . Thom as, Consultant, The Ford Foundation

This case study deals with estim ates, plans, and im plementation actions relating to Tanzania’ s program of 

high-level manpower development to meet the needs 

of its Plan for Economic and Social Development.

A description of the country, the economy, and 

the F ive-Y ear Plan se ts the stage for the d iscu ssion on Tanzania’ s manpower supply/demand 

outlook and on the various program s for producing the sk ills needed for its economic 

development.

Tanzania’ s current stock of high-level manpower sk ills was estim ated in 1964 and matched 

with estim ates of demand in order to identify 

sh ortfalls. Effects on Africanization and w astage 

from deaths and retirem ent were also considered 

in these ap p raisals. It was concluded that 

scien ce-based occupations requiring a university degree or post-high school education suffer 

the greatest shortages. Most other occupations 

would be in adequate supply by 1980.

The target of “self-sufficien cy by 1980” will 

be achieved if the Plan’ s educational program s 

are carried out. Success already has been experienced in the expansion of secondary school 

enrollment and the task of educating the public 

of the purposes of a manpower program has been 

well done.

The strategy for developing high-level sk ills 

in Tanzania includes the following:

1. Investment in education is made only to 

the extent that need for specific sk ills e x ists.

2. Governm ent-sponsored students must attend the University of E ast A frica.

3. Student grants are offered alm ost exclusively in faculties producing specific sk ills.

4. M easures were introduced to in crease the 

number of science and m athem atics students.

5. To c arry out the decision of A fricanize 

the public sector first, governm ent-sponsored 

students must work for the Government for 5 

years after graduation.

The strategy for developing m iddle-level 

sk ills was relatively sim ple in concept. Many 

of these w orkers (nurses, prim ary teachers, 

technicians) will be trained in institutions operated by government m in istries. C lerical w orkers 

and craftsm en will be trained prim arily in trade 

and vocational schools, in plant, and on the job; 

industry will assum e the basic responsibility for 

training many of these w orkers.

60

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Tanzania

Labor Force Survey of Tanzania 

(1966; 156 pages)

Robert S. Ray, Consultant, The Ford Foundation

The prim ary objective of this study is to provide 

information on labor supply in Tanzania to balance 

previous reports that dealt with labor demand only.

Tanzania has long needed to know m ore about 

its current supply of labor in order to (a) establish a benchmark for making projections and (b) 

develop quantitative and qualitative data on 

m iddle-level and unskilled labor. The techniques 

used in this survey were adapted from other 

countries and should be applicable for su b sequent surveys. ILO definitions, concepts, and 

recommendations were followed throughout the 

survey.

The survey was conducted by interviewing 

a sam ple of households covering 1.25 percent 

of the urban population and 0.5 percent of the 

ru ral population. B ased on population estim ates, 

8,290 ru ral and 1,225 urban households were 

selected and interviewed for a period in March 

1965. There were 61 trained enum erators and 6 

su p erv isors engaged in collecting the data. The 

types of questions, listed in the appendix of the 

report, were concerned m ostly with the employment status and the educational level of the r e ­

spondents. Questions on hours worked and pay

received helped pinpoint the extent of underemployment. The appendix also contains an abridged 

(37 pages) enum erator’ s training manual.

The bulk of the report analyzes the resu lts of 

the survey. Separate chapters, supported by 77 

tables, d iscu ss the ch aracteristics of the population and the labor force, employment, the underemployed and unemployed, educational levels, 

and mobility of the labor force.

In sum m ary, the resu lts of the survey show 

that, out of an estim ated population of 10,248,000 

in March 1965, over 95 percent were living in 

ru ral are a s. More than half of the population 

were 14 years and over. Of this group, two-thirds 

were in the labor force; the rem ainder were 

keeping house, in school, or unable to work. The 

overall unemployment rate was 4.0 percent, 

which represented 7.0 percent in the urban a re a s 

and 3.9 percent in the ru ral a re a s. An excellent 

chapter describes the various components and 

alternatives for m easuring and analyzing underemployment.

61

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Utilization of Tanzania Science G raduates of 

the University of E ast A frica, 1962-66 (first draft) 

(1967; 18 pages)

Ja m es A. Johnson, Consultant, The Ford Foundation

A study of recent university science graduates to determine the relationship between their university training 

and their current employment.

Projections of supply of and demand for 

high-level manpower had been made previously 

in Tanzania, but no information was available 

to estim ate the requirem ents to replace sp ecially trained persons who fail to enter the occupation for which they were trained or who leave 

the occupation som e time after they enter it. 

To improve the quality of projections of manpower requirem ents, a survey of recent science 

graduates (1962-66) was conducted to determine 

to what extent their university training was being 

utilized in their current employment.

Each graduate was asked his employment 

history, post-graduate training, mobility, and a 

number of attitudinal questions. Of the 148 

graduates from the university, 57 were p e rsonally interviewed, 60 were studying abroad 

under government sponsorship or on their own, 

and 31 were in accessible a re as or otherwise 

not available for personal interview,. Of the 130 

graduates who responded, 85 percent were em ­

ployed in government or governm ent-related 

en terp rises.

Of the 57 respondents actually interviewed, 

percent were employed in occupations for which 

their science training was essen tial; the r e ­

m ainder were in occupations which barely 

utilized their science training. Other breakdowns 

by em igration, post-graduate training, etc., are 

d iscu ssed .

The study revealed that, without exception, 

the M inistries placed the graduates in posts without regard to their preferences. M oreover, government em ployees were apt to be tran sferred 

from area to area on short notice and at frequent 

intervals. Contrary to the usual preference for 

the capital city by educated persons in m ost 

developing countries, the great m ajority of 

Tanzanians interviewed strongly p referred 

placement up-country rather than a position in 

Dar e s Salaam . The reason s given for this 

preference were better housing facilities and a 

more satisfactory clim ate.

Recommendations for government employment:

1. E stablish a committee to review assign ­

ment of graduates.

2. Include a factor for underutilization and 

for movement out of the occupation in next manpower projection.

3. Review government policy of sch olarships.

4. Remove “office work" functions from 

scientific jobs.

5. E stablish uniform placem ent and tran sfer 

policies.

6. Provide adm inistrative and accounting 

training.

62

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Togo

The Employment Situation and the Organization of the Employment Service

(In French; 1960; 15 pages)

ILO Report to the Republic of Togo; O IT/O TA /Togo/R.2; Andre Aboughanem

A study of the manpower situation and suggestions for 

the improvement of the Employment Service,

According to the 1959 Census, population is 

estim ated to be 1,200,000. Approximately 500,000 

are economically active, of which 90 percent are 

in agriculture. Only 1,200 people are em ployers 

and 12,000 are wage and salary w orkers in Government serv ice s, industry, and trade.

Training facilities con sist of a sm all training 

school and a few apprenticeship centers, supplemented by informal on-the-job training. The 

methods of training are archaic and have not kept 

pace with the changing needs of a modernizing 

economy.

The Employment Service con sists of a D irector and six agents. Its placement serv ice s have 

been minimal over the la st few years and apprenticeship serv ice s have been extrem ely limited.

Recommendations

1. The M inistry of Labor and Social A ffairs 

should participate in economic planning and coordinate apprenticeship, training, and placement 

work.

2. The Employment Service should have additional personnel and should be reorganized into 

three sections:

a. An information section for employment 

m arket studies.

b. A section on skill development and apprenticeship training.

c. A placem ent section.

3. The Employment Service should organize 

a sm all center for skill development and the 

M inistry of Labor and Social A ffairs should seek 

foreign technical assistan ce for the centers.

4. Worker card s (carnets) should be abolished because they are a hindrance to mobility 

and placement of job seek ers.

5. The Service should regulate the placement 

of seasonal w orkers.

63

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Tunisia

Human R esources for Economic Growth and 

Social P ro g re ss in Tunisia 

(1961; 75 pages)

Memorandum from Burnie M erson, AID Manpower A dviser, to USAID/Technical 

Services Division, dated May 8, 1961.

Summary of reports prepared by Mr. M erson during

his tour of duty in Tunisia.

The purpose of this memorandum is to 

prepare the fram ework for the development 

of a position paper on human reso u rces for 

the guidance of U.S. officials in Tunisia. Information from various reports and airgram s 

relating to manpower and human reso u rces which 

were prepared during Mr. M erson’ s tour of duty 

is pulled together to provide a cohesive analysis 

of the current manpower situation in Tunisia. A 

doctrine of human resource development is p re ­

sented in relation to the economy as a whole, 

economic and manpower planning, manpower 

mobilization, human freedom , and the role of 

specific AID program s.

Manpower program s and planning for 

economic development in developing countries 

require a central planning and development 

agency. This organization establishes the needs 

and goals of the economy as a whole. Separate 

but coordinated functions to carry out these 

goals should be the responsibility of specialized 

units, such as a manpower planning unit and an 

educational planning unit. These groups can 

develop methods and p ro c e sse s for developing,

utilizing, and distributing manpower to meet 

the economic and social goals.

B asic to economic and human resource 

development program s is the need to understand the institutions and attitudes which have 

developed as part of the traditions of the 

society. An agricultural society experiences 

difficulty in rapid adjustment to an industrial 

economy which demands discipline, productivity, 

leadership, and entrepreneurship. The changeover should be gradual and only as needed. AID 

priority p rogram s, at le ast in the early stages 

of development, should be directed toward 

improving agricultural output, both in quantity 

and quality, to satisfy the m ost immediate needs 

of the country—food enough to feed the population.

A 31-page appendix d escrib es the manpower 

problem s, trends, and developments related to 

Tunisia’ s economic program . All available sta ­

tistical data relating to the labor force (characte ristic s, employment, industry, and occupation) 

are assem bled and analyzed in light of the 

economic development plans.

64

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Manpower, Education, and Traning in Tunisia as Related to the USAID Program

(1963; 32 pages)

Edgar C. McVoy, AID Manpower Consultant

An appraisal of manpower needs and of training program s to meet these needs, and an assessm en t of foreign assistan ce.

There are acute shortages of many types of 

trained manpower at all skill levels. E stim ates 

of these needs and of potential supply were made 

for the Ten-Y ear Development Plan (1962-71). 

In order to meet these needs, the Government 

of Tunisia began a program of educational r e ­

form and expansion. The main objectives of this 

new system are to provide universal prim ary 

education, to give education a “national* character, and to provide trained manpower needed for 

development. The various vocational training 

and apprenticeship program s are scrutinized.

The main agency responsible for im provement of manpower utilization is the Employment 

Service, which was initiated in 1960 under the 

M inistry of Public Health and Social A ffairs. Em ­

ph asis is placed on job m arket information; 

placement is a secondary function. The Service 

has a sm all testing and selection center for 

candidates of vocational training and apprenticeship. The M inistry of Education conducts its own 

tests for students applying for adm ission to 

schools. Tunisia has not developed other features 

of an integrated system of manpower utilization; 

there is no overall manpower policy or coordinating board.

Most foreign assistan ce com es from French 

technicians, m ost of whom fill post as teachers 

civil servants. The United Nations has a manpow er-related project for supporting the Occupational Training and Productivity Institute. 

M em bers of the U.S. Peace Corps are training 

teachers and construction w orkers. USAID has 

many projects directly and indirectly related to 

manpower development.

Recommendations for USAID program s

As a general policy, USAID should:

1. Provide enough technicians in each area of 

study to coordinate with the Government of 

Tunisia and with other technical assistan ce program s.

2. Develop a pool of French-speaking technicians in order to work more effectively with 

Tunisians.

3. Require that U.S. contractors train local 

w orkers at each skill level.

4. Extend additional assistan ce to the Em ­

ployment Service to develop it into an effective 

manpower development, utilization, and d istribution organization.

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A Study of the Public Employment Service in Tunisia 

(1965; 78 pages)

Joint report by survey team : L azard Seiff, AID;

K arl Ahlem ius, The Ford Foundation; E d gard -L ou isG osse,IL O

R esults of an intensive survey of the Tunisian Em ­

ployment Service organization, adm inistration, function, 

and objectives.

This study arose from concern expressed 

by officials in the M inistry of the Plan and 

National Economy and the M inistry of Youth, 

Sports, and Social A ffairs regarding the accom plishm ents of the Employment Service. The 

survey team attempted to identify the strengths 

and w eaknesses of the Tunisian Employment 

Service with a view to increasing its contribution toward a p rogressive manpower program . 

All asp ects of the Service were investigated. 

V isits were made to local offices and to 

em ployers.

The m ajor portion of the report d escrib es in 

detail the observations and recommendations for 

each Employment Service operation. Many of the

recommendations were made by officials in the 

Service and covered employer relations, occupational classification , job order taking, application taking and filling, recruitm ent, selection 

of applicants, re fe rra l techniques, followup of 

re fe rra ls to em ployers, and statistical reporting. Other observations and recommendations 

were made on the organization, staffing, su pervision, and staff development in the Employment 

Service. Detailed recommendations are p re ­

sented on each of these topics.

The final chapter of the report d iscu sse s the 

formulation of a policy strengthening the Em ­

ployment Service and for adapting its serv ice s 

to the changing needs of the economy.

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Study of Manpower Needs, Educational C apabilities, and Over se a s Study

(1965; 41 pages)

Education and World A ffairs (Report No. 8): Study Committee on Manpower 

Needs and Educational C apabilities in A frica, prepared for AID.

Description of manpower and educational planning in 

Tunisia.

The Government’ s estim ates of skilled manpower needs are given in the Ten-Y ear Development Plan (1962-71). Total requirem ents at all 

skill levels amount to over 15,000 trained p ersonnel each year. This figure re late s only to the 

secondary and tertiary se cto rs and omit requirements for skilled agricultural personnel. In addition, the plan failed to foresee Tunisia’ s lo ss of 

qualified manpower through the departure of 

many expatriates. Therefore, trained manpower 

requirem ents may be much greater than originally estim ated. Existing manpower data are 

insufficient to provide detailed estim ates of occupational needs. The greatest need appears to be 

for m iddle-level manpower and for skilled 

w orkers.

The Ten-Y ear Educational Plan has first 

priority within the general development plan. 

In 1964, 26 percent of the national budget was 

allocated to education. Educational reform em ­

phasized increased enrollm ents at every level 

in accordance with the economic, social, and 

cultural needs of the country.

About 80 percent of the 3,000 students abroad 

were studying in France. It is anticipated that 

this number will be cut back drastically because 

enrollm ents at the University of Tunis are high 

and the University probably will be able to fill 

m ost high-level manpower needs within a few 

years. According to current estim ates of manpower requirem ents, the supply of high-level 

personnel is considered to be well over 40 p e rcent ahead of schedule, if needs of the agricultural sector are included. It is anticipated that 

there will be a shortage of 1,500 high-level 

agricultural w orkers by 1972.

Recommendations

1. Further studies should concentrate on 

specific occupational needs of key economic 

secto rs.

2. Development of m iddle-level manpower 

should be accorded first priority.

3. Secondary training, agricultural training, 

and in -service training should be supported by 

USAID.

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Reorganization of the Employment Service 

(In French; 1966; 39 pages)

ILO Report to the Government of Tunisia; 

O IT/T A P/Tunisia/R .15; E dgard-Louis G osse (France)

Role and function of the Employment Service and recom ­

mendations for its reorganization.

The Employment Service is located in the 

M inistry of Youth, Sports, and Social A ffairs. 

The m ajor serv ice s offered are placem ent, 

statistic s on placement and job registration s, and 

occupational classification . D eatils of the adm inistrative and operating functions of the centra l office and branch offices are provided.

Recommendations

1. The Government should recognize the 

importance of Employment Service activities.

2. Both trained personnel and budgetary 

sources should be increased in order to provide 

adequate serv ice s to the public.

3. Labor inspection activites should be a 

separate unit from Employment Service activities.

4. The occupational classification system 

should be developed according to ILO recom ­

mendations.

5. Statistics should be collected and analyzed 

on all asp ects of the employment m arket situation.

6. All agencies involved in manpower development should cooperate with each other and 

coordinate their plans for improving the quality 

of the labor force.

6 8

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Federal Reserve Bank of St. Louis
A frica

Uganda

Report on the Survey of Manpower and Training 

(1959; unnumbered pages)

Robert L. Thomas, Manpower Consultant, The Ford Foundation

R esults of a survey to determine current and projected occupational supply and demand.

A survey of nonagricultural employment in 

the public and private sectors of the economy was 

conducted. Information on all levels of occupations was obtained through personal v isits to 

102 em ployers who represented 82 percent of all 

nonagricultural employment in Uganda. Em ­

ployer cooperation was excellent and no information was denied the interview ers. Supply inform ation was obtained from educational and 

training institutions and from record s of individu als studying abroad.

Current employment by occupation and e stimated 1964 demand/supply relationships are 

presented in detailed tables. Evidence indicates 

an urgent job m arket demand for an adequate 

supply of “better educated” manpower. Many 

vacancies exist now because not enough trained 

people are available. This situation will become 

even m ore seriou s in the next five years. Educational facilities are not keeping pace with the 

anticipated expansion of government and industry and with the need to replace those who die or 

retire. Training is needed particularly at the 

m id d le -le v e l occupational categories where 

seriou s shortages already exist.

The M inistry of Education and Labour has 

been aware of this educational need and has 

taken steps to in crease the supply. The number of 

graduates of African schools has risen but not 

enough. If in creases are to be achieved and the 

urgent demand to be met, a reallocation or re ­

distribution of present educational facilities and 

funds will have to be made.

The point was stre sse d concerning the d e sirability of the establishm ent of adm inistrative 

machinery for providing continuing job m arket 

information.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Regional

“Alianza p ara el P ro g re so ” Demands Quick Action 

on Manpower and Labor P rogram s 

(1961; 44 pages)

Fernando Sie rra Berdecia and Malcolm Kennedy, AID Consultants

An assessm en t of program needs and plans in worker 

education and labor leader training and in labor ministry adm inistration, in six Latin Am erican countries.

If the Alliance for P ro g re ss is to be carried 

out so that the benefits of economic expansion are 

distributed equitably to those who contribute to 

the productive efforts, it is n ecessary to strengthen dem ocratic trade unions and to develop labor 

program s that will guarantee fa ir minimum 

standards and improve opportunities for jobs.

General recom m endations, applicable to all 

countries

1. To preserve dem ocracy in Latin A m erica, 

the U.S. public policy, a s stated in Public Law 86- 

735, 1 / should be circulated m ore widely and 

em phasized m ore positively among U.S. personnel on duty there.

2. When com pared with the need for fullscale , well balanced labor program s, AID a s ­

sistan ce is “absurdly sm all.” W ell-trained p ersonnel and efficient speedy se rv ice s are needed 

to provide a strong and respected labor m inistry.

3. Reliable statistical information is needed 

to know the nature and magnitude of labor problem s.

4. Employment se rv ice s are needed to make 

better use of the labor force in line with the 

requirem ents facing economic development.

5. P rogram s for industrial safety must be 

developed to reduce lo sse s in m an-hours.

6. Flexible system s for setting up minimum 

wages should be established to give w orkers 

increased buying power.

Specific recommendations cover the following 

countries:

Argentina (10 pages)

B razil (5 pages)

Colombia (4 pages)

Mexico (4 pages)

Uruguay (7 pages)

Venezuela (5 pages)

1/ The policy of the U.S. Government “ supports the strengthening of free dem ocratic trade 

unions to ra ise standards of living through im ­

proved labor-m anagem ent relation s.” (Section 

1 (b) (4), P .L . 86-735.)

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Federal Reserve Bank of St. Louis
Am erican Republics 

Argentina

Training Qualified Manpower for Industry 

(In Spanish; 1961; 20 pages)

ILO Report to the Government of Argentina; O IT/T A P/A rgentina/R . 5

A report on the second stage of the work of a group of 

ILO experts from 1956 to 1960. The group was asked 

to establish various educational program s concerning 

vocational training and, in particular, to organize cou rses 

for instructors and skilled workshop lead ers in general

m echanics.

The report is divided into three p arts: P art 

I concerns the problem s existing when the m ission arrived. Argentina at that time was re o rganizing her adm inistrative, economic, and 

social organizations on a national scale. One 

of importance to the M ission was the combining 

of the National Com m ission of Apprenticeship 

and Vocational Orientation with the Office of 

Technical Education to form the National Council 

of Technical Education, CONET.

Some of the problem s are discussed. They 

deal m ostly with lack of budget for adequate 

supplies and sa la rie s. Poor coordination between 

the schools and industry lim ited adequate training for industrial requirem ents. Need for training in agricultural a re a s was ignored.

P art II d escrib es the work accom plished by 

the M ission. Several sem inars and cou rses were 

organized; for exam ple, a course to improve the 

competence of instructors and workshop lead ers, 

study se ssio n s on technical teaching techniques 

for workshop lead ers, study periods with p rofess o r s of general technology and mechanical drawing.

The m ission submitted a program for skilled 

m echanics, lathe operators, and m illwrights; 

planned program s and selected participants for 

foreign grants; helped to install and utilize demonstration equipment; and helped to create a 

pilot center for training.

P art III con sists of the following recom m endations:

1. Consider creating permanent government 

units to study the needs of local industries in the 

provinces.

2. Create a permanent serv ice to examine 

the re su lts of teaching techniques.

3. Study the possibility of giving autonomy to 

schools to take c are of immediate needs.

4. Organize teaching centers so that all 

teaching personnel can learn from instructors 

who have taken improvement cou rses.

5. Grant facilities to the director of teaching 

centers and inspectors to perm it their p rofessional improvement.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Argentina

Survey of Manpower 

(In Spanish; 1957; 81 pages)

ILO Report to the Government of Argentina; 

O IT/TA P/A rgentina/R.3; Mr. Jo se f Deroo (Belgium)

A nalysis of the industrial and occupational structure of 

manpower in industry, based on available information 

and on an establishm ent survey.

Available data consisted of censuses of population, birth and death record s, and projections 

made by the United Nations. These data are 

analyzed, as fa r as possible, by occupation and 

industry. Data on student output of technical and 

professional schools also are described.

A survey of nonagricultural establishm ents in 

Buenos A ires and several provinces provided 

manpower needs by industry. N early 2,000 estab ­

lishm ents were included in the sam ple: all estab ­

lishm ents employing 1,000 w orkers or m ore, 

and every third establishm ent employing 25 

to 999 w orkers. More than 1,200 establishm ents 

representing 261,000 w orkers responded.

Eighteen industries were included in the 

survey. W orkers were classifie d into 94 occupations. Job vacancy data and anticipated occupational needs six months after the survey also 

were requested. Detailed tables provide the occupation and industry distributions of current 

employment, job vacancies, and future needs.

The report concludes that an abundant supply 

of w orkers who have few sk ills is available for 

industrial needs, but a scarcity of skilled 

w orkers (such a s lathe operators and mechanics) 

will continue to exist. The survey indicates that 

additional training program s geared to the needs 

of industry are needed.

Recommendations call for the creation of a 

system to collect information about the actual 

and potential work force; better coordination of 

statistical sources; the use of statistic s compiled 

by the social security adm inistration; im provement of census statistics on labor force and 

employment; classification of occupations based 

on ILO recommendations; development of the 

National Employment Service; m ore attention 

to technical training; improvement in compiling 

statistic s on industrial and technical training; 

clo ser contact of training program s with labor 

and industry; and the formation of a national 

coordinating body.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Argentina

Notes for a Manpower Survey P repared for the Instituto Torcuato di T elia

(1961; 27 pages)

Robert L. Thom as, Manpower A dviser, The Ford Foundation

Description of the techniques of obtaining manpower supply and demand data for the Center’ s prospective survey 

of high-level manpower in Argentina.

The Instituto Torcuato di T elia (the Center) 

proposed a study of the current and projected 

supply and demand of high-level manpower in 

Argentina. The purpose of the study was to effect governmental and private decisions in education and training so that future skill output 

would be consistent with national needs. These 

Notes provided the b a sis for the study which the 

Center conducted in 1961-62.

The m ajor portion of this report describ es 

the step-by-step procedures n ecessary to carry 

out the proposed manpower study:

1. Occupations to be covered—only p rofessional, technical, and adm inistrative occupations.

2. Sample coverage—c o n s t r u c t i o n of a 

benchmark.

3. Questionnaire design.

4. Methods of obtaining supply data from educational and training institutions.

The resu lts of the survey are described in:

L os R ecursos Humanos de Nivel Universitario y Tecnico en la Republica Argentina, 

P arts I and II, 646 pages (including a 116-page 

appendix, a 20-page bibiography, and a 12-page 

annex). Second edition 1964. Center for Economic 

Investigations, Instituto Torcuato di T elia.

Techniques of the survey are described in:

Informe Metodologico R ecursos Humanos, 

Argentina, by Enrique Oteiza, 1963. Instituto 

Torcuato di T elia.

Related reports published by the Institute include:

L a Em igracion de P rofesionales y Tecnicos 

Argentinos, by M orris A. Horowitz, 1962. (6 

pages)

Estim ating Future Requirem ents for Engin eers, by A1 Broehl, 1964. (54 pages)

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Federal Reserve Bank of St. Louis
A m erican Republics 

Argentina

Industrial Development in Argentina 

(1961; 181 pages and appendix)

Arthur D. Little, Inc.

A study of the problem s of industrial development in 

Argentina. One section (pages 130-158) covers human 

resource development for industry.

Shortages of personnel ranging from skilled 

labor to top management are costly and lim it 

economic growth in every segm ent of industry.

Most training organizations have just begun 

operations and therefore cannot be evaluated 

critically. For exam ple, the Productivity Center 

has barely begun its program of upgrading labor; 

the Institute for Executive Development has just 

opened its doors; the National Council of Technical Education (CONET) is so new that few 

people interviewed knew it existed.

The m ajor recommendations were:

1. A council of training organizations should 

be form ed to plan coordinated educational 

efforts.

2. An enlarged and accelerated program 

should be developed to in crease training facilities outside Buenos A ires.

3. Methods of decrease the lo ss of trained 

people to other countries should be devised.

4. The number of scholarship applications 

should be increased and the selection procedures 

should be stream lined.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Argentina

Organization of Technical Education and P rofessional Training Services for Industry 

(In Spanish; 1962; 85 pages and 12 annexes)

ILO Report to the Government of Argentina; O IT/TA P/A rgentina/R*7

Report studies actual and projected needs for technical 

and professional training, recommends national policy 

in these field s, and estab lish es p rio rities to attain the 

proposed objectives.

Argentina had reorganized the se rv ice s of 

apprenticeship and professional orientation 

(CNAOP) and technical education (DGET) to form 

the National Council of Technical Education 

(CONET) in May 1960. (Refer to O IT/T A P/A rgentina/R.5)

P art I d escrib es the structure and functions 

of CONET. In general, CO NET has not functioned 

satisfactorily. In response to a decree to sim ­

plify adm inistrative chores through the decentralization of a part of its activities (e.g., more 

autonomy to the schools), a new organizational 

structure was recommended. Charts are included to show the actual structure and the projected structure.

P art II re fe rs to the structure and functions 

of the diverse training establishm ents: (1) cente rs to train qualified w orkers (2) schools to 

train technicians (3) special cou rses for advanced apprenticeship and (4) m ission s to train 

artisan s and fa rm e rs.

P art III covers manpower requirem ents and 

training needs. A survey of establishm ents using 

a different base and coverage from previous 

studies of manpower was conducted. D etails of 

the survey are provided, and the resu lts are used 

to estim ate apprentice training and technical 

training relative to needs of industry. The d istribution of training institutions by educational 

levels and geographic sectors also is analyzed. 

Recommendations are based on these analyses.

F irst stage p rio rities deal with the expansion and improvement of training institutions. 

Second stage covers employment service functions which place people in jobs and determine 

needs of industry. Third stage d escrib es sp ecific details of further refinement to provide a 

broader base for institutional training.

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Federal Reserve Bank of St. Louis
A m erican Republics 

Bolivia

Organization of the Employment Service and the Development of a 

Labor Market Information Program 

(In Spanish; 1959; 33 pages)

ILO Report to the Government of Bolivia; 

O IT /T A P /B olivia/R .5; William H. Mason (United Kingdom)

A description of Employment Service activities in Bolivia.

The m ission ’ s objective was to aid the 

government in developing the m easu res necessa ry to obtain reliable and current information on 

the manpower situation in Bolivia. However, the 

expert had to dedicate a considerable part of 

his work to the general organization of the 

Employment Service.

The first practical manifestation of an Em ­

ployment Service was a decree published April 

4, 1945. The decree called for eight offices, but 

only one was established in L a P az. Very little had 

been accom plished up to the tim e of the m ission.

Several other offices were created in March 

1958. Their principal function was to place unemployed mine and factory w orkers in public 

works program s. The immediate need was to 

establish procedures to effect such placement. 

Development of the Service as an instrument to

carry out a policy of full employment was to come 

later. Job m arket information is related intim ately to such development. The m ost urgent 

information needs are listed.

Included in the report are evaluations of 

office installations, b rief descriptions of staff 

duties, and comments on staff recruitm ent and 

training. The m ission outlined procedures to be 

followed in the next few years and commented 

that much work is n ecessary to assu re the continued functioning and future growth of the se rv ice ,

Technical recommendations call for a sytem - 

atic program of em ployer contacts, reports on 

job m arkets, and a plan for long-term manpower 

utilization. Those of an adm inistrative nature 

cover budget allocations, office and equipment, 

organization, and personnel.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Bolivia

Survey of the Comibol Mines 

(1964; 7 pages plus tables and charts)

Edward L. Omohundro, USAID/Bolivia Manpower Division

D escription of the resu lts of the first attempt by USAID 

to gather and evaluate labor force data on the nationalized 

m ines.

Information collected in the survey of mines 

included employment and occupational trends for 

each operating mine and the employment history 

of w orkers recently laid-off. An analysis of unemployed and discharged m iners, and interview 

respon ses from the m anagers of the operating 

m ines are presented in detail.

Employment data on Comibol mines came 

from the Social Security Office, USAID Controlle r ’ s Office, and the Economic Section of the 

Am erican Em bassy. These data are not con sistent, but they do reflect employment changes over 

tim e even if their levels of employment do not 

agree.

Information on the occupational distribution 

of employment cam e from the Social Security 

Office for the third quarter of 1963. The occupations were coded according to the U.S. Dictionary of Occupations. No attempt was made 

to obtain information on wages. Nam es of laidoff m iners were obtained from various sources 

and intensive interviews were held with these 

people. The resu lts of these interviews are analyzed in an unnumbered section of this report.

Questionnaires requesting information on 

employment, surplus w orkers, plans for layoffs, 

reason s for lay-offs, etc., were sent to the manag ers of Comibol m ines. The report warns that 

responses to these questions may not reflect the 

views of central offices.

About 80 pages of this report are devoted to 

statistics and an analysis of employment and 

related information for each of the Comibol 

m ines.

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Federal Reserve Bank of St. Louis
Am ercian Republics 

Bolivia

Manpower A ssessm en t Planning 

(In Spanish; 1964; 58 pages)

ILO Report to the Government of Bolivia; 

OIT/O’T A /T A P /B olivia/R .9; Dr. Sanford Cohen, University of Michigan

A review of available manpower information and the development of a manpower planning organization.

Bolivia’ s first national economic and social 

development plan covered the 10-year period

1962 to 1971. This document was m ore of a 

declaration of objectives than a plan of action. 

Subsequently, a 2-year plan (1963-64) was p re ­

pared to rem edy som e of the immediate deficiencies of the long-term plan. The preparation of 

the next 2-year plan (1965-66) was in the p re ­

lim inary stage. Because of lack of manpower 

data, both short-term plans were delayed in 

presentation. The National Secretariat for Planning and Coordination was established in mid1963 to develop these plans.

The ILO m ission examined these separate 

plans to identify the manpower role in economic 

development. Aside from specifying the objective of creating 60,000 new job opportunities 

annually, no mention of manpower was made in 

the 10-year plan or in the 2-year plans. Very 

few data were available for an alysis. The latest 

census of population was for 1950 and all projections were made from this b ase. A labor force

sam ple survey was conducted in 1963 but data 

from this source were not yet available. P re ­

lim inary estim ates from this survey indicated an 

unemployment rate of 5 percent, m ost of whom 

were new w orkers.

The ILO consultant, a member of the CE PAL 

group, worked with the M inistry of Planning and 

the manpower section of the M inistry of Labor. 

He recommended the creation of a central manpower planning section in the M inistry of Planning and the conversion of the regional employment serv ice offices, which have been virtually 

inactive, to manpower evaluation offices. These 

recommendations and others regarding organization are given in detail.

The m ajor portion of the report is an annex 

representing a special report to the National 

Secretariat for Planning and Coordination. The 

topic evaluates the employment situation and 

problem s of manpower planning. This report 

coordinates available data on manpower and 

attem pts to analyze needs by economic sector.

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Federal Reserve Bank of St. Louis
A m erican Republics 

Bolivia

Bolivian Apprenticeship Program and the Highway Training P roject

(1965; 11 pages)

Archie G. Beaubien, AID Apprenticeship Adviser

A review of the experim ental w orker-training program s 

included in construction contracts and the modernization 

of the apprenticeship program .

The highway contract training proposal app e a rs to be desirable and worthy of a trail run 

as an experim ent to provide industrial training 

not otherwise available to unskilled w orkers. To 

implement this proposal, the following suggestions are made: the contractor should (1) hire 

a training director and several job instructors; 

(2) construct and equip a training center; and (3) 

establish a ratio of apprentices to skilled worke r s . Specific recommendations regarding the 

selection and training of apprentices also were 

made.

Apprenticeship in Bolivia is presently dormant. Sections of the labor code refe r to apprenticeship. An effort was made to revam p the law 

in late 1950’ s, but it foundered in the Labor 

M inistry. An interest in the needs for an apprenticeship program will be reviewed a s soon as 

industrial projections and manpower training 

needs are fully a sse sse d . The consultant d isc u sse s som e of the internal problem s of getting 

a training program started.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Bolivia

Manpower Development in the M inistry of Labor 

(1963-1965; 4 pages)

DOLITAC 1/ Staff Paper No. 19; Edward L.Omohundro, Manpower A dviser

Recommendations for the establishm ent of a Manpower 

Division in the M inistry of Labor.

The Manpower Division was to have a m ajor 

role in organizing and managing local and national employment m arkets. This Division was 

expected to provide information on labor supply 

and demand, by occupation and industry, for each 

significant local job m arket. It was to work 

closely with all other agencies involved in manpower development planning.

The consultant assiste d in strengthening the 

statistical and research branch of the Manpower 

Division. From AID funds, six people were em ­

ployed and $5,000 worth of office equipment was 

purchased. In addition, several m em bers of the 

staff received in -service training; and two mem ­

b ers attended the labor and price statistics sem ­

inar in Puerto Rico. The greatest obstacle in the 

research branch, however, has been the complete 

lack of coordination between the central office of 

the Manpower Division and the eight local 

offices.

It was recommended that continuing technical 

assistan ce be provided the Manpower Division 

and that the employment m arket information program be continued.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

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Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

B o liv ia

A F e a s i b i li t y A s s e s s m e n t o f H u m an R e s o u r c e 

D e v e lo p m e n t P la n n in g in B o liv ia 

(1 9 6 5 ; 23 p a g e s )

D o n a ld P . S a n d e r s , A ID M a n p o w er C o n su lta n t (O hio S ta te U n iv e r sity )

D e s c r ip t io n o f th e p r o b le m s o f h u m an r e s o u r c e d e v e lo p ­

m e n t, th e c u r r e n t m a n p o w e r sit u a t io n in B o liv ia , an d 

r e q u ir e m e n t s f o r e ffe c t iv e m a n p o w e r p la n n in g .

A s u m m a r y o f th e v a r i o u s p r o b le m a r e a s o f 

m a n p o w e r d e v e lo p m e n t in c lu d e s s t a t e m e n t s on 

th e r u r a l / u r b a n s o c io e c o n o m ic c le a v a g e , lo w 

p r o d u c tiv ity an d u n d e re m p lo y m e n t, e m ig r a tio n 

o f s k i l l s , i l l i t e r a c y , an d th e e d u c a tio n a l s y s t e m .

B o li v i a ’ s m a n p o w e r a c t i v i t i e s a r e d ir e c t e d 

to w a r d r u r a l e d u c a tio n , c o m m u n ity d e v e lo p m e n t, 

a g r i c u l t u r a l e x te n s io n , an d p u b lic h e a lth ; b u t 

v e r y lit t le h a s b e e n a c c o m p lis h e d . T h e 1 0 - y e a r 

p la n an d th e 2 - y e a r p la n s a r e in a d e q u a te f o r 

m a n p o w e r d e v e lo p m e n t. (S e e IL O r e p o r t R .9 ).

C o o rd in a tio n b etw e e n in d iv id u a l p la n n in g a - 

g e n c ie s an d b e tw e e n p la n n in g an d im p le m e n tin g 

a g e n c ie s i s n ot e f f e c t iv e . In a d d itio n to th e 

E d u c a tio n an d H u m an R e s o u r c e D e v e lo p m e n t 

S e c tio n o f th e M in is tr y o f P la n n in g , t h e r e a r e 

a l s o a P la n n in g S e c tio n o f th e M in is tr y o f E d u ­

c a tio n an d an O ffic e o f U n iv e r s it y D e v e lo p m e n t 

a t th e U n iv e r s it y o f B o liv ia . T h e E H R D s e c t io n 

o f th e M in is tr y o f P la n n in g a p p a r e n tly c o o r d in a t e s a ll g r o u p s b u t s o m e w o rk h a s a lr e a d y b e e n 

d o n e w ith ou t a n y c o o r d in a tio n o r c o n s u lta tio n .

E d u c a tio n a l a c t i v i t i e s s e e m to h a v e b e e n c o o r d in a te d w ith th e N a tio n a l C o u n c il o f E d u c a tio n a l 

C o o rd in a tio n .

A s e r i o u s d e fic ie n c y o f s t a t i s t i c a l d a ta and 

in fo r m a tio n on m a n p o w e r an d e d u c a tio n e x i s t s . 

T h e a b s e n c e o f t h e s e d a ta p r e v e n t s an a d e q u a te 

a s s e s s m e n t o f th e c u r r e n t an d fu tu r e situ a tio n .

S p e c ia l p r o b le m s in e d u c a tio n in c lu d e th e 

p o o r q u a lity o f t e a c h e r s , the h ig h w a s ta g e o f 

stu d e n ts a t a ll e d u c a tio n a l l e v e l s , th e p a u c ity o f 

s c h o o ls in th e r u r a l a r e a s , an d in a d e q u a te f a ­

c i l i t i e s to t r a in p e o p le .

T h e id e a l c o n d itio n s u n d e r w h ich h u m an r e ­

s o u r c e d e v e lo p m e n t p la n n in g sh o u ld b e c o n d u c te d 

a r e d e s c r ib e d . T e c h n ic a l a s s i s t a n c e sh o u ld s e e k 

th r e e m a in o b je c t iv e s to d e v e lo p h u m an r e ­

s o u r c e s : (1) to e n c o u r a g e c o o p e r a tio n an d c o o r ­

d in a tio n a m o n g p la n n in g a g e n c ie s ; (2) to p r o v id e 

r e s o u r c e s f o r d a t a c o lle c t io n an d a n a l y s i s ; an d 

(3) to p r o v id e te c h n ic a l s k i l l s an d e x p e r ie n c e 

w h ich w ill in s u r e th e t e c h n ic a l v a lid ity o f th e 

e f f o r t . D e t a ils o f how th e s e o b je c t iv e s sh o u ld b e 

c a r r i e d o u t a r e p r o v id e d .

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A m e r ic a n R e p u b lic s 

B o li v i a

R e v ie w o f D a ta A v a ila b le in B o liv ia 

R e la tin g to P o p u la tio n an d L a b o r F o r c e 

(1 9 6 7 ; 33 p a g e s )

Jo h n H . L in to n , M a n p o w er A d v is e r , H u m an R e s o u r c e s D iv is io n , U S A I D /B o liv ia

A n a ly s is o f p o p u la tio n an d la b o r f o r c e s t a t i s t i c s an d 

p r o je c t io n s f r o m v a r i o u s s o u r c e s .

C u r r e n t an d r e li a b l e d a t a on th e p o p u la tio n 

an d la b o r f o r c e in B o liv ia a r e n e e d e d a s a b a s e 

to f o r m u la t e p la n s an d p r o g r a m s an d to p r e p a r e 

p r o je c t io n s . T h e m o s t r e c e n t c e n s u s w a s ta k e n 

in 1950 an d a new o n e i s s c h e d u le d f o r 1 9 6 8 .

P o p u la tio n D a ta

T h e 1950 C e n s u s o f P o p u la tio n e n u m e r a te d 

2 .7 m illio n p e o p le . A d ju stm e n ts f o r u n d e rc o u n t 

an d f o r a c a lc u la t e d c o e ffic ie n t o f e r r o r r e s u lt e d 

in a n ew to ta l o f o v e r 3 m illio n p e o p le . D u r in g 

th e 1 9 5 0 ’ s , th e a n n u al r a t e o f g ro w th w a s 1 .4 

p e r c e n t , w e ll b e lo w th e a v e r a g e r a t e o f g ro w th 

o f 2 .3 p e r c e n t e x p e r ie n c e d in o th e r Sou th A m e r ­

ic a n c o u n t r ie s .

In 1 9 6 3 , u n d e r U .N . s p o n s o r s h ip , a s a m p le 

h o u se h o ld s u r v e y w a s m a d e . P o p u la tio n w a s 

e s t im a t e d to b e n e a r ly 3 .1 m illio n p e o p le ; n e a r ly 

2 0 p e r c e n t liv e d in u rb a n a r e a s .

L a b o r F o r c e D a ta

T h e 1 9 5 0 c e n s u s in d ic a t e s th a t a b o u t o n e - h a lf 

o f th e p o p u la tio n i s e c o n o m ic a lly a c t iv e . T h e

a c tu a l p r o p o r tio n i s p r o b a b ly lo w e r b e c a u s e 

th e “ g a in fu l w o r k e r * c o n c e p t in c lu d e s m a n y 

m a r g in a lly e m p lo y e d , su c h a s p a r t - t i m e s t r e e t 

v e n d o r s an d u n p a id f a m ily w o r k e r s on f a r m s . 

T h e 1963 s a m p le h o u se h o ld s u r v e y i n d ic a t e s 

a la b o r f o r c e p a r tic ip a t io n r a t e o f a ro u n d 40 

to 45 p e r c e n t o f to ta l p o p u la tio n .

A b ou t 72 p e r c e n t o f th e la b o r f o r c e w o rk e d 

in a g r ic u lt u r a l a c t i v i t i e s , a c c o r d in g to th e 1950 

c e n s u s . B y 1 9 6 3 , th is f ig u r e i s e s t im a t e d to h a v e 

d r o p p e d to 67 p e r c e n t. S h o r t - t e r m p r o je c t io n s 

o f la b o r f o r c e a c t iv ity , b y in d u s tr y an d o c c u p a ­

tio n , w e r e m a d e b y U SA ID an d o th e r g r o u p s .

S k il l s L e v e l s o f th e L a b o r F o r c e

F e w d a ta a r e a v a ila b le f o r a n a l y s i s o f s k i l l 

l e v e l s , e s p e c i a ll y f o r m id d le - le v e l s k i l l s su c h 

a s c r a f t s m e n in th e c o n s tr u c tio n in d u s tr y . T h e s e 

s k i l l s r e q u ir e p r i o r t r a in in g an d e x p e r ie n c e to 

q u a lify a t th e jo u rn e y m a n le v e l. A b se n c e o f o c ­

c u p a tio n a l s k i l l d a ta m a k e e s t im a t in g an d p la n ­

n in g o f fu tu r e t r a in in g n e e d s d iffic u lt.

82

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

B o liv ia

N a tio n a l T r a in in g E s t a b lis h m e n t s in V e n e z u e la an d 

C o lo m b ia an d t h e ir R e le v a n c e to B o liv ia 

(1 9 6 7 ; 19 p a g e s )

Jo h n H . L in to n , M a n p o w e r A d v is e r , H u m an R e s o u r c e s D iv is io n , U S A I D /B o liv ia

D e s c r ip t io n o f f e a t u r e s o f o th e r L a t in A m e r ic a n t r a in in g 

c e n t e r s w h ich m ig h t u s e f u lly b e a d o p te d in B o liv ia .

T h e v o c a tio n a l t r a in in g in s titu tio n s in C o lo m ­

b ia (S E N A ) an d V e n e z u e la (IN C E ) w e re c r e a t e d 

in r e s p o n s e to th e in c r e a s i n g le v e l o f in d u s t r ia liz a tio n in th o s e c o u n t r ie s an d a d e m a n d f o r 

g r e a t e r an d h ig h e r d e g r e e o f s k i l l s in th e la b o r 

f o r c e . T h e s e in s titu tio n s a r e s i m i l a r in c o n c e p t 

an d o r g a n iz a t io n . F o r e x a m p le , th e y a r e a u to n ­

o m o u s t r a in in g in s titu tio n s r e m o v e d f r o m th e 

r e g u l a r e d u c a tio n a l s y s t e m an d th e y a r e s u p ­

p o r t e d b y a s p e c ia l t a x le v ie d on p a y r o l ls . E a c h 

o r g a n iz a t io n i s d e s c r i b e d s o th a t c o m p a r is o n s 

m a y b e m a d e an d th e q u a lity o f th e p r o g r a m s 

m a y b e o b s e r v e d .

O b s e r v a t io n s

D e v e lo p m e n t o f t r a in in g in s titu tio n s s i m i l a r 

to t h o s e o f IN C E an d S E N A w ill r e q u ir e m o r e 

an d d iffe r e n t t y p e s o f in d u s tr y in B o liv ia b e fo r e 

d e m a n d w a r r a n t s e x p e n d itu r e s f o r s u c h s c h o o ls .

T h e E l A lto ( L a P a z ) S c h o o l w a s d e v e lo p e d in 

r e s p o n s e to d e m a n d s t im u la t e d b y i n c r e a s e d 

a c t iv ity in c o n s tr u c tio n . It i s h o p e d , h o w e v e r, 

th a t n ew d e m a n d fo r o th e r s k i l l s c a n u lt im a t e ly 

b e m e t b y im p r o v e d v o c a tio n a l t r a in in g in p u b lic 

an d p r iv a t e sc h o o l s y s t e m s .

T h e IN C E c o n s tr u c tio n tr a in in g c e n t e r a t 

P e t a r e h a s c e r t a in f e a t u r e s w h ich m ig h t b e 

a d a p te d f o r th e E l A lto ( L a P a z ) S c h o o l; t h e s e 

f e a t u r e s in c lu d e s p a c e a r r a n g e m e n t f o r e a c h 

t r a d e , e m p h a s is on h an d t o o ls , t e a c h e r t r a in in g 

c o u r s e s f o r i n s t r u c t o r s .

T h e E l A lto lo n g - r a n g e p r o g r a m i s to p r o v id e 

t r a in in g f o r c u r r e n t e m p lo y m e n t d e m a n d in th e 

L a P a z a r e a . T h is w ill r e q u ir e m o r e d a t a on the 

la b o r f o r c e an d on la b o r r e q u ir e m e n t s . S u ch d a ta 

a r e c o lle c t e d b y S E N A (C o lo m b ia ) w h ich h a s i t s 

ow n s t a t i s t i c a l d e p a r tm e n t. E v e n tu a lly , t h is ty p e 

o f jo b m a r k e t r e s e a r c h c a p a b ility sh o u ld b e d e ­

v e lo p e d in B o liv ia , p e r h a p s in th e M in is tr y o f 

L a b o r .

83

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

B r a z i l

S a m p lin g an d O th e r S t a t i s t i c a l A c t iv it ie s in B r a z i l , 1 9 5 6 -5 9 

(1 9 6 0 ; 11 p a g e s )

T h o m a s B . J a b in e , A ID S a m p lin g A d v is e r

In tro d u c tio n o f s a m p lin g te c h n iq u e s an d d a t a p r o c e s s i n g 

to th e B r a z i l ia n In stitu te o f G e o g ra p h y an d S t a t i s t i c s .

T h e c o n s u lta n t w a s a s s ig n e d to w o rk w ith th e 

B r a z i l ia n In stitu te o f G e o g ra p h y an d S t a t i s t i c s , 

(IB G E ) to s u g g e s t p o s s ib l e a p p lic a t io n s o f s a m ­

p lin g te c h n iq u e s f o r 1960 c e n s u s . T h e IB G E i s 

th e F e d e r a l G o v e rn m e n t’ s c e n t r a l s t a t i s t i c a l 

a g e n c y .

D e t a ils o f th e v a r io u s a c t i v i t i e s r e la t in g to 

s a m p lin g and to d a t a - p r o c e s s i n g s y s t e m s a r e

d e s c r ib e d . A s u m m a r y o f a c c o m p lis h m e n t s in 

e a c h to p ic i s l is t e d . R e c o m m e n d a tio n s a r e m a d e 

f o r co n tin u in g th e p r o g r e s s a lr e a d y m a d e b y c o n ­

su lta n t a s s ig n m e n t s in s p e c if i c f ie l d s an d b y 

p a r tic ip a n t t r a in in g o f c o m p u te r p r o g r a m m e r s 

and o th e r s p e c ia l i z e d f ie l d s .

84

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

B r a z i l

S u m m a r y R e p o r t o f M an p o w er C o n su lta n t to USAED B r a z i l 

(1 9 6 3 ; 5 p a g e s an d a tta c h m e n ts )

T h e r o n J . W illia m s , A ID M a n p o w er C o n su lta n t

D e s c r i b e s th e n e e d f o r m a n p o w e r a s s e s s m e n t an d p la n ­

n in g c a p a b ility an d m a k e s r e c o m m e n d a tio n s to a s s i s t in 

r e c t if y in g d e f ic ie n c ie s .

T h e N e e d f o r M a n p o w e r A s s e s s m e n t an d P la n n in g

A c r i t i c a l p e r io d w a s r e a c h e d in 1 9 6 2 -6 3 w hen 

B r a z i l e x p e r ie n c e d in d u s t r ia l u n e m p lo y m e n t f o r 

th e f i r s t tim e fo llo w in g a d e c a d e o f e x p a n sio n . 

E c o n o m ic d e v e lo p m e n t p la n n in g r e q u ir e d r e a p ­

p r a i s a l o f e m p lo y m e n t p o te n tia l. T h e new T h r e e 

Y e a r P la n d id n ot r e c o g n iz e m a n p o w e r r e s o u r c e s 

a s a f a c t o r in in d u s tr ia liz a t io n c a p a b ility . U .S . 

a s s i s t a n c e to B r a z i l d id n ot p r o v id e f o r , an d w a s 

n ot e q u ip p e d to f i l l , t h is c r u c i a l g a p in B r a z i l 's 

p la n n in g . B r a z i l itself w a s n ot t e c h n ic a lly 

e q u ip p e d f o r m a n p o w e r a s s e s s m e n t an d p la n n in g , 

a lth o u g h m a n y o f f i c i a l s h ad r e a l i z e d th e n e e d 

an d h ad r e q u e s t e d t e c h n ic a l a s s i s t a n c e .

R e c o m m e n d a tio n s

T h e p r im a r y r e c o m m e n d a tio n i s th a t a c o m ­

p e te n t m a n p o w e r c o n s u lta n t b e a s s ig n e d to U SA ID 

on a f u ll- t im e b a s i s . T h e p r o g r a m r e c o m m e n ­

d a t io n s , a s fo llo w s , a r e m a d e w ith th e q u a l if i c a ­

tio n th a t th e a ttitu d e an d th e c o m p e te n c e o f th e 

U SA ID m is s io n m u s t b e im p r o v e d s ig n ific a n tly 

b e f o r e an y r e c o m m e n d a tio n s c a n b e in itia te d 

e f f e c t iv e ly .

A n O ffic e o f M a n p o w e r P la n n in g an d D e v e lo p ­

m e n t sh o u ld b e e s t a b lis h m e d to p r o v id e in f o r m a ­

tio n , a d v ic e , an d g u id a n c e to a ll p la n n in g a g e n c ie s 

on h u m an r e s o u r c e s . It sh o u ld in c lu d e a s m a ll 

s t a t i s t i c a l an d r e s e a r c h s e c t io n to o r g a n iz e an d 

in t e r p r e t , in m a n p o w e r r e s o u r c e t e r m s , th e d a ta 

c o lle c t e d b y v a r i o u s a g e n c ie s .

A N a tio n a l B u r e a u o f L a b o r S t a t i s t i c s sh o u ld 

b e e s t a b lis h e d to c e n t r a liz e an d c o o r d in a te r e ­

s e a r c h an d d a t a - c o lle c t io n a c t i v i t i e s o f v a r io u s 

a g e n c ie s .

A N a tio n a l E m p lo y m e n t S ervice S y s t e m 

sh o u ld b e e s t a b lis h e d t e m p o r a r ily u n d e r th e p r o ­

p o s e d O ffic e o f M a n p o w er P la n n in g an d D e v e lo p ­

m e n t, an d e v e n tu a lly t r a n s f e r r e d to th e D e p a r t ­

m e n t o f L a b o r . (S e e R o b e r t C la y r e p o r t f o r d e t a ils 

o f e m p lo y m e n t s e r v i c e fu n c tio n s.)

85

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

B r a z i l

T e c h n ic a l L a b o r P r o g r a m — E n d - o f - T o u r R e p o r t 

(1 9 6 3 ; 7 p a g e s )

R o b e r t J . C la y , A ID L a b o r T e c h n ic a l O ffic e r

D e s c r i b e s th e o b je c t iv e s o f a p r o p o s e d te c h n ic a l la b o r 

p r o g r a m an d th e w o rk o f th e c o n s u lta n t to d e v e lo p su c h 

a p r o g r a m .

T h e o b je c t iv e s o f th e p r o g r a m w e r e to p r o ­

v id e a s t r a t e g y o f h u m an r e s o u r c e s d e v e lo p m e n t 

an d u tiliz a tio n th ro u g h m a n p o w e r a n a l y s i s , p la n ­

n in g , an d o r g a n iz a tio n ; to p r o v id e an e m p lo y m e n t 

s e r v i c e to s e r v e a s th e p r in c ip a l su p p o r t a g e n c y 

f o r m a n p o w e r s t r a t e g y ; an d to a s s i s t in a p la n 

w h ich v i s u a l i z e s a d o m e s t ic a llia n c e f o r p r o g ­

r e s s w h e re b y th e S t a t e s o f S a o P a u lo an d G u a n a - 

b a r a e x te n d th e b e n e fit s o f th e p r o g r a m to o th e r 

S t a t e s .

R e c o m m e n d a tio n s

1. W hen c o n d itio n s w a r r a n t , a c o m p le te t e c h ­

n ic a l la b o r p r o g r a m sh o u ld b e in itia te d an d c a r ­

r i e d ou t w ith in th e fr a m e w o r k o f an in d ep en d en t 

o r g a n iz a t io n a l u n it.

2 . A m a n p o w e r p r o g r a m w h ich in c lu d e s th e 

d e v e lo p m e n t o f a n a tio n a l e m p lo y m e n t s e r v i c e 

a s a s u p p o r t a g e n c y to im p le m e n t p la n n in g an d 

a n a l y s i s o f m a n p o w e r r e q u ir e m e n t s on a co n ­

tin u o u s b a s i s sh o u ld b e p r o v id e d . T h e a g e n c y

sh o u ld b e s e m ia u to n o m o u s , an d tw o m o d e l o ff i c e s sh o u ld b e e s t a b lis h e d in it ia lly in R io de 

J a n e ir o an d S a o P a u lo .

3 . U SA ID sh o u ld a s s i s t b y p r o v id in g (a) a 

la b o r l e a d e r p a r tic ip a n t t r a in in g p r o g r a m ; (b) 

a w o r k e r - e d u c a tio n a d v is e r to h e lp d e v e lo p 

w o r k e r - e d u c a tio n p r o g r a m s ; an d (c) a f u ll- t im e 

la b o r te c h n ic ia n to h e lp S U D E N E (the S u p e r in ­

te n d e n c y f o r th e D e v e lo p m e n t o f th e N o rth E a s t ) 

d e v e lo p a m a n p o w e r r e s e a r c h an d s t a t i s t i c s p r o ­

g r a m an d to a s s i s t S E N A I (the N a tio n a l S e r v ic e 

o f In d u s t r ia l A p p r e n tic e sh ip ) an d o th e r o r g a n i z a ­

t io n s to t r a in th e ir p e r s o n n e l in th e te c h n iq u e s 

n e e d e d to d e te r m in e m a n p o w e r s k i l l n e e d s an d 

t r a in in g r e q u ir e m e n t s .

4 . E m p lo y m e n t s e r v i c e w o rk sh o u ld in it ia lly 

e m p h a s iz e in d u s tr ia l s e r v i c e s , s u c h a s o c c u p a ­

tio n a l a n a l y s i s an d jo b e v a lu a tio n u p g r a d in g 

m id d le m a n a g e m e n t, an d d e v e lo p in g a jo b m a r k e t 

an d s t a t i s t i c s p r o g r a m .

8 6

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

B r a z i l

M an p o w er P la n n in g R e p o r t 

(1965; 14 p a g e s )

D O L IT A C 1 / S t a ff P a p e r N o . 1; R a y m o n d L a r s o n , M an p o w er A d v is e r

D e s c r i b e s th e p r o b le m s an d n e e d s in m a n p o w e r an d m a k e s 

r e c o m m e n d a tio n s f o r U .S . a s s i s t a n c e .

T h e o b je c t iv e o f th e a s s ig n m e n t w a s to d e t e r ­

m in e the ty p e s o f a s s i s t a n c e n e e d e d to c o lle c t 

an d u s e d a t a in a n a ly z in g m a n p o w e r r e s o u r c e s 

an d r e q u ir e m e n t s a s th e y r e l a t e to B r a z i l ’ s 

e c o n o m ic an d s o c i a l d e v e lo p m e n t, an d to p r e ­

p a r e a w o rk p la n f o r s u c h a s s i s t a n c e .

M a jo r M a n p o w e r P r o b l e m s an d N e e d s , an d 

S u g g e s t e d A p p r o a c h e s to t h e ir S o lu tio n

1. Im p r o v e m e n t o f th e D e c e n n ia l C e n s u s i s 

n e e d e d .

2 . P r o je c t io n s o f o c c u p a tio n a l r e q u ir e m e n t s 

a r e n e e d e d .

3 . C u r r e n t in fo r m a tio n on p o p u la tio n , m o b ility , an d la b o r f o r c e c h a r a c t e r i s t i c s i s n e e d e d on 

a r e g io n a l b a s i s , a s w e ll a s e a r n in g s , e m p lo y ­

m e n t c o n d itio n s , an d m u ltip le jo b - h o ld in g in k e y 

o c c u p a tio n s .

4 . A N a tio n a l C it iz e n s M a n p o w er A d v is o r y 

C o u n c il i s n e e d e d to g u id e an d c o o r d in a te l a r g e 

h o u se h o ld s u r v e y s w h ile a w a itin g a d e c is io n on 

r e s p o n s ib i l it y f o r th e n a tio n -w id e h o u se h o ld 

s u r v e y .

5. A S t a t i s t i c a l A d v is o r y P a n e l sh o u ld g u id e 

a n d a d v is e th e M a n p o w er A d v is o r y C o u n c il.

6 . B r a z i l ’ s u n i v e r s i t ie s sh o u ld b e in v o lv e d 

in B r a z i l ’ s m a n p o w e r p r o g r a m s . F o r e x a m p le , 

a M a n p o w er C e n te r a t th e U n iv e r s it y o f B a h ia i s 

p la n n e d to c o o r d in a te f o r th e S a lv a d o r a r e a a ll

o f th e g o v e rn m e n t, p r iv a t e , an d u n iv e r s it y - 

s p o n s o r e d m a n p o w e r a c t i v i t i e s .

7. A ID sh o u ld e n c o u r a g e S E N A I to b e m o r e 

e ffe c t iv e in o r g a n iz in g e m p lo y m e n t s e r v i c e a c ­

t iv it i e s f o r i t s t r a i n e e s an d f o r o t h e r s , an d sh o u ld 

a s s i s t th e m in d e v e lo p in g in fo r m a tio n on la b o r 

d e m a n d in g e n e r a l an d f o r s p e c if ic o c c u p a tio n s .

8 . T h e L a b o r M in is tr y sh o u ld b e a s s i s t e d in 

la w e n fo r c e m e n t.

9 . C o m m u n ic a tio n s b e tw e e n e m p lo y e r s an d 

s c h o o ls sh o u ld b e d e v e lo p e d .

R e c o m m e n d a tio n s f o r U .S . A s s i s t a n c e

1. T h e A ID H u m an R e s o u r c e s O ffic e sh o u ld 

h a v e a m a n p o w e r a d v is e r to s u p e r v i s e an d c o ­

o r d in a te a ll m a n p o w e r a c t i v i t i e s .

2 . A U .S . te c h n ic ia n sh o u ld b e se n t to th e 

P la n n in g M in is tr y to a s s i s t in m a n p o w e r p r o je c ­

tio n s an d to p la n e s t a b lis h m e n t s u r v e y s .

3. T h e U .S . sh o u ld su p p ly a c e n s u s s p e c i a l i s t 

to a id in a m a jo r o v e r h a u l o f th e c e n s u s . If th is 

t a s k h a s b e e n s t a r t e d a lr e a d y , th en w o rk on a 

s e r i e s o f s t u d ie s on e a r n in g s , f r in g e b e n e f it s , 

an d o th e r c o n d itio n s o f e m p lo y m e n t sh o u ld b e 

a s s i s t e d .

1 / U .S . D e p a r tm e n t o f L a b o r In te r n a tio n a l 

T e c h n ic a l A s s i s t a n c e C o r p s .

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Federal Reserve Bank of St. Louis
Am erican Republics 

B razil

An Overview of Industrial Education in B razil 

(1965; 15 pages)

DOLITAC 1/ Staff Paper No. 30, Joshua Levine and John Walsh

A sse s se s the need for industrial education in B razil, 

evaluates AID efforts in developing a program , identifies 

the problem a re a s, and m akes recommendations for

further AID assistan ce.

In the absence of accurate data, requirem ents 

for trained manpower can only be estim ated. 

Using the experiences of other countries, the 

consultants estim ate that the annual number of 

new entrants requiring skill training is 160,000. 

However, only half of this number is currently 

being trained each year. Therefore, a substantial 

change is needed in existing training institutions 

if they are to meet B ra z il’ s manpower needs. A 

short description of each institution is provided.

USAID efforts to develop industrial education started in 1946 when CBAI (Com issao 

B razileiro-A m ericano de Educacao Industrial) 

was created. USAID contributions since that 

tim e appear to have been effective in bringing 

about useful change, but much still rem ains to 

be done.

The problem a re a s in B raz il’ s industrial educational program fall into these categories:

leadership and direction, planning and development, coordination, financing, staffing, and r e ­

search and evaluation. In these are as the following recommendations are made:

1. The Area Technical Center program 

should be continued and should direct its attention more to meeting industrial manpower needs.

2. A training advisory team should a s s is t 

SENAI to reorient itsp o licie s and p ractices. The 

team should be com posed of a training adm inistrator, four in-plant training ad v isers, three 

industrial apprenticeship ad v isers, a labor force 

analyst, and short-term technical a ssista n ts in 

specialized are a s.

1 / U.S. Department of Labor International 

Technical A ssistan ce C orps.

8 8

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Federal Reserve Bank of St. Louis
Am erican Republics 

B razil

SENAI P roject Review 

(1968; 6 pages)

C harles V. Youmans, AID Manpower Development Adviser

Reviews the SENAI P roject to improve its industrial manpower training program s.

The m ajor purposes of the m ission were to 

improve the effectiveness of SENAI* s industrial 

manpower training p rogram s, to in crease the 

number of trainees 20 percent, to set up a sy stem to collect data, to improve quality of instructo rs, and to develop instructional m aterials.

A manpower survey was planned and im ­

plemented in Sao Paulo. Data have been tabulated 

and a final report will be forthcoming. Industrial 

manpower surveys have been requested in other 

SENAI regions.

A training program for analysts on “occupational analyses for training needs pu rposes” has 

been started.

SENAI suggested five p rio rities for the project team relating prim arily to details of manpower surveys and to specific school program s. 

The re st of the report outlines the p ro g re ss of 

each priority, participant training, counterpart 

development, and detailed v isits to schools and 

training centers.

It was recommended that the SENAI P roject Team be continued at the four-m an level 

and the work be extended to the end of 1970. 

The improvement of industrial manpower training is one of B r a z il’s m ost critical 

needs.

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Federal Reserve Bank of St. Louis
A m erican Republics 

B ritish Honduras

The Manpower Situation in B ritish Honduras 

(1963; 23 pages)

ILO Report to the Government of B ritish Honduras; 

ILO /T A P /B ritish H onduras/R04; V.G. Munne (Great Britain)

A survey of the manpower situation, especially for skilled 

occupations.

Available data to analyze the manpower situation were m eager, The West Indies Population 

Census of 1960 provided some b asic facts on population and labor force but very little on occupations.

Future requirem ents for manpower will be 

a sse sse d more readily after the national economic development plan has been prepared and 

the requirem ents of specific projects within the 

plan can be studied. There appears to be a substantial surplus of labor and, unless a m ajor 

economic expansion is realized, demand in the 

near future is not likely to absorb this surplus.

Since the construction industry is expected 

to have m ost demand for skilled w orkers* the 

expert surveyed nine building contractors and 

other sources to estim ate current employment 

by occupation in the skilled cra fts. Skilled worke r s in occupations concerned with the m aintenance and rep air of equipment and machinery 

were more difficult to estim ate since they are 

employed in sm all numbers among many firm s. 

Indications, however, are that these occupations 

are also in short supply.

Recommendations

1. Obtain technical assistan ce to aid manpower assessm en t and planning.

2. E stablish accelerated training cou rses for 

building trades,

3. P repare and maintain list of estab lish ­

ments, c lassifie d by economic activity.

4. Obtain tabulations of the I960 Population 

Census from Jam aica Tabulation Center.

5. Collect information from all departm ents 

on economic development p rojects affecting the 

manpower situation.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Central A m erica

Human R esources of Central A m erica,

Panama and M exico, 1950-1980 

(1960; 155 pages)

Louis Ducoff, United Nations, Economic Com m ission for Latin A m erica

Comprehensive analysis of Central A m erica’ s demographic situation and its relation to economic development 

and regional economic integration.

Population in Central A m erica, Panam a, and 

Mexico has been expanding faste r than in any 

other region of the world. The average annual 

rate of in crease between 1950 and 1959 was 3.2 

percent. Urban population consisted of about onethird of the total. Age composition of the population, education levels, m arital status, and other 

demographic asp ects of the population are d iscussed.

B ased on the p ast trends of birth and death 

rate s and their projected direction and magnitude in the future, estim ated population to 1980 

is provided for each country according to three 

assum ptions in rates of birth. Labor force is 

projected by regressio n an alysis. Built into these 

projections are certain assum ptions regarding 

the economic goals of each country.

Comparative trends in g ro ss national product 

(1946-1956) indicate that relatively high annual 

growth ra te s were experienced in El Salvador

(5.3 percent), Mexico (6.3 percent), and Costa 

R ica (7.1 percent), resulting in high per capita 

gains. GNP annual growth was lower in other 

countries which had correspondingly lower per 

capita gains. Based on m edium -as sumption 

population projections, GNP growth rate s to 

1980 have to increased 64 percent in Honduras 

and 91 percent in Costa R ica just to maintain 

the 1954-56 per capita re al GNP. This staggering task for Central Am erican countries 

which have lim ited resource appears le s s form idable when other asp ects of the problem are examined. For exam ple, even sm all shifts from 

farm to industrial employment will affect total 

GNP; improved farm ing techniques will in crease 

productivity; educational facilities will provide 

a better prepared work force.

The appendix provides techniques and methods of projections and an alysis, and detailed 

tables on labor force in each country.

91

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Federal Reserve Bank of St. Louis
Am erican Republics 

Central A m erica

Industrial Manpower in Central A m erica and Panama 

Some Issu es and A spects 

(1963; 34 pages)

F ran cis X, Gannon, Manpower A dviser to the Central Am erican Economic 

Integration Secretariat (SIECA)

D escribes existing and potential sources of regional manpower information and suggests adm inistrative machinery 

for setting the manpower plan in motion. Training program s are analyzed in light of technical manpower needs 

in the region.

The manpower aspect of economic integration 

of Central A m erica has lagged behind capital 

investment. Further expansion of the integration movement depends on the role which human 

factors m ust play in both contributing to and 

stim ulating regional integration. So fa r, manpower information and data have been produced 

by national m in istries but have not been coordinated for regional analysis. It is suggested 

that SIECA create a Human R esources Office 

to stim ulate action and long-range coordination 

in manpower an alysis, planning, and utilization 

for the region.

B asic information required for manpower 

an alysis com es from periodic cen suses which 

serve as a base for interim surveys. All Central Am erican countries have or are planning a 

census, but they are lacking in m ost other information so u rces. A study of the supply and 

demand for professional and m iddle-level technical manpower is being conducted by the Central American Superior University Council 

(CSUCA) to determine educational requirem ents 

for the projected labor force. 1/ D iscussed are 

other current and proposed studies such as 

studies of fam ily budgets, vocational training, 

m iddle-level manpower requirem ents.

The m ajor portion of the report concerns 

regional manpower utilization. Manpower development has not kept pace with the switchover 

from artisan sk ills to highly technical sk ills 

required for the changing industrial clim ate. 

P art of the problem resu lts from tension that 

has developed between old and young worke r s and from antiquated methods of teaching. 

It is suggested that more funds be devoted to 

technical education and that clo ser tie s be estab ­

lished between industry and vocational schools. 

A regional uniform apprentice training program , 

including a system of vocational guidance, is proposed. The various national training program s 

are discu ssed to point up the diversity of train ­

ing system s. Coordination needed to stim ulate 

uniformity may very well come through SIECA. 

To bring about overall manpower coordination, a 

Regional Manpower Planning and Development 

Conference to be held in the near future is r e c ­

ommended.

JL/ See Oferta y Demanda RecursosH um anos 

en Centroam erica. 7 volum es, CSUCA, Costa 

R ica, 1966.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Central A m erica

A nalysis of Manpower Services in Central A m erica 

(1966; 54pages)

DO LIT AC ^1/ Staff Paper No. 14; Jennings Lee, Manpower Consultant, 

(Utah State Employment Service)

D escribes available manpower serv ice s in Central Am erica and proposes a regional model of an employment 

organization.

A com parative an alysis of the various national employment se rv ice s was made for the 

use of the Organization of Central Am erican 

States (ODECA) to encourage uniform regulations, sy stem s, and se rv ice s for meeting manpower needs. Information was obtained prim arily 

from interviews with officials of government, 

educational institutions, and industry.

El Salvador has the m ost highly developed 

Employment Service in the region. It is a se c ­

tion organizationally subordinate to the National 

Department of Apprenticeships and has 41 p o sitions on its staff. The Employment Service in 

Guatemala is the le ast developed and the le ast 

adequately staffed in Central Am erica; very few 

serv ice s are offered. Neither N icaragua nor 

Honduras has an Employment Service of any consequence.

A detailed description of the types of serv ices 

provided by an ideal Employment Service Office 

is provided. To implement these se rv ice s, a r e ­

gional model for a manpower serv ice s organization is presented. The model attem pts to coordinate and reconcile the national manpower 

se rv ice s already in existence in El Salvador, 

Costa R ica, and Guatemala. In a few c a se s, the 

proposal may require legislative or adm inistrative action to get started at the national level. 

Regionally, the correlative function would re st 

with ODECA. At some later date, a Central Office for manpower serv ice s could be established 

to interlock adm inistrative ties.

The feasibility of establishing a pilot Em ­

ployment Service Office in C osta Rica was investigated. The organization, functions, and p ersonnel duties are discu ssed for setting up such 

an office coordinated with the activities of National Institute of Apprenticeship (INA). Such an 

office could serve as a regional center for train ­

ing, experim ental work, and leadership for other 

sim ilar offices in Central A m erica. (However, 

the consultant believes that El Salvador is better 

equipped than Costa R ica since El Salvador has 

developed m ost of the essential elem ents of a 

well-rounded Employment Service.)

Among the recommendations made were the 

following:

1. Manpower serv ice s in ROCAP should be 

strengthened and supportive serv ice s provided 

in each country.

2o Full-tim e AID personnel should be a s ­

signed to ODECA to a s s is t in its various functions.

3. Labor and manpower functions should re st 

with one person in country m ission s.

4. Efficiency of DOLITAC team m em bers 

should be improved by continuous language train ­

ing, participation in United States manpower 

sem in ars, and periodic staff meetings of 

DOLITAC m em bers.

1/ U.S. Department of Labor International 

Technical A ssistan ce Corps.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Central A m erica

Improving Manpower Statistics in Central A m erica 

(1967; 25 pages and 4 appendixes)

DOLITAC 1 / Staff Paper No, 56; Sh errill W. Neville, Labor Statistics 

A dviser, (Utah State Employment Service)

Manpower statistics in the region are analyzed to aid the 

Organization of Central Am erican States (ODECA) draft 

plans and program s leading to improved data.

Population projections indicate that the Central A m erican labor force of 4 million in 1960 

will double in size by 1930. The risin g tide of 

jobseekers presents an unprecedented challenge 

for private industry and government to find em ­

ployment for these new w orkers. Solutions 

to this problem of employment creation require 

improved statistical information as guidance. 

This report analyzes available statistics in each 

country (comparative data appear in appendix 

C) and su ggests im provem ents.

Each country must plan for better population 

cen su ses and interim sam ple surveys to provide 

current information. Regional control and financial participation will assu re uniform tim eliness 

and quality for the four statistical p rio rities of 

employment, unemployment, hours, and earnings. Only Panam a provides periodic information 

on total employment and unemployment changes. 

C osta R ica expects to publish these data soon. 

Honduras and El Salvador need funds to effectuate plans. Nicaragua has no information on unemployment. All countries have partial inform ation about w ages and sa la rie s which should be 

made uniform and com plete. P resent knowledge 

of unemployment conditions in Central A m erica 

is weak.

A joint and cooperative regional effort and 

a centralized power of a federal type is needed 

to produce the required employment and wage 

sta tistic s. Only through centralized power will 

the Central Am erican countries arrive at uniform definitions and methods, meet time schedu les, and dissem inate the data. ODECA can fulfill the role of the federal counterpart to the six 

countries, but it needs finances, staff, and U.S. 

recognition. The money might come from a re ­

gional tax, foundation support, or other sou rces.

In sum m ary, ODECA should be encouraged 

to serve a s a central coordinating body to promote and develop in each country a statistical 

program that is uniform, reliable, and timely. 

The M inistries of Labor should employ at le ast 

one high-level, competent econ om ist-statistician to analyze all available data. Household and 

establishm ent sam ple surveys should be initiated 

and developed in each country, and 5-year population censuses should be carried out to obtain 

com parative benchmark data.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Chile

Some Observations on the Chilean Education System 

and its Relation to Economic Growth 

(1963; 20 pages)

Paper for the Conference on the Role of Education in E arly Stages of 

Economic Development, at the University of Chicago 

Rudolph C. Blitz, Vanderbilt University

Some ch aracteristics of the educational system in Chile, 

and the reason s why public education, with all it could 

mean for Chilean economic development, turned out to 

be a failure.

The Educational System

1. Data on the school population from 1940- 

1957 showed that the relative proportion of se c ­

ondary and superior education increased substantially in relation to prim ary education, but 

that the proportion of superior to secondary 

education diminished,

2. The educational pyram id has an extrem ely 

narrow peak; i.e ., only 1.2 percent of those entering prim ary education enter the university,

3. A large proportion of university entrants 

are unprepared to study natural scien ces. Hence, 

the growth of enrollment in engineering and 

science has narrow lim its.

4. The rate of school desertion, especially at 

the early stages of the educational ladder, is 

heavy despite the 40-year-old law of com pulsory 

prim ary education and a tradition of free education for more than a century.

R easons for the High Desertion Rate 

from the Education System

1. Income distribution is uneven and the ru ral 

areas are isolated in Chile.

2. Educational motivation may be weak because of the complete lack of a guild and apprenticeship tradition.

3. A country which has a high birth rate and 

a low life expectancy finds free general education a greater burden than a country which has 

a low birth rate and a high life expectancy.

Concluding Observations

1. Chilean economic development has been 

impeded by feudal values and traditions, esp ecially in the agricultural sector.

2. The proportion of Chilean women in education and the profession s is high. This may 

indicate a stage in development in which women 

are no longer discrim inated against and still 

have the advantage of cheap household help.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Chile

Manpower and Educational Planning in Chile—Prelim inary Study

(1964; 62 pages)

Chile-California Program of Technical Cooperation, Stanford R esearch Institute; 

W illiam J. Platt, A1 M. Loeb, and R ussell G. Davis

Evaluates existing activities in manpower and educational 

planning, projects supply and demand of manpower to 

1970, and recom m ends a m ore efficient manpower planning organization.

General Observations

Educational institutions in Chile offer an im ­

p ressiv e list of sem in ars, cou rses, and workshops to develop middle- and high-level technical 

and management manpower. Regional colleges 

and other training institutions are expected to 

retard m igration to crowded urban are a s.

Several organizations are assem bling manpower data that can form the b a sis for further 

studies. For exam ple, INSORA (Institute of Organization and Administration of the University 

of Chile) is studying the supply and demand of 

graduates of profession al, technical, and administrative fields; and CORFO (National Development Corporation) is studying manpower needs 

by industrial sector.

Manpower Demand

Supplementing INSORA and CORFO efforts, 

a method of determining economic demand for 

educational output was suggested. Data from the 

1960 Census and estim ates of productivity trends 

were projected to 1970 to evaluate manpower 

requirem ents by m ajor industry and occupation.

Educational Supply

Projections of number of graduates at each 

level indicate a shortage of high-level manpower 

supply by 1970. Several recommendations call 

for changes in the educational structure; for example, 2-year colleges instead of 4-year in stitutions; redesign of course content in secondary 

level to aid those term inating their education 

and training.

Manpower Information and Employment Services

Recommendations are outlined for providing 

an effective employment service exchange to 

match job opportunities with available skilled 

manpower.

Organization for Manpower 

and Educational Planning

Recommendations and m ajor structural 

changes are proposed regarding the organization 

and coordination of human reso u rces planning. 

A special unit to carry out this function should 

be established; an Advisory Board would re p re ­

sent various public and private organizations as 

coordinator of policies, plans, and p rojects.

96

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Federal Reserve Bank of St. Louis
Am erican Republics 

Chile

Training and Educational Needs in Chile’ s A gricultural Development

(1965; 8S pages)

C hile-California Program , Stanford R esearch Institute;

William J. Platt, Raymond A. San Giovanni, G. Allen Sherman, and Lloyd Dowler

A study of the problem s of agricultural education as they 

relate to requirem ents of the proposed agrarian reform 

program . Recommendations are made to aid in the p reparation of an agricultural manpower development program .

Data in this report were gathered by conducting personal interviews and by examining 

existing statistical and planning reports. The 

research team participated in m eetings of the 

Advisory Com m ission on Agricultural Education. Other organizations which were helpful were 

the Service of Technical Cooperation (SCT), the 

Institute of Rural Education (IE R), and the Foundation of Rural Life (a private secondary ag ricultural school system ).

Demand for Agricultural Personnel

The Manpower Planning Office of the National 

Development Corporation (CORFO) estim ated 

the demand for 750,000 agricultural personnel in 

1970 based on the assum ption that productivity 

would in crease 3.3 percent per year. In contrast, 

the research team estim ated productivity would 

in crease only 0.8 percent per year. Thus, about 

one million agricultural personnel would be r e ­

quired in 1970.

A ccelerated Skill Training

This type of program concentrates on the 

short-term objective of training skilled and

sem iskilled agricultural personnel. So fa r, the 

SCT has a program in tractor operation and 

rep air. Its long-range plans call for cou rses to 

train farm m anagers, owners, businessm en, and 

w orkers. IER is qualified to a s s is t in ru ral com ­

munity development and skill training p rojects. 

Almost every aspect of ru ral life is embodied in 

IER program s through 23 regional educational 

centers.

Form al Education

The educational system provides the foundation for training by supplying teachers of training institutions. The technical educational level 

(US junior college level) supplies the middlelevel manpower that is of critical importance 

to achievement of Chile’ s agricultural goals. 

The secondary educational level (US high school 

level) su ffers low p restige in the eyes of the 

Chileans, and provides, in general, poor quality 

preparation at a relatively high cost per pupil.

Sections on adult education and on secondary 

and postsecondary agricultural education are 

provided. Recommendations cover all aspects 

of training and education for the ru ral sector, including adm inistration, facilities and equipment, 

educational m aterials, curricula, and teachers.

97

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Federal Reserve Bank of St. Louis
Am erican Republics 

Chile

The Em igration of High-Level Manpower 

The C ase of Chile

Pan Am erican Union: S.G. Olivos (Form er Chilean Am bassador) and 

J.R . P erez (Specialist, Latin Am erican Human R esources Planning Program )

R esults of a survey of Chilean professional manpower 

residing in the United States,

The purpose of the survey of Chilean p ro fessional personnel residing in the United States is 

to provide data on em igration of high-level manpower and, based on the re su lts, to recommend 

b asic m easu res for the solution of the problem .

The survey consisted of a m ail questionnaire 

to a sam ple of the 2,320 university-level profession al Chilean em igrants.

Summary of Findings

1. The greatest number of respondents is 

concentrated in California.

2. The largest number is at the 27- to 37- 

year age level.

3. Most are m arried and have established 

homes in the United States.

4. Fewer than 10 percent become naturalized 

U.S. citizens.

5. Engineering and nursing account for 36 

percent of the total lo ss to Chile. Econom ists 

are next, and law yers are la st.

6. The vast m ajority (80 percent) have p e rmanent U.S. contracts.

7. N early 40 percent of the professional em ­

igrants were university p ro fe sso rs in Chile.

8. S alaries to Chilean p rofession als in the 

United States are high relative to those in 

Chile, but achievement of outstanding positions 

is the exception.

9. P ractically all Chileans hope to return to 

Chile some day.

Recommendations

Short-term : elim inate obstacles which im ­

pede return of em igrants; and establish incentives to facilitate return to Chile. Long-term : 

define clearly the manpower policy in Chile; 

organize a central agency to develop human r e ­

sources; establish a centralized information 

service to re g iste r all profession als; increase 

sa la rie s to retain p rofession als in Chile.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Colombia

Status of ICE TEX 1/ Survey of High Level 

Human R esources in Colombia 

(1963; 17 pages)

William A. Langbehn, AID Manpower Consultant

Reviews p ro g re ss made by ICETEX in the manpower 

reso u rces survey and recom m ends guidelines to com ­

plete the survey.

The Survey Plan

The project, an adaption of the research 

methodology utilized by the Institute Torcuato di 

T elia (Argentina), was divided into four basic 

phases: (1) investigation of preexisting mate rial; 

(2) supply; (3) demand; and (4) conclusions and 

an alysis. The occupational coverage was limited 

to high-level professional and adm inistrative 

personnel. On the supply side, the plan proposed 

to investigate the output of the educational system 

at the 12th grade and above. On the demand side, 

all nonagricultural firm s who have 50 em ployees 

or m ore and all segm ents of government employment were to be surveyed. In the data collection 

for both supply and demand ph ases, the country 

was divided into six zones; each zone had a central research group, generally a university, in 

charge of data collection.

Summary of the Status

Work on the supply sector was well advanced; detailed planning for the analysis was 

completed. Work on the demand phase was on 

schedule; field work of data collection was to 

begin in August 1963. A nalysis of the economic 

development plan, a s the first part of the final 

stage, has been started. Completion was scheduled for m id-1964.

Recommendations

1. E arly assuran ce of adequate financing is 

essential.

2. Recruitment and training of the interviewing staff for the demand phase should be expedited.

3. A Human R esources Coordination Committee should be form ed immediately.

4. The potential lack of cooperation by r e ­

gional universities must be anticipated and, if 

n ecessary, financial aid must be provided.

5. R esearch must be integrated to include 

the census of population and work done by SENA 

(National Apprenticeship Service), the A sso ciation of Colombian U niversities, an d other 

agencies.

6. Immediate commitments and decisions 

m ust be made to p ro cess the demand-phase information.

7. Plans for final analysis and for presentation of the final report should be developed.

8. Followup by a short-term consultant 

should be provided after the data-collection 

phase is completed.

1 / Instituto Colombiano de E specializacion 

Tecnica en el E xterior (Colombian Institute for 

Advanced Training Abroad).

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Am erican Republics 

Colombia

ICETEX J j Survey of High-Level Human R esources in Colombia

(1964; 12 pages)

Gabriel J . Molnar, AID Manpower Consulant

Reviews the p ro g re ss of the ICETEX survey, identifies 

the rem aining problem s, and provides an outline for the 

final report.

Information on the educational output and the 

demand data were not ready for final an alysis, 

although the education-output phase was well 

advanced. The w eaknesses of the survey were 

a s follows: (1) organization and coordination 

were lacking; (2) in many resp e cts, the survey 

was too inclusive for the amount of tim e, money, 

and personnel available; and (3) establishm ents 

employing fewer than 50 w orkers were not 

included.

The principal rem aining problem s hindering 

the an alysis of the study concern estim ates of the 

following item s:

1. Current and future supply of and demand 

for occupations in the self-em ployed category.

2. Current (1963) universe by industrial 

category.

3. Future requirem ents of prim ary and 

secondary school teachers.

The consultant outlined the essen tials that the 

analysis of the survey should include and the 

form the final report should take. 2 / In addition, 

training sessio n s for key officials of the Human 

R esources Division of ICETEX were held on the 

techniques of making fo recasts from information 

obtained from an establishm ent survey.

1/ Instituto Colombiano de Especializacion 

Tecnica en el E xterior (Colombian Institute for 

Advanced Training Abroad). See also, 1963 AID 

report by Langbehn.

2 / The final report was entitled R ecursos y 

Requerim ientos de Personal de Alto Nivel, 

Colombia 1964-1975, Implications for Educational and Economic P olicies (246 pages), and 

published by ICETEX, Department of Human 

R esou rces, in 1965. A 34-page sum m ary was 

prepared in English in 1966, under the title of 

R esources and Requirem ents for Highly Trained 

Personnel.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Colombia

A Comprehensive Manpower Planning P rogram for Colombia 

(1964; 31 pages)

M. Vasudevan (India), ILO Expert

Reviews existing manpower planning program s, including 

the ICETEX survey, and m akes prelim inary observations 

concerning the establishm ent of a comprehenisve human 

reso u rces program .

Manpower planning in Colombia requ ires 

action to develop w ell-trained personnel and 

m easure levels of unemployment and underemployment. The ICETEX survey, when it is com ­

pleted, will provide information on the needs 

for high-level manpower and a s s is t in directing 

educational program s to satisfy these needs. 

An outline for planning an educational system on 

the b a sis of manpower objectives is sum m arized in 14 steps.

A discussion on the value of the ICETEX su rvey and its shortcom ings is presented. The most 

seriou s limitation is that the survey covers 

only those establishm ents employing 50 w orkers 

or m ore.

Among the dozen or so recommendations, 

one em erges a s being basic to any manpower 

development plan. It is recommended that the 

various official agencies now active in human

reso u rces coordinate their activities through a 

work group. ICETEX should take the initiative 

to organize such a group. The agencies involved 

include the M inistries of Education and Labor, 

the Department of Planning, ICETEX, SENA, 

DANE, and the Colombian A ssociation of Universitie s.

For further reference, see: Manpower P erspective of Colombia, by Dieter K. Zschork, 

Industrial Relations Section, Princeton University, 1967, 152 pages.

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Federal Reserve Bank of St. Louis
A m e r i c a n R e p u b l i c s 

C o s t a R i c a

O r g a n i z a t i o n o f t h e E m p l o y m e n t S e r v i c e 

( I n S p a n i s h ; 1 9 6 1 ; 3 0 p a g e s )

I L O R e p o r t t o t h e G o v e r n m e n t o f C o s t a R i c a ; 

O I T / T A P / C o s t a R i c a / R . 3 ; M o r r i s J . D o r a n ( U n i t e d S t a t e s )

E m p l o y m e n t S e r v i c e o p e r a t i o n s a r e r e v i e w e d t o d e t e r ­

m i n e t h e n e e d s f o r a n e f f e c t i v e o r g a n i z a t i o n .

A n E m p l o y m e n t O f f i c e w a s e s t a b l i s h e d i n 

1 9 4 9 , b u t w a s n o t e f f e c t i v e u n t i l t h e r a t i f i c a t i o n 

o f I L O C o n v e n t i o n 8 8 i n 1 9 6 0 . I t s r e s p o n s i b i l i t i e s 

a n d o p e r a t i o n s w e r e f a r t h e r s t r e n g t h e n e d b y 

d e c r e e . I n 1 9 6 1 , N a t i o n a l E m p l o y m e n t S e r v i c e 

p e r s o n n e l c o n s i s t e d o f a c h i e f , t h r e e i n t e r ­

v i e w e r s , a n d a s e c r e t a r y i n S a n J o s e ; t h e r e w e r e 

n o o f f i c e s i n o t h e r a r e a s . D u t i e s c o n s i s t e d o f 

r e g i s t e r i n g j o b o f f e r s a n d p l a c e m e n t s o n l y .

T h e e x p e r t r e v i e w e d a l l a s p e c t s o f t h e E m ­

p l o y m e n t S e r v i c e a n d r e c o m m e n d e d i m p r o v e ­

m e n t s i n t h e S e r v i c e a s a m a j o r s t e p t o w a r d t h e 

d e v e l o p m e n t o f m a n p o w e r a n d o f t h e e c o n o m y i n 

g e n e r a l . H e s u g g e s t e d a r e o r g a n i z a t i o n c o n s i s t ­

i n g o f a n a t i o n a l o f f i c e s e p a r a t e d f r o m t h e l o c a l

o f f i c e i n S a n J o s e , a n d t h e e s t a b l i s h m e n t o f l o c a l 

o f f i c e s i n s i x m a j o r e m p l o y m e n t c e n t e r s .

A s s i s t a n c e w a s p r o v i d e d f o r p r e p a r i n g a d i c ­

t i o n a r y o f o c c u p a t i o n s b a s e d o n I L O r e c o m ­

m e n d a t i o n s . P e r s o n n e l s e l e c t i o n a n d t r a i n i n g 

t e c h n i q u e s a l s o w e r e p r e s c r i b e d .

O v e r 1 , 0 0 0 e s t a b l i s h m e n t s w e r e s u r v e y e d i n 

S a n J o s e t o d e t e r m i n e p a s t , p r e s e n t , a n d p r o ­

j e c t e d e m p l o y m e n t , b y s e x a n d o c c u p a t i o n . A 

s e c o n d s u r v e y w a s m a d e w i t h s o m e m o d i f i c a t i o n s 

t o t h e m e t h o d .

T h e r e c o m m e n d a t i o n s d e a l t p r i m a r i l y w i t h 

d e t a i l s o f t h e f u n c t i o n s a n d o p e r a t i o n s o f a n 

e f f e c t i v e e m p l o y m e n t s e r v i c e o f f i c e .

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Federal Reserve Bank of St. Louis
A m e r i c a n R e p u b l i c s 

D o m i n i c a n R e p u b l i c

I n t e r i m R e p o r t o n M a n p o w e r P l a n n i n g a n d H u m a n R e s o u r c e D e v e l o p m e n t

( 1 9 6 3 ; 3 1 p a g e s )

A r n i e S o l e m , A I D M a n p o w e r C o n s u l t a n t

R e c o m m e n d a t i o n s f o r t h e i n t r o d u c t i o n o f h u m a n r e s o u r c e 

p l a n n i n g a n d f o r e x p a n s i o n a n d i m p r o v e m e n t o f t h e E m ­

p l o y m e n t S e r v i c e , i n c l u d i n g s p e c i f i c p r o j e c t s t o b e u n d e r ­

t a k e n b y t h e E m p l o y m e n t S e r v i c e .

H u m a n R e s o u r c e P l a n n i n g

F i r s t p r i o r i t y s h o u l d b e g i v e n t o a n o v e r a l l 

p l a n f o r t h e d e v e l o p m e n t o f h u m a n r e s o u r c e s . 

T h e m a i n o b s t a c l e s t o e f f e c t i v e p l a n n i n g a r e 

d e t e r m i n i n g t h e d i r e c t i o n t h a t e c o n o m i c p l a n n i n g 

s h o u l d t a k e a n d e s t a b l i s h i n g t h e p o l i c i e s a n d 

i n s t i t u t i o n s t o c a r r y o n h u m a n r e s o u r c e p l a n n i n g . 

M o r e o v e r , m u c h o f t h e s t a t i s t i c a l d a t a a r e n o t 

a v a i l a b l e , a n d t r a i n e d p e r s o n n e l t o c a r r y o u t t h i s 

w o r k h a v e n o t b e e n s e l e c t e d . A b a s i c p r o g r a m t o 

d e v e l o p h u m a n r e s o u r c e s r e q u i r e s g o o d m a n a g e ­

m e n t a n d a s o u n d e d u c a t i o n a l s y s t e m .

E m p l o y m e n t S e r v i c e

S e c o n d p r i o r i t y s h o u l d b e g i v e n t o s t a f f i n g 

t h e E m p l o y m e n t S e r v i c e . A f e w c a p a b l e p e o p l e 

c a n b e c o m e a n u c l e u s f o r e f f e c t i v e l e a d e r s h i p 

a n d f u t u r e e x p a n s i o n . V i s i t s t o e s t a b l i s h m e n t s 

h a v e b e e n p l a n n e d t o e s t i m a t e n e e d f o r t r a i n e d

m a n p o w e r a n d o t h e r b a s i c j o b m a r k e t i n f o r m a ­

t i o n . T h e f o l l o w i n g s u b j e c t s w h i c h i n c l u d e d s u g ­

g e s t i o n s a n d r e c o m m e n d a t i o n s w e r e t r e a t e d i n 

c o n s i d e r a b l e d e t a i l :

1 . I n f o r m a t i o n n e e d e d f o r m a n p o w e r p l a n ­

n i n g .

2 . O r g a n i z a t i o n a n d p o l i c i e s f o r m a n p o w e r 

d e v e l o p m e n t .

3 . I m p r o v e m e n t a n d f u t u r e d e v e l o p m e n t o f 

t h e E m p l o y m e n t S e r v i c e .

4 . E m p l o y m e n t a n d u n e m p l o y m e n t .

5 . M a r k e t r e s e a r c h i n t o l a b o r - i n t e n s i v e 

c r o p s .

6 . C o m m u n i t y d e v e l o p m e n t a n d f a r m e x t e n ­

s i o n s e r v i c e s .

7 . E m p l o y m e n t o b j e c t i v e s f o r i n d u s t r i a l a n d 

u r b a n a r e a s ,

8 . U t i l i z a t i o n o f s c a r c e m a n p o w e r .

9 . T r a i n i n g .

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A m e r i c a n R e p u b l i c s 

D o m i n i c a n R e p u b l i c

H u m a n R e s o u r c e s D e v e l o p m e n t R e p o r t 

( 1 9 6 5 ; 4 0 p a g e s )

A I D H u m a n R e s o u r c e s D e v e l o p m e n t T e a m , E l d o n Y . S t e w a r t , T e a m L e a d e r

E v a l u a t e s t h e p r e s e n t s t a t u s o f e d u c a t i o n a l p r o j e c t s a n d 

r e c o m m e n d s a n e x t e n d e d p r o g r a m o f e d u c a t i o n a l d e v e l o p ­

m e n t .

T h e A I D H u m a n R e s o u r c e s D e v e l o p m e n t 

T e a m v i s i t e d e d u c a t i o n a l , b u s i n e s s , a n d g o v e r n ­

m e n t i n s t i t u t i o n s a n d o t h e r n a t i o n a l a n d i n t e r ­

n a t i o n a l a g e n c i e s , a n d c o l l e c t e d d a t a f r o m d o c u ­

m e n t s a n d i n t e r v i e w s t o p r e p a r e t h i s r e p o r t .

T h e s t r a t e g y o f d e v e l o p i n g h u m a n r e s o u r c e s 

i n c l u d e s :

1 . D e v e l o p m e n t i n c o n j u n c t i o n w i t h p r i v a t e 

s e c t o r s u p p o r t a n d i n v o l v e m e n t .

2 . U s e m a d e o f P u e r t o R i c a n i n s t i t u t i o n s , 

d e v e l o p m e n t e x p e r i e n c e , a n d p r o f e s s i o n a l s .

3 . C o n t i n u o u s e o m m u n i c a t i o n m a i n t a i n e d 

w i t h a l l a g e n c i e s i n v o l v e d i n h u m a n r e s o u r c e 

d e v e l o p m e n t i n t h e R e p u b l i c t o a s s u r e c o o r d i n a ­

t i o n .

4 . N e w a n d u n t r i e d m e t h o d s a n d a p p r o a c h e s 

e x p l o r e d t o d e a l w i t h i n s t i t u t i o n a l a n d d e v e l o p ­

m e n t a l p r o g r a m s w h e n c o n v e n t i o n a l p r o c e d u r e s 

a p p e a r i n a d e q u a t e .

D e v e l o p i n g h u m a n r e s o u r c e s r a t h e r t h a n 

m a t e r i a l r e s o u r c e s w a s t h e m a i n p h i l o s o p h y 

o f t h e t e a m . F o r e x a m p l e , t e a c h e r t r a i n i n g 

c o m e s b e f o r e b o o k p u r c h a s e s , a n d b o o k s b e f o r e 

c l a s s r o o m c o n s t r u c t i o n .

T h e r e s t o f t h e r e p o r t i s d i v i d e d i n t o s e c t i o n s , 

a s f o l l o w s :

1 . S c h e d u l e f o r p r o g r a m i n i t i a t i o n i n c l u d i n g 

c o s t b r e a k d o w n . ( T o t a l c o s t , $ 7 3 6 , 2 0 0 . )

2 . D e t a i l e d e x e c u t i o n o f e a c h p r o p o s a l , i n 

s e q u e n c e , i n p h a s e s o r c o m p o n e n t s o f t h e p r o ­

p o s a l .

3 . D e s c r i p t i o n o f t h e p r o j e c t p r o p o s a l s w i t h 

d e t a i l e d c o s t e s t i m a t e s a n d s u p p o r t i n g i n f o r ­

m a t i o n .

I n b r i e f , t h e p r o j e c t p r o p o s a l s f o r t h e d e v e l ­

o p m e n t o f h u m a n r e s o u r c e s c o v e r e d t h e f o l ­

l o w i n g :

1 . R e o r g a n i z e t h e M i n i s t r y o f E d u c a t i o n .

2 . D e v e l o p a n e w s a l a r y s c h e d u l e f o r 

t e a c h e r s .

3 . T r a i n t e a c h e r s a n d a d m i n i s t r a t o r s .

4 . D e v e l o p a g r i c u l t u r a l e d u c a t i o n . ( S e e 

G a r c i a a n d S t e w a r t r e p o r t . )

5 . D e v e l o p a d u l t a n d l i t e r a c y e d u c a t i o n .

6 . C r e a t e a n d s u p p o r t p o s t - g r a d u a t e d e v e l ­

o p m e n t i n s t i t u t e .

7 . D e v e l o p v o c a t i o n a l i n d u s t r i a l e d u c a t i o n . 

( S e e G a r c i a a n d J u s t i c e r e p o r t . )

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A m e r i c a n R e p u b l i c s 

D o m i n i c a n R e p u b l i c

D e v e l o p m e n t o f V o c a t i o n a l - I n d u s t r i a l E d u c a t i o n a n d T r a i n i n g 

( 1 9 6 5 ; 3 2 p a g e s )

A I D H u m a n R e s o u r c e s D e v e l o p m e n t T e a m ; E l d o n Y . S t e w a r t , T e a m L e a d e r

T h i s r e p o r t ( r e f e r r e d t o a s t h e G a r c i a a n d J u s t i c e r e p o r t ) 

c o v e r s o n e p r o j e c t p r o p o s a l o f t h e H u m a n R e s o u r c e s 

D e v e l o p m e n t R e p o r t .

T h e m a i n o b j e c t i v e o f t h e G a r c i a a n d J u s t i c e 

t e a m w a s t o a s s e s s p r i o r i t y t r a i n i n g n e e d s i n 

t r a d e s a n d i n d u s t r y , t o e v a l u a t e i n t e r e s t o f l o c a l 

g r o u p s , a n d t o d e t e r m i n e r o l e o f A I D . A s e c o n d 

o b j e c t i v e w a s t o e x a m i n e t h e v o c a t i o n a l - i n d u s ­

t r i a l e d u c a t i o n a n d t r a i n i n g f i e l d i n t h e D o m i n i c a n 

R e p u b l i c .

T h e S k i l l e d M a n p o w e r D e v e l o p m e n t C e n t e r 

( S M D C ) i s o p e r a t e d w i t h S e a b e e p a r t i c i p a t i o n t o 

t r a i n y o u n g m e n i n a u t o a n d d i e s e l m e c h a n i c s . 

A d d i t i o n o f c o u r s e s o n h o u s e w i r i n g a n d o n a i r - 

c o n d i t i o n i n g a n d r e f r i g e r a t i n g a r e r e c o m m e n d ­

e d . E v e n t u a l l y , t h e r e s p o n s i b i l i t y o f d i r e c t i n g t h e 

C e n t e r s h o u l d b e t r a n s f e r r e d f r o m t h e M i n i s t r y 

o f L a b o r t o t h e M i n i s t r y o f E d u c a t i o n .

T h e t e a m t r i e d t o a s s e s s t h e q u a l i t y a n d t y p e s 

o f e x i s t i n g t r a i n i n g p r o g r a m s a n d t o e v a l u a t e 

f u t u r e t r a i n i n g p r i o r i t i e s . E m p l o y e r s a n d 

s c h o o l s w e r e v i s i t e d . O b s e r v a t i o n s a n d r e c o m ­

m e n d a t i o n s a r e p r e s e n t e d i n d e t a i l . N o c o m p a r a ­

t i v e d a t a w e r e a v a i l a b l e f o r t h e t e a m t o d e t e r ­

m i n e w h e t h e r a g r a d u a t e f r o m a c o n c e n t r a t e d

6 - t o 7 l / 2 - m o n t h c o u r s e o r a g r a d u a t e f r o m a 

3 - y e a r c o u r s e w o u l d b e m o r e v a l u a b l e t o i n d u s ­

t r y .

U r g e n t a c t i o n i s r e q u i r e d t o i m p r o v e s o c i a l 

a n d e c o n o m i c d e v e l o p m e n t o f t h e c o u n t r y t h r o u g h 

w e l l p l a n n e d a n d b a l a n c e d s k i l l m a n p o w e r t r a i n ­

i n g p r o g r a m s a t t h e n a t i o n a l l e v e l . A m a n p o w e r 

s u r v e y t o d e t e r m i n e s p e c i f i c s k i l l n e e d s o f 

i n d u s t r y w a s r e c o m m e n d e d f o r i m m e d i a t e a c t i o n . 

W h e n L m a n p o w e r n e e d s a r e k n o w n , a m a s t e r 

p l a n s h o u l d b e f o r m u l a t e d t o d e t e r m i n e l o c a t i o n 

o f s c h o o l s , s k i l l s t o b e t a u g h t , o u t s i d e p r o f e s ­

s i o n a l h e l p , a n d b u d g e t a r y r e q u i r e m e n t s .

O f u t m o s t i m p o r t a n c e i s t h e o r g a n i z a t i o n o f 

a M a n p o w e r D e v e l o p m e n t B o a r d t o c o o r d i n a t e 

e x i s t i n g a n d p o t e n t i a l a c t i o n p r o g r a m s o n s k i l l e d 

m a n p o w e r t r a i n i n g . T h e D i v i s i o n o f V o c a t i o n a l 

E d u c a t i o n i n t h e M i n i s t r y o f E d u c a t i o n s h o u l d 

b e s t r e n g t h e n e d a n d i m p r o v e d . C o o r d i n a t i o n a n d 

c o o p e r a t i o n a t a l l l e v e l s a n d a m o n g a l l i n t e r e s t e d 

p a r t i e s s h o u l d b e e n c o u r a g e d a n d m a i n t a i n e d .

1 0 5

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r i c a n R e p u b l i c s 

D o m i n i c a n R e p u b l i c

D e v e l o p m e n t o f A g r i c u l t u r a l E d u c a t i o n 

( 1 9 6 5 ; 1 1 p a g e s )

A I D H u m a n R e s o u r c e s D e v e l o p m e n t T e a m ; E l d o n Y . S t e w a r t , T e a m L e a d e r

T h i s r e p o r t ( r e f e r r e d t o a s t h e G a r c i a a n d S t e w a r t r e p o r t ) 

c o v e r s o n e p r o j e c t p r o p o s a l o f t h e H u m a n R e s o u r c e s D e ­

v e l o p m e n t R e p o r t .

T h e a g r i c u l t u r a l s e c t o r i n t h e D o m i n i c a n 

R e p u b l i c a c c o u n t s f o r 4 p e r c e n t o f t h e n a t i o n a l 

i n c o m e , e m p l o y s 5 5 p e r c e n t o f t h e l a b o r f o r c e , 

a n d f u r n i s h e s 9 0 p e r c e n t o f t h e v a l u e o f a l l 

m e r c h a n d i s e e x p o r t s . P o p u l a t i o n g r o w t h i s r a p i d 

a n d n u t r i t i o n a l n e e d s a r e g r e a t . T h u s , t h e i n ­

c r e a s e i n a n d d i v e r s i f i c a t i o n o f a g r i c u l t u r a l 

p r o d u c t i o n h a v e f i r s t p r i o r i t y f o r e c o n o m i c d e ­

v e l o p m e n t . T o m e e t t h e s e n e e d s , t r a i n e d a g r i ­

c u l t u r a l w o r k e r s a r e r e q u i r e d . S o l u t i o n s t o t h e 

a g r i c u l t u r a l p r o b l e m s w i l l r e q u i r e a b r o a d 

a p p r o a c h , c o u p l e d w i t h s h o r t - t e r m a n d l o n g - 

r a n g e n a t i o n a l p l a n s a n d a c t i o n p r o g r a m s . T h e 

f o r m a t i o n o f a N a t i o n a l A d v i s o r y B o a r d f o r 

A g r i c u l t u r a l E d u c a t i o n i s e s s e n t i a l .

M o r e s p e c i f i c a l l y , t h e e d u c a t i o n a l s y s t e m 

a n d i t s a g r i c u l t u r a l t r a i n i n g i n s t i t u t i o n s s h o u l d 

b e r e o r i e n t e d . A t p r e s e n t , t h e r e a r e o n l y 

t h r e e h i g h s c h o o l s t e a c h i n g b a s i c a n d t e c h n i c a l 

a g r i c u l t u r e . N e w i n s t i t u t i o n s s h o u l d b e d e v e l ­

o p e d , a n d t h e a b i l i t y o f t h e R e p u b l i c t o s u p p o r t 

t h e s e i n s t i t u t i o n s a f t e r f o r e i g n a s s i s t a n c e i s 

w i t h d r a w n s h o u l d b e c o n s i d e r e d .

T h e r e s t o f t h e r e p o r t p r o v i d e s t h e e s t i m a t e d 

c o s t s a n d s c h e d u l e f o r t h e i n i t i a t i o n o f a g r i c u l ­

t u r a l e d u c a t i o n p r o g r a m . T h e t o t a l c o s t o f t h e 

e n t i r e p r o g r a m w o u l d b e $ 1 , 6 7 5 , 0 0 0 , i n c l u d i n g 

$ 9 0 0 , 0 0 0 t o c o n s t r u c t t h r e e n e w v o c a t i o n a l a g r i ­

c u l t u r a l s c h o o l s .

1 0 6

Digitized for FRASER 

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Federal Reserve Bank of St. Louis
A m e r i c a n R e p u b l i c s 

D o m i n i c a n R e p u b l i c

S u r v e y o f N e e d s f o r a n d P o t e n t i a l T e c h n i c a l A s s i s t a n c e 

t o t h e D o m i n i c a n R e p u b l i c M i n i s t r y o f L a b o r 

( 1 9 6 6 ; 6 p a g e s a n d 1 a p p e n d i x )

D O L I T A C J L / S t a f f P a p e r N o . 1 7 ;

J o s h u a L e v i n e a n d E l d o n V i e , M a n p o w e r A d v i s e r s

P r e s e n t s p r o p o s a l s f o r t e c h n i c a l a s s i s t a n c e i n m a n p o w e r , 

w a g e p o l i c y , a n d l a b o r a d m i n i s t r a t i o n .

A s a r e s u l t o f t h i s m i s s i o n , a t w o - y e a r 

p r o g r a m w a s d e v e l o p e d r e q u i r i n g o n e l o n g ­

t e r m a d v i s e r i n s k i l l s t r a i n i n g a n d o n e i n l a b o r 

a d m i n i s t r a t i o n ; 1 2 s h o r t - t e r m t e c h n i c i a n a s ­

s i g n m e n t s ; a n d p a r t i c i p a n t t r a i n i n g . T h e p r o ­

g r a m s c o v e r e d t h e f o l l o w i n g f i e l d s :

M a n p o w e r ( E m p l o y m e n t R e s o u r c e s )

T h e D o m i n i c a n R e p u b l i c h a s a S k i l l e d M a n ­

p o w e r D e v e l o p m e n t C e n t e r a n d o t h e r t r a i n i n g 

s c h o o l s b u t n o a p p r e n t i c e t r a i n i n g o r s k i l l - u p - 

g r a d i n g p r o g r a m s . A s k i l l s u r v e y i s n e e d e d t o 

d e t e r m i n e r e q u i r e m e n t s f o r s k i l l e d w o r k e r s i n 

i n d u s t r y ( o n e o f t h e r e c o m m e n d a t i o n s o f t h e 

1 9 6 5 H u m a n R e s o u r c e s D e v e l o p m e n t T e a m ) . 

I n t e g r a t i o n a n d c o o r d i n a t i o n o f a l l i n s t i t u t i o n s 

f o r s k i l l s t r a i n i n g s h o u l d b e p r o m o t e d . S h o r t ­

t e r m t e c h n i c i a n s s h o u l d a s s i s t i n s p e c i a l i z e d 

a r e a s o f t h e s k i l l d e v e l o p m e n t p r o g r a m .

W a g e P o l i c y

A w a g e p o l i c y w i l l s e r v e t o i m p r o v e i n c o m e 

d i s t r i b u t i o n , i n c r e a s e p u r c h a s i n g p o w e r , m o t i ­

v a t e s k i l l a c q u i s i t i o n , a n d i m p r o v e p r o d u c t i v i t y . 

T h e g o v e r n m e n t h a s a n o p p o r t u n i t y t o d e v e l o p a 

n a t i o n a l g o v e r n m e n t - w i d e w a g e s y s t e m w h i c h 

c o u l d s p r e a d t o t h e p r i v a t e s e c t o r . A w a g e 

p o l i c y b o a r d s h o u l d b e e s t a b l i s h e d e v e n t u a l l y 

w i t h p a r t i c i p a t i o n o f g o v e r n m e n t , m a n a g e m e n t , 

a n d l a b o r . T h e M i n i s t r y o f L a b o r s h o u l d s t a r t 

i m m e d i a t e l y t o r e v i e w i t s w a g e o p e r a t i o n s a n d 

t o a c c u m u l a t e w a g e d a t a . S h o r t - t e r m t e c h n i c i a n s 

s h o u l d a s s i s t i n t h e s p e c i a l i z e d a r e a s o f o c c u p a ­

t i o n a l a n a l y s i s a n d w a g e s t a t i s t i c s .

L a b o r A d m i n i s t r a t i o n

T h e s a f e t y a n d h e a l t h o f w o r k e r s o n t h e j o b 

i s o f p r i m a r y i m p o r t a n c e . S h o r t - t e r m t e c h ­

n i c i a n s , t h e r e f o r e , s h o u l d a d v i s e i n d e v e l o p i n g 

s a f e t y c o d e s f o r i n d u s t r y , t r a i n i n g i n s p e c t o r s 

i n t e c h n i q u e s o f s a f e t y a n d i n s p e c t i o n , a n d 

p r o m o t i n g e m p l o y e r i n t e r e s t i n s a f e t y p r o g r a m s .

1 / U . S . D e p a r t m e n t o f L a b o r I n t e r n a t i o n a l 

T e c h n i c a l A s s i s t a n c e C o r p s .

1 0 7

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r i c a n R e p u b l i c s 

D o m i n i c a n R e p u b l i c

F i r s t N a t i o n a l C o n f e r e n c e o n T r a i n i n g a n d D e v e l o p m e n t o f 

M a n p o w e r i n t h e D o m i n i c a n R e p u b l i c 

( 1 9 6 6 ; 7 p a g e s )

D O L I T A C J L / S t a f f P a p e r N o . 2 9 ; A r c h i e B e a u b i e n

R e p o r t o f t h e a p p r e n t i c e s h i p a n d t r a i n i n g a s p e c t s o f t h e 

M a n p o w e r C o n f e r e n c e .

T h e C o n f e r e n c e a d o p t e d t h e f o l l o w i n g r e c o m ­

m e n d a t i o n s w h i c h w e r e p r e s e n t e d t o t h e P r e s i ­

d e n t o f t h e D o m i n i c a n R e p u b l i c f o r a d o p t i o n a n d 

i m p l e m e n t a t i o n :

1 . C r e a t e a n i n s t i t u t e t o b e r e s p o n s i b l e f o r 

c o o r d i n a t i n g t h e d e v e l o p m e n t o f h u m a n r e ­

s o u r c e s i n t h e D o m i n i c a n R e p u b l i c . A n i n d u s t r y 

t a x p l a n w o u l d s u p p o r t t h e i n s t i t u t i o n .

2 . C r e a t e a c o m m i s s i o n t o s u r v e y p r e s e n t 

f a c i l i t i e s , c o u r s e s , a n d n e e d s o f t h e N a t i o n f o r 

e d u c a t i o n a n d s k i l l t r a i n i n g .

3 . E s t a b l i s h a c o o r d i n a t e d s y s t e m o f v o c a ­

t i o n a l t r a i n i n g , u p g r a d e w o r k e r s k i l l s , a n d 

m o d e r n i z e a p p r e n t i c e s h i p s y s t e m .

4 . P r o v i d e a m e t h o d w h e r e b y t h e e d u c a t i o n a l 

a n d t r a i n i n g f a c i l i t i e s a n d c o u r s e s i n t h e s c h o o l s 

a n d t r a i n i n g c e n t e r s a r e r e v i e w e d a n d u p d a t e d 

p e r i o d i c a l l y .

5 . I m p r o v e e d u c a t i o n , t r a i n i n g , a n d r e t r a i n ­

i n g r e l a t e d t o t h e p u b l i c s e r v i c e n e e d s o f t h e 

c o u n t r y .

T h e c u r r e n t a p p r e n t i c e s h i p l a w a n d i t s o p e r a ­

t i o n w e r e r e v i e w e d b y t h e a d v i s e r . S e v e r a l 

r e c o m m e n d a t i o n s a n d c o m m e n t s w e r e m a d e . I n 

e s s e n c e , t h e l a w n e e d s t o b e u p d a t e d a n d s u p ­

p o r t e d b y t h e D o m i n i c a n A d m i n i s t r a t i o n w i t h 

a d e q u a t e m o n e y a n d s t a f f .

R e g a r d i n g t h e m a n p o w e r p r o g r a m i n g e n e r a l , 

a s u r v e y o f s k i l l n e e d s i s t h e f i r s t r e q u i r e m e n t . 

E q u a l l y i m p o r t a n t i s a s u r v e y o f v o c a t i o n a l a n d 

i n d u s t r i a l t r a i n i n g f a c i l i t i e s , i n c l u d i n g t e a c h i n g 

s t a f f , e q u i p m e n t , t o o l s , c u r r i c u l a , e t c . A 

c o o r d i n a t e d p r o g r a m w o u l d c o m p a r e t h e n e e d s 

a g a i n s t t h e f a c i l i t i e s a n d a t t e m p t t o m e e t t h e g a p . 

T h i s t y p e o f w o r k c o u l d b e d o n e b y t h e n e w 

N a t i o n a l M a n p o w e r C o m m i t t e e .

1 / U . S . D e p a r t m e n t o f L a b o r I n t e r n a t i o n a l 

T e c h n i c a l A s s i s t a n c e C o r p s .

1 0 8

Digitized for FRASER 

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Federal Reserve Bank of St. Louis
Am erican Republics 

Dominican Republic

Survey of Skilled Manpower Needs 

(May-June 1967; 5 pages and 4 tables)

DOLITAC 1 / Staff P apers No. 51 (English) and No. 52 (Spanish); 

Howard Kumin, Labor Statistician

D escribes the methods used and the resu lts of the survey 

of skilled manpower needs.

This survey was conducted a s a result of 

recommendations made by sev eral pred ecessor 

AID consultants. B asic data were needed for 

determining training needs in specialized sk ills.

Information was collected from sam ples of 

establishm ents employing 10 persons or more 

in manufacturing industries and in construction, 

hospitals, electricity, and other industries. The 

occupational distribution, level of training, r e ­

placem ents, and estim ated needs were the 

prim ary objectives of the survey.

Data from 186 establishm ents employing 

nearly 32,000 w orkers revealed the following:

1. N early three-fourths of the w orkers were 

considered qualified for their jobs; the re st 

needed further training.

2. If business were to in crease 10 percent, 

very few additional w orkers would be required, 

according to em ployers.

3. Only 38 job vacancies were reported.

4. Three-fifths of the establishm ents re ­

ported no difficulty in recruiting w orkers they 

needed.

5. M ost establishm ents upgrade their worke r s as opportunities a rise .

6. Three-fourths of the establishm ents felt 

their workers could benefit from additional 

training.

7. Two-thirds of the establishm ents would 

give time off for additional training.

8. The difference between peak season and 

slack season employment averaged 38 percent 

for all industries and 66 percent for the food 

industry.

F oreigners occupy m ost of the few highlyskilled positions which exist. Most sem iskilled 

operatives can be trained in a few weeks or 

months. Upgrading w orkers already on the job 

may be the m ost prom ising field for manpower 

training.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

109

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Federal Reserve Bank of St. Louis
Am erican Republics 

Dominican Republic

Prom oting Industry Involvement in Training P rogram s 

(April-August 1967; 8 pages)

DOLITAC 1 / Staff Paper No. 48;

Eugene Hood, Apprenticeship adviser

A review of the current situation in training for industrial 

jobs.

The adviser visited industrial establishm ents 

in Santo Domingo, local vocational and comm ericial schools, and labor organizations and 

made the following observations:

1. Training in industry is usually inform al 

and on-the-job. Many industry officials r e ­

cognized the need for establishing training program s for their present and future work force.

2. All labor groups were eager to promote 

on-the-job and related training program s with 

management.

3. Government officials are not usually fam ilia r with the role that government plays in 

developing training program s.

4. Vocational school officials seem ed eager 

to improve their present activities.

Current training program s are not meeting 

industry needs since the vocational schools are 

not coordinated with each other or with local 

industry needs. Students are being trained on

antiquated equipment for jobs which are not 

available. Only about 20 percent of graduates are 

being placed in jobs for which they received 

training.

The various social and economic problem s 

arisin g from the poor orientation and coordination of the present training system are d iscussed. Also listed are basic b a rrie rs to 

manpower training, including the lack of lead ership to carry out an effective, corrdinated 

training program .

Recommendations concentrated on the e s ­

tablishment and development of a training agency 

to coordinate the various training institutions, 

program s, industrial needs, and other related 

topics. Specific suggestions also were made for 

each of these topics.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

1 1 0

Digitized for FRASER 

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Federal Reserve Bank of St. Louis
Am erican Republics 

Dominican Republic

Improvement of the Statistical Program in the Secretariat of Labor

(1967; 17 pages)

DOLITAC 1 / Staff Paper No. 58; Howard Kumin, Statistical Adviser

A description of the efforts made to improve the statistical 

program of the M inistry of Labor; special reference is 

given to the labor force survey and to the fam ily income 

and expenditure survey.

The current role of the M inistry of Labor 

a s a collector of statistics is reviewed. Labor 

statistic s are a by-product of the program 

for the enforcement of labor law s. The statistical 

section has maintained and sum m arized records 

of accessio n s, separations, and occupational 

changes of establishm ents. Improving both the 

coverage of establishm ents and the accuracy of 

the reports were outside the term of reference 

of adviser. Improvement of the statistical program was directed along two lines: to mechanize 

the tabulation p ro c e sse s and to design tabulations to indicate the economic health of the 

country. The introduction of the report (4 pages) 

and section I (4 pages) are devoted to this task.

Section II (8 pages) d escrib es the survey of 

the labor force in Santo Domingo, 1967, and 

presents the findings. Q uestionnaires from outside Santo Domingo did not have enough labor 

force data to make tabulation worthwhile, with 

the exception of Azua and Rio San Juan, an 

agricultural area. Labor force participation 

rates for Santo Domingo and for Azua were 

practically the sam e: 28-29 percent; and for 

Rio San Juan: 23 percent. Because of poor 

instructions, enum erators neglected to ask about 

the employment status for household m em bers. 

As a result, unemployment rate s are unreliable.

Section III (1 page) sum m arizes the plan to 

survey incom es and expenditures of fam ilies in 

Santo Domingo in 1968. This work will continue 

through 1969.

1 / U.S. Department of Labor International 

Technical A ssistance Corps.

I l l

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
Am erican Republics 

Ecuador

Manpower and Labor P rogram P roposal for Ecuador 

(1963; 14 pages)

Petroam erica Pagan de Colon, AID Manpower Consultant

P resen ts labor force data and d escrib es the educational 

and training facilities. P roposes a Manpower and Em ­

ployment Service in the M inistry of Social W elfare and 

Labor to coordinate the activities.

Labor Statistics

Ecuador has a D irectorate General of Statistics which, according to law, is responsible for 

centralizing statistics from all government 

agencies. However, its labor statistics program 

is fragm entary and out of date. It is hoped that 

adequate labor force data will be available from 

the General Census of November 1962.

Educational System

In 1959, 16 percent of the national budget was 

allocated to education. Technical schools p re ­

pare m iddle-level technicians for industry, but 

the number of students is low relative to the need.

A seriou s lack in vocational guidance perm its 

enrollment in fields which are already overstaffed. Many foreign high-level adm inistrative 

and m anagerial personnel must be imported 

because of lack of training for nationals.

Recommendations

1. E stablish in the M inistry of Social Welfare 

and Labor a manpower program which has 

authority to plan and adm inister the development 

of human reso u rces.

2. Coordinate activities of labor statistics, 

employment service, and apprenticeship in the 

Manpower and Employment Service.

1 1 2

Digitized for FRASER 

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Federal Reserve Bank of St. Louis
Am erican Republics 

Ecuador

Manpower and Educational Planning in the Socioeconomic 

Development of Ecuador 

(1964; 91 pages)

Stanford R esearch Institute, Henry F. M cCusker, Jr ; and Edward A. Podesta

Preparation of a program of manpower planning and 

development for the national development plan for 

1964-73.

The Junta Nacional de Planificacion y Coordinacion Econom ica of the Government of 

Ecuador com m issioned Stanford R esearch Institute to conduct a survey of the role that manpower planning and education should play to 

achieve its socioeconomic objectives.

The re se arch activities consisted of:

L Evaluating and revising projections of professional and technical manpower requirem ents 

that already were prepared by the Planning 

Office.

2. Preparing estim ates of manpower r e ­

quirem ents in economic secto rs and for certain 

sk ills.

3. Appraising gap between future requirements and anticipated supply.

4. A ssessin g current education and training 

program s outlining ways to improve capability.

5. Determining direction of long-term manpower planning to coordinate manpower activities.

6. Identifying specific problem a re as for 

further study.

Findings

1. Quality and content of higher education 

program s are not adequate to meet needs.

2. Little em phasis is placed on in -service 

training program s for high-level, technical, 

and skilled manpower.

3. Insufficient data are collected for an alysis.

4. E stim ates of demand for and supply of 

professional manpower in 1968 and 1973 indicate 

shortages of p ro fe sso rs, engineers, adm inistrato rs, and professional agricultural w orkers.

Suggestions for Action

B ased upon the findings and analyses of 

alternatives, the following m ajor categories of 

m easu res and policies were proposed for consideration by the Planning Office:

1. Better integration of education and manpower planning with socioeconomic development 

planning.

2. Improvements in quality and relevance of 

education to meet occupational requirem ents.

3. Alleviation of projected manpower demand-supply imbalance.

4. Improvements in the efficiency of higher 

educational institutions.

113

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Federal Reserve Bank of St. Louis
Am erican Republics 

Ecuador

Manpower Data in Ecuador 

An A ppraisal of Some of the Current Data System s 

C rucial to Human Resource Development Planning 

(1965; 43 pages)

Don H. Roney, AID Manpower A dviser

Evaluates current sources of manpower data and plans 

for collecting additional data.

The purpose of this report is to evaluate 

current statistical data on which manpower 

planning must re st, appraise the technical and 

organizational capability to produce the 

required data, and suggest appropriate AID r e ­

lationships to these program s.

The 1962 Census of Population did not provide 

enough detail relating to occupations, levels of 

skill, industrial attachments, etc., that is needed 

to develop a manpower-educational plan. Other 

types of surveys, such a s the household survey, 

occupational and industry surveys, must be 

developed for manpower planning.

Among the other statistical data or program s 

analyzed are the following:

1. Consumer price index, monthly for Quito 

and Guayaquil.

2. Index of employment and wages in mining, 

quarrying, and manufacturing.

3. National directory of establishm ents, by 

province and by 3-digit industry code.

The Bureau of Labor, part of the social 

security office in the M inistry of Social Welfa re and Labor, is concerned prim arily with

adm inistration of the labor code. Total staff is 

75, of whom 50 are labor inspectors. Within the 

Bureau, there are sev eral sections:

1. Statistics and Placem ent Section does 

som e job registration and placem ent but mostly 

com piles data on minimum w ages, industrial 

accidents, etc. Some job m arket an alysis work 

has been started.

2. The A rtesan Section legalizes and inspects 

the training centers adm inistered by four m inistrie s under a program to protect skilled w orkers.

Recommendations

1. The Division of the Census should proceed 

with the household survey.

2. The Bureau of Labor’ s Statistics and P lacement Section should be expanded so that adequate 

labor reporting and analysis system s can be 

developed.

3. Job m arket an alysis should be assigned 

to the agency developing the employment serv ice.

4. The initiation of a system of public 

employment offices should be fostered by AID 

through participant training, technical a s s i s ­

tance, and commodity support.

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Federal Reserve Bank of St. Louis
Am erican Republics 

El Salvador

The Labor Situation and the Work of the Labor M inistry 

in El Salvador, with Recommendation for ICA Activities 

(1961; 8 pages)

C lara M. Beyer, AID Consultant in Labor Law Administration

Reviews various projects for AID assistan ce in the 

labor program and recom m ends improvement in the 

work of the Labor M inistry,

The M inistry of Labor has done little so far 

to improve working and living conditions of the 

lab o rers. Its immediate plan was to reorganize 

and expand the inspection department to enforce 

the Sunday law (payment for Sunday work for 

agricultural laborers) and other new regulations. 

The M inistry also planned to start work on an 

apprentice training program already approved 

for AID technical assistan ce.

Dynamic program s are needed to improve 

the lives of w orkers and to bring them into 

active participation in various program s. The 

instability of the Government and its failure to 

understand basic needs of the people pose a real 

problem in the application of technical assistan ce 

program s in the labor field. Numerous recom ­

mendations are made for strengthening the 

M inistry and for protecting the security of 

w orkers.

Program recommendations

AID approved projects should include the a s ­

signment of a statistician to help the M inistry of 

Labor in its employment statistics se r ie s, and 

the assignm ent of an apprenticeship expert to 

help start a training program .

Other possible AID projects could include 

worker’ s education, technical assistan ce of an 

Employment Service expert, training of women 

w orkers, loans to unions for self-help projects, 

and aid in establishing credit unions.

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Federal Reserve Bank of St. Louis
Am erican Republics 

E l Salvador

Manpower Services for Human R esource Development 

in El Salvador and the Central Am erican Region 

(1963; 14 pages and 8 appendixes)

Robert J . Clay, AID Manpower Consultant

A review of available manpower se rv ice s in El Salvador 

to form ulate a regional manpower development plan.

The four key functions of government e s ­

sential to the adm inistration of a manpower 

program are (1) a central manpower planning 

office, (2) collection and analysis of statistical 

data, (3) a public employment serv ice, and (4) 

a central training authority. El Salvador is one 

of three countries in the Central Am erican 

common m arket which m aintains a public em ­

ployment service. A lso located in the M inistry 

of Labor is a labor statistics section. Both 

of these se rv ice s have received substantial U.S. 

technical assistan ce. An apprenticeship program is currently being developed under the 

guidance of a U.S. technician. Thus, El Salvador 

is well on its way to developing the b a sic s 

for a manpower development program . However, 

at the present tim e, a coordinating office of manpower reso u rces and planning does not exist, 

much statistical data are lacking and the current employment serv ice program is weak.

The consultant presented a country program 

plan for AID assistan ce, entitled Manpower 

Planning, Development, and Utilization. Its

purpose would be to a s s is t in identifying and 

utilizing manpower to provide maximum productivity and to support key economic development activities in the country.

Specific activities to carry out the development of manpower program include the following:

1. Upgrade, develop, and expand manpower 

activities of the employment service.

2. Improve, upgrade, and support labor sta ­

tistic s functions in the M inistry.

3. Reorganize all manpower serv ice s to 

provide for a National Manpower Department.

4. Develop within the National Council for 

Planning and Economic Coordination a human 

reso u rces development com m ission which has 

representation from all the M inistries.

The need for regional integration in planning 

and implementing technical labor program s is 

discussed. Relevant papers by other consultants 

on this topic appear in the appendix.

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Federal Reserve Bank of St. Louis
Am erican Republics 

E l Salvador

Labor Statistics in El Salvador 

(1964; 18 pages)

John Fo C arruthers, AID Labor Statistics Technician

D escribes labor statistics program s of the M inistry 

of Labor,

The Statistics Section of the M inistry of 

Labor is divided into four subsections, each 

of which perform s specialized statistical functions:

The C ost-of-Living Subsection conducts an 

irregu lar and limited consum er price index 

survey for Santa Tecla. Since the base year is 

outdated and no use is made of the data, it is 

recommended that this work be discontinued.

The Work Accident Subsection collects r e ­

ports on injuries and accidents from employing 

establishm ents. Since identical information is 

collected by the Social Security Office, it is 

recommended that this subsection refrain from 

requiring em ployers to submit identical reports.

The Employment, Hours, and Earnings Subsection collects these data by m ail from em ­

ploying establishm ents. No recommendations 

are made to change this activity.

The Special Studies Subsection p rep ares re ­

ports on the incidence and number of labormanagement disputes. At one tim e, this subsection conducted labor force surveys (1957-59). 

It is recommended that this work be reactivated. 

A detailed proposal is provided in the appendix.

About seven separate studies have been 

made by consultants relating to the Statistics 

Section; six of them were made since 1961. 

Unfortunately, the M inistry of Labor has not 

implemented any of the recom m endations. Summ aries of these studies are presented.

Coordination of the various statistical program s in the different m in istries is lacking. 

The Central Statistical Office in the M inistry 

of Economy does m ost of the Government’s 

statistical work but it does not coordinate or 

plan for other statistical program s. A strong 

statistical program to provide the n ecessary 

manpower data to carry out the country’ s 

economic development plan is needed.

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Federal Reserve Bank of St. Louis
Am erican Republics 

E l Salvador

Construction Industry Training 

(1967; 19 pages)

DOLITAC 1 / Staff Paper No. 34;

M aurice C. Sandes, Manpower Development A dviser

D escribes the current apprentice training organization 

and p rogram s, and presents suggestions for expansion 

and improvement.

The lack of skilled construction w orkers 

seriously hampered repairing the badly damaged 

capital city after the earthquake of 1965. A proposal was prepared for an intensive program to 

train contruction foremen. It was hoped that this 

program would continue after the em ergency and 

open the way for form al apprentice training in 

the construction industry.

Aprogram , consisting of a 50-hour course 

on modern construction techniques and 

supervisory training, was devised to train 105 

forem en. C lass would be held 3 nights a week for 

5 weeks; a 5-hour followup session would be 

given 3 weeks later as a refresh er and evaluation.

Several attachments are appended to the 

report. They include:

1. An assessm en t of the national apprenticeship system in El Salvador.

2. Apprenticeship legislation a s it appears in 

the Labor Code.

3. The organic law of the M inistry of Labor 

a s it set up the National Department of Apprenticeship.

4. The general standards that regulate apprenticeship in a rts, cra fts, and other occupations, as form ulated by the National Apprenticeship Council in 1964.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Guatemala

Labor Skills and Aptitude Testing Feasibility Study 

(1966; 17 pages)

DO LIT AC l j Staff Paper No. 7; Robert Doig

Feasibility of introducing and establishing a labor 

aptitude and sk ills testing program .

Guatemala has an abundant supply of unskilled 

and untrained manpower. Facing an expanding 

Guatemalan industrial development, the Industrial Development and Productivity Center 

(CDPI) requested assistan ce in identifying prospective trainees from this vast pool of human 

reso u rces.

To analyze the feasibility of introducing 

aptitude te sts, the status of the current situation 

had to be known. Through plant v isits and p ersonal interviews with officials of government 

educational institutions, personnel m anagers, 

and others, it was determined that no aptitude 

te sts suitable for screening and selecting worke r s were in existence. A lso, industry was experiencing difficulty in selecting w orkers for 

all categories of jobs.

Recommendations

1. That CDPI plan to introduce and maintain 

a labor sk ills aptitude testing service for

Guatemalan industry, using the Spanish Language 

V ersion of the General Aptitude T est Battery 

developed in Puerto Rico.

2. That CDPI introduce and maintain a course 

on the Selection of Personnel a s one of its industry service cou rses.

3. That CDPI cooperate with other competent 

authoritie s so that GATB might be made available 

for counseling and guidance.

A suggested operational plan for introducing 

aptitude testing is described; staffing and equipment requirem ents and training of personnel are 

included.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

119

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Federal Reserve Bank of St. Louis
Am erican Republics 

Guyana

Employment, Unemployment, and Underemployment 

in the Colony in 1956 

(1957; 43 pages)

ILO Report to the Government of B ritish Guiana; 

Edward McGale (Great Britain)

R esults of a sam ple survey of the labor force and 

recommendations for improvement in the collection 

of statistical data.

Reliable and current data on employment and 

unemployment did not exist in Guyana at this 

tim e. The 1946 Census of Population was the 

m ost recent data available.

To conduct a survey of the labor force, a 

random sam ple of voters, representing 4,600 

households in the inhabited coastlands, was 

selected from the E lectoral R egister and enumerated at two different periods. Supplementary 

data were obtained from a sam ple of 544 

establishm ents employing 66,000 w orkers. In 

addition, em igration returns were examined 

to a s s e s s the influence of unemployment upon 

m igration from the Colony, and re g iste rs of 

Employment Exchanges were analyzed for data 

about the unemployed.

The resu lts of the survey indicated that nearly 

70 percent of the population were in the labor 

force. Two-fifths of the labor force were in 

agriculture and mining, and nearly a fourth were 

in manufacturing and construction. The survey 

revealed that, in m id-July 1956,18 percent of the 

labor force were unemployed. The la rg est 

unemployment rate appeared in Georgetown 

(22 percent). Agriculture had the m ost unemployment of any industry (16 percent). According 

to ILO’ s difinition for “visible underemployment” 

(persons employed fewer than the normal number 

of hours), about 15 percent of the total number 

employed were persons who worked fewer than 

30 hours during the survey week.

An in-depth analysis of these data indicated 

seriou s problem s in two are as: Heavy unemployment among school-leavers, and surplus labor 

living on sugar estates. To illustrate: 43 percent 

of the unemployed of whom nearly two-thirds 

never had a job were persons under 21 y ears of 

age.

Recommendations

Recommendations dealt with details of v a rious ways to improve future employment surveys:

1. The Government Statistical Bureau, when 

it is established, should c arry out periodic 

employment surveys by sam pling methods.

2. Additional surveys should be conducted to 

throw light on specific problem s.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Guyana

An A ssessm en t of High-Level Manpower Requirements 

in Relation to B ritish Guiana’ s Need for Economic Development 

(1962; 21 pages and appendix tables)

Robert L. Thomas, AID Manpower Consultant

P resen ts resu lts of a manpower survey and projections 

of manpower needs for 1967.

The labor force is estim ated to grow 3 p e rcent per year and will continue to do so for the 

next 5 years (1967). The unemployment rate of 

18 percent, established by the McGale report, 

rem ains the sam e. The goal for the next 5 years 

must be to create over 12,000 new jobs annually 

to take care of those now unemployed and those 

who will be entering the labor force. The existing 

Five-Y ear P rogram , if fully implemented, will 

create only 2,500 new jobs annually, falling far 

short of the required goal.

To aid the government in its manpower 

planning, an assessm en t of high-level manpower 

was undertaken. Information was obtained from 

em ployers, government agencies, and training 

institutions. About 95 percent of the high-level 

manpower reso u rces were covered in the estab ­

lishm ents visited. Using this inventory as a b ase , 

5-year estim ates of demand for each occupation 

were made by calculating withdrawals from the 

occupation in the next five years and carrying 

forward current unmet demand (vacancies) plus 

estim ates of in crease over the next 5 years. This 

demand information was matched with estim ates 

of supplies so that significant shortfalls may be 

identified.

The resu lts reveal that there is a general 

shortage of m ost types of high-level manpower 

and som e acute problem s are in prospect. The 

educational base is insufficient from both a 

quantitative and qualitative standpoint. At each 

educational level, adequate teachers, facilities, 

and books are lacking. The m ajor portion of the 

report analyzes the current situation and future 

prospects in each of the high-level occupations.

Recommendations

Recommendations appear throughout the text 

discu ssion s. The m ajor ones are as follows:

1. E stablish in the M inistry of Development 

and Planning a Manpower Planning Office.

2. E stablish m eans to obtain b asic job market 

information.

3. Develop a program of vocational guidance 

and counseling,

4. Improve quality of technical and nontechnical schools, and strengthen the secondary 

school system .

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Federal Reserve Bank of St. Louis
Am erican Republics 

Guyana

Report on a Survey of Manpower Requirem ents and 

the Labour Force, B ritish Guiana, 1965 

(1966; Four volumes)

O. J. C. F ran cis, UN Technical A ssistan ce Expert for the Manpower Survey 

Office, M inistry of Labour and Social Security

A comprehensive study of the demand for and supply 

of manpower in Guyana.

Volume I—Surveys of private establishm ents, 

m in istries, government departments, public 

corporations, statutory bodies, local authorities, 

etc. (400 pages plus appendix tables.) E ssentially 

an inventory of occupations by sector showing 

present and projected number of employees.

Contains detailed description of techniques used 

to make establishm ent surveys.

Volume II—Human reso u rces in Guyana. (216 

pages plus appendixes.) R esults of the household 

survey on the labor force. Includes information

on the economic and social ch aracteristics of the 

employed and unemployed.

Volume III—An inventory of occupations in 

private establishm ents, with descriptions. (188 

pages.) An occupational classification system 

pertinent to Guyana’ s economy. Contains a se c ­

tion on the educational and/or training requirements for appointment.

Volume V (No volume IV)—The volume and 

variety of qualified and trained personnel in the 

public sector. (434 pages.) L ists qualifications 

and study cou rses which officials have taken.

1 2 2

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Federal Reserve Bank of St. Louis
Am erican Republics 

Mexico

The Problem of High-Level Manpower in Mexico 

(1960; 25 pages)

Don Roney, AID Manpower Consultant

An overall view of high-level manpower and som e problem s in developing adequate supply.

Technical and management sk ills have not 

kept pace with the rapid growth of the industrial 

and com m ercial secto rs in Mexico. A piecem eal 

approach: to alleviate the lack of supply has been 

attempted; but efforts of the past should be r e ­

placed by a broad, frontal attack. Underlying the 

whole problem is the basic issue of adequacy of 

training throughout the entire educational structure. The greatest need appears to be for train ers 

who can teach others how to train.

At present, there is no focal point for manpower development although several agencies 

have splinter responsibilities. The position of 

leadership seem s to be held by the Bank of 

Mexico as a resu lt of its interest in economic 

development.

The m ost constructive and urgently needed 

step which the Government of Mexico could take

to solve its trained manpower needs would be 

to establish a Manpower Planning Office. Only 

by centralizing manpower information, planning, 

and action can a broad, coordinated manpower 

development plan be su ccessful. A detailed description of the various management and technical skill development program s is presented. A 

com prehensive study of the needs for technicians 

in industry was made by the Bank of Mexico and 

is sum m arized in this report.

U.S. technical aid program s in Mexico have 

a strong manpower focus. They are well conceived and operated and have received strong 

local support. Recommendations for additional 

assistan ce emphasize expanding participant 

training and improving labor statistic s and job 

m arket information.

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Federal Reserve Bank of St. Louis
A m erican Republics 

Mexico

Scientific, Engineering, and Technical Education 

in Mexico, 1964

(1967; 35 pages and bibliography)

Education and World A ffairs, O ccasional Report #3; 

R u ssell G. Davis (Harvard University)

This paper is based on a report submitted by a special 

study group to the Ford Foundation in 1964.

During the course of the study, Mexican 

educational institutions which were training 

engineers, scien tists, and technicians were 

visited, a s were the Mexican firm s which 

employed graduates from these schools.

After a b rief discussion of existing educational facilities and conditions, the author outlines 

som e of the problem s in making estim ates of 

scientific and technical manpower requirem ents. 

Com parisons of available data from two previous 

studies (1956 ± ] and 1962 2 /) were difficult 

because of the absence of adequate data and 

because of contradictory definitions. These 

two studies indicate a surprisingly low ratio 

of professional to m iddle-level manpower. Em ­

ployers expected this ratio would prevail for 

sev eral years because the schools do not produce enough m iddle-level technicians.

Most of the report covers the output of 

technical training facilities at all levels. Although the data are not p recise (because of poor 

statistics and conflicting definitions), the author 

fe e ls that Mexican educational institutions have 

not adjusted to the needs of industry. The Mexican 

system em phasizes professional-level program s at the expense of m iddle-level technical

p rogram s, resulting in profession als having to do 

work norm ally assigned to technicians. The d isparity between upper-level and m iddle-level 

training is explained by problem s in the industrial job m arket, inaction and insufficient 

funds in the education system , and the nature 

of the social demand for education. Industry 

has rem ained productive because it has found 

other sources of manpower. Unless a m ajor 

effort is made to overcom e the main problem s 

currently besetting technical education, the 

steadily increasing need for middle- and highlevel manpower will sharply outstrip supply.

X/ Banco de Mexico, Departamento de Investigaciones In d u stria ls, El Empleo de P e rsonal T ecn icoenlaln dustriade Transform acion, 

1959.

2 J Asociacion Nacional de Universidades e 

Institutos de Ensenanza Superior, LaEnsenanze 

de la Ingenieria en Mexico, 1962.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Nicaragua

Manpower Development in N icaragua’ s Socio-Econom ic Planning

(1962; 25 pages)

F ran cis X. Gannon, AID Labor Specialist

Suggested proposals for labor adm inistration, training, 

and education.

The Nicaraguan Government, through its variious m in istries and agencies, is embarking upon 

program s of industrial incentives and agrarian 

reform . The proposals of the expert are designed 

to contribute to the su cce ss of these economic 

program s.

1. A National Apprenticeship Program should 

be created to improve job sk ills of w orkers and 

to provide job training opportunities to new labor 

force entrants. All form s of skill training activities would be included.

20 The National Employment Service should 

be strengthened and provided guidelines to a s s is t 

w orkers in getting jobs. Its serv ice s should be

expanded to serve all the needs of w orkers and to 

coordinate with related activities of other agenc ie s.

3. The Labor Statistics Section of the M inistry of Labor should collect, com pile, and analyze a wide variety of manpower information to 

supply the Planning Office with current and r e liable data.

4. The various cooperatives should coordinate their activities to avoid duplication and to 

share in the knowledge each has gained. A National Cooperative Council should be created a s 

part of the Office of National Social and Economic 

Planning and Coordination.

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Federal Reserve Bank of St. Louis
Am erican Republics 

N icaragua

Population Growth R ates 

and Economic Development in Nicaragua 

(1967; 169 pages)

Peter Newman and R. H. Allen, prepared for AID 

by Robert R. Nathan A sso ciates, Inc., Washington, D. C.

A detailed and technical report using modern techniques of demographic and economic an alysis to d iscover significant relationships between rates of population growth and economic development.

This study p rojects the m ajor ch aracteristics 

of the economy nearly 50 y e ars into the future 

and evaluates the differential effects of alternative fertility ra te s on the various segm ents 

of the economy. Three alternative population 

projections (designated high, medium, and low) 

by age and sex distribution, were made from 1963 

to 2013.

The m ajor portion of the an alysis evaluates 

the differences among the high, medium, and low 

population projections in their im pact on National 

income, investment, and consumption over the 

50-year span. An economic model was form ulated to take account of the effect on total production of variations in size of the labor force,

simultaneously with the effect on the availability of capital for productive investment of 

varying numbers of consum ers and their propensity to save. The im plications of the alternative projections also are examined for their 

effect on education, public health, housing, and 

foreign borrowing and balance of payments.

The m ost significant finding is that substantial differences in production, investment, 

and consumption per equivalent adult consum er 

appear between the high and medium and between 

the medium and low fertility rates. The sm aller 

population in each case would fare better in a 

m aterial sen se than the la rg er population. The 

advantages of low fertility are described.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Panama

Some Guidelines for the P ro c e ss of Implementing the Activity Target 

for Manpower Development and Utilization for USAID/Panam a/ 

(1964; 8 pages and 5 appendixes)

Robert J . Clay, AID Manpower A dviser (ROCAP)

This is one of three reconnaissance studies on manpower 

requirem ents, reso u rces, and utilization for the urban 

sector in Panama.

The purpose of this report is to propose a 

plan of action to fo ster a dynamic strategy for 

human reso u rces development and utilization, 

and to a s s is t the Government in establishing a 

manpower service and in developing a p ro g re ssive labor union movement.

USAID should be ready to offer assistan ce in 

any way a s the Government needs and requests 

it.

Recommendations

The Government of Panam a should:

1. Ratify ILO convention No. 88 (appendix D 

in Spanish) relative to the organization of an em ­

ployment service.

20 Create a human reso u rces development 

and utilization center to provide broader employment serv ice s.

3. Provide a high-level advisory and coordinating body made up of representatives from 

government, industry, and labor.

4. Adopt m easu res to encourage a strong 

labor movement. The Am erican Institute for 

F ree Labor Development (AIFLD) may provide 

training for labor lead ers in preparation for a 

national labor movement.

5. Adopt m easu res (e.g., labor-intensive investm ents) to utilize unemployed and underemployed human capital and to improve existing 

sk ills to upgrade work force.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Panam a

Population, Labor Force, and Employment in Panam a 

(1965; 66 pages)

D r. Norman G. Pauling, AID Manpower Planning Consultant

This is one of three reconnaissance studies on manpower 

requirem ents, re so u rce s, and utilization for the urban 

sector in Panam a.

Using census data and other lim ited available 

information, the report attem pts to identify the 

incidence and cause of unemployment, the charac te ristics of the unemployed, and the relation of 

unemployment to other m ajor social and 

economic trends.

Detailed statistic s (1960 data) on population 

and labor force are provided. At the current 

growth rate of 2.9 percent, the population will 

double in 25 years. Over 43 percent of the population are under 15 years of age. Nearly 42 

percent of the population are in the labor force, 

and 11 percent of those in the labor force are 

unemployed. The report also provides detailed 

statistical data on the ch aracteristics of the 

labor force and on the unemployed.

Population and labor force growth relative 

to economic growth are analyzed. Although GNP 

grew at an average annual rate of 5.85 percent, 

com pared with a population growth rate of 2.9 

percent, the resulting per capita gain does not 

give a clear picture of the actual situation. The 

average g ro ss product per capita is still very 

low. P er capita figu res tend to be m isleading

because they fail to reflect unequal participation 

of individuals and various economic groups in 

the benefits of economic growth.

Taking into account all available data, a 

GNP annual growth rate of 8.5 percent would be 

needed to absorb the anticipated in crease in 

the labor force. Such a rate of growth im plies 

a doubling of the economy every 8 1/2 y e a rs—an 

unlikely feat.

Many recommendations and suggestions are 

discu ssed in detail. Some of the m ost important 

are:

1. Panam anians must seek som e acceptable 

m eans to lim it the rapid rate of population growth.

2. Economic growth must be stim ulated.

3. An integrated manpower program and 

coordinating agency must be developed.

4. Educational program s of all kinds must 

be expanded.

5. A National Employment Service must be 

introduced.

6. A strong and stable labor movement 

m ust be encouraged.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Panama

A Survey Report on Vacancy Training Needs 

in Selected Occupations in the Panama City Metropolitan A rea 

(1966; 37 pages)

DOLITAC J ./ Staff Paper No. 44; Allan Broehl, Labor Analyst

A nalysis of the resu lts of the vacancy training needs 

survey. More training is required, and a re as of potential 

employment are identified.

The Education for Development Survey (vacancy training needs survey) was carried out by 

the Institute for Development and the Center for 

Industrial Development and Productivity. It was 

a sam ple survey of establishm ents employing 

five blue-collar w orkers or more in the Panama 

City area.

The purpose of the survey was to identify 

training needs in private establishm ents. T rain ­

ing needs were divided into three groups: ex isting job vacancies, projected employment needs, 

and presently employed w orkers needing additional on-the-job or w ork-related training.

The analysis of the data from the survey 

covers details of occupations for on-the-job and 

w ork-related training. Suggestions are also p resented for expanding employment opportunities 

in the private sector and for establishing an Em ­

ployment Service. Methodology and coverage of 

the survey are described.

Summary and recommendations

1. The two outstanding observations were: 

(a) the very low level of frictional unemployment

indicated by the lim ited number of unfilled jobs; 

and (b) the large percentage of skilled and sem iskilled workers (15 percent) who need training. 

M arginal productivity of existing w orkers is low. 

If productivity of existing w orkers were raised 

through training, em ployers probably would hire 

additional w orkers.

2. Because the Pan-Canal Company is the 

m ost significant potential em ployer, training 

program s should be coordinated with Canal Zone 

authorities.

3. Potential employment in the above are a s 

will not meet all the needs for a higher level of 

employment. New sources of employment must 

be sought in manufacturing, construction, and 

agriculture.

4. Attention should be given to expanding and 

updating; the vocational education system to meet 

the needs of the local community.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

129

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

P a n a m a

T e s t in g an d C o u n se lin g in P a n a m a 

(1 9 6 7 ; 9 p a g e s )

D O L IT A C 1 / S t a ff P a p e r N o. 50;

H e n d ric C . M u g a a s , T e s t in g an d C o u n se lin g E x p e r t

D e s c r ip t io n o f on e f a c e t o f A ID ’ S M a n p o w er T r a in in g 

an d U tiliz a tio n P r o je c t in P a n a m a .

T h e p u r p o s e o f th e a s s ig n m e n t w a s to a s s i s t 

th e D ir e c t o r o f th e A ID P r o je c t in th e fo llo w in g 

a r e a s :

1 . A n a ly s is o f th e t e s t in g an d c o u n se lin g 

n e e d s in th e c o u n try .

2 . E s t a b lis h m e n t o f a t e s t in g an d c o u n se lin g 

u n it to s e r v e th e In stitu te o f H u m an R e s o u r c e s 

D e v e lo p m e n t (IF A R H U ) an d th e M in is tr y o f 

L a b o r .

3. T r a in in g o f p e r s o n n e l a s s ig n e d to th e u n it.

4 . D e v e lo p m e n t o f a p r o g r a m an d p r o c e d u r e s 

f o r th e u n it.

IF A R H U e s t i m a t e s th a t 1 5 ,0 0 0 skilled 

w o r k e r s w ill b e n e e d e d b y 1 9 7 0 ; th e p r e s e n t 

sc h o o l s y s t e m c a n p r o v id e o n ly 3 ,0 0 0 a d e q u a te ly 

t r a in e d w o r k e r s . T h e r e p o r t d e s c r i b e s th e 

v a r i o u s p r o je c t s w h ich a r e d e s ig n e d to t r a in 

a d d itio n a l w o r k e r s e s p e c i a ll y in th e c o n s tr u c tio n 

t r a d e s , p r in tin g t r a d e s , an d g a r m e n t an d sh o e 

m a n u fa c tu r e . T e s t in g an d c o u n s e lin g s e r v i c e s 

w ill h a v e to b e d e v e lo p e d to s e l e c t t r a i n e e s f o r 

t h e s e jo b s .

IF A R H U h a s p r o g r e s s e d in u s in g t e s tin g d e ­

v i c e s , su c h a s th e G .A .T .B . T h e e x p e r t a n a ly z e d 

th e t e s t d e v e lo p m e n t w o rk f r o m s e v e r a l c o u n t r ie s

to g e t v a lid n o r m s f o r u s e in P a n a m a . T h e v a r ­

io u s t e s t in g d e v ic e s a r e d e s c r ib e d . M a n u a ls an d 

g u id e s in v a r i o u s a s p e c t s o f t e s t in g an d c o u n ­

s e lin g w e re p r e p a r e d an d t r a n s la t e d .

IF A R H U i s b e s t s it u a t e d f o r d e m o n s t r a t in g 

th e im p o r ta n c e o f t e s t in g an d c o u n s e lin g an d f o r 

p r o v id in g g o o d t r a in in g e x p e r ie n c e f o r fu tu re 

E m p lo y m e n t S e r v ic e p e r s o n n e l.

IF A R H U c a n o b ta in p o p u la tio n d a ta on w h ich 

to e s t a b li s h an o c c u p a tio n a l d is tr ib u t io n o f w o rk ­

e r s . B y a p p ly in g c e r t a in te c h n iq u e s ( s e e A1 C r u z 

r e p o r t to V e n e z u e la , 1 9 6 7 ), a sta n d a r d iz a t io n 

stu d y b a s e d on th e w o rk in g p o p u la tio n o f P a n a m a 

C ity c a n b e d e s ig n e d .

If th e M a n p o w er T r a in in g an d U tiliz a tio n 

P r o je c t a c t i v i t i e s an d th o s e o f IF A R H U a r e m a in ­

ta in e d , te c h n ic ia n a s s i s t a n c e sh o u ld b e o b ta in e d 

f o r th e t e s t d e v e lo p m e n t s t u d ie s an d jo b a n a l y s i s 

w o rk .

1 / U .S . D e p a r tm e n t o f L a b o r In te r n a tio n a l 

T e c h n ic a l A s s i s t a n c e C o r p s .

130

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

P e r u

S o u th e rn P e r u M an p o w er S tu d y 

(1 9 5 9 ; 27 p a g e s )

W illia m M a so n , IL O M a n p o w er A d v is e r (U n ite d K in g d o m )

C u r r e n t su p p ly o f an d p o te n tia l d e m a n d f o r m a n p o w e r 

in th e c o m m e r c ia l an d in d u s tr ia l s e c t o r s a r e a n a ly z e d 

in t h is r e p o r t .

C o v e r in g 14 c i t i e s in S o u th e rn P e r u , a s u r ­

v e y o f 1 ,6 0 0 e s t a b lis h m e n t s e m p lo y in g 3 0 ,6 0 0 

w o r k e r s w a s c o n d u c te d . C e r t a in h a n d ic a p s m a d e 

a n a l y s i s o f th e r e s u l t s o f th e s u r v e y d iffic u lt. 

F o r e x a m p le , no p r e v io u s d a t a ( l a s t c e n s u s w a s 

in 1 940) w e re a v a ila b le to m a k e a tr e n d o r c o m ­

p a r a t iv e a n a l y s i s . In a d d itio n , e m p lo y e r s d i s ­

t r u s t e d th e p u r p o s e o f th e s u r v e y an d fou n d d iff ic u lty in v is u a liz in g fu tu re p r o s p e c t s . T im e an d 

m o n e y lim it a t io n s , in a d d itio n to th e r a in y s e a ­

so n , d e la y e d th e w o rk o f th e stu d y g ro u p .

A n a n a l y s i s o f th e stu d y r e v e a le d th a t, s in c e 

a g r ic u lt u r e d o m in a te s th e e c o n o m y in th e so u th , 

c i t i e s s e r v e p r im a r il y a s m a r k e tin g c e n t e r s f o r 

a g r i c u l t u r a l ou tp u t. C o m m e r c ia l a c t i v i t i e s r e p ­

r e s e n t n e a r ly t w o - th ir d s o f to ta l a c t i v i t i e s ; an d 

m a n u fa c tu r in g , n e a r ly o n e - th ir d . O v e r 70 p e r c e n t 

o f th e e s t a b lis h m e n t s a r e fa m ily ow ned an d o p ­

e r a t e d , o f w h ich 61 p e r c e n t e m p lo y fe w e r th an 5 

workers.

T h e n o n fa rm la b o r f o r c e o f so u th e rn P e r u i s 

n ot d is tr ib u t e d in d i r e c t p r o p o r tio n to th e n u m b e r 

o f e s t a b lis h m e n t s in e a c h e c o n o m ic a c tiv ity . 

M a n u fa c tu rin g an d c o n s tr u c tio n e a c h e m p lo y 

a b o u t 30 p e r c e n t o f th e la b o r f o r c e ; an d c o m ­

m e r c e , ab o u t 20 p e r c e n t. N e a r ly a fo u rth o f th e

la b o r f o r c e a r e w o m en , m o s t ly in c o m m e r c ia l 

a c t i v i t i e s . T h e v o lu m e o f m ig r a t io n to u rb a n 

a r e a s i s h ig h , r e s u lt in g in a s u r p lu s o f u n s k ille d 

la b o r in th e s e a r e a s .

T h e s u r v e y r e v e a le d a la c k o f m a n p o w e r 

t r a in in g an d d e v e lo p m e n t p la n s o r p r o g r a m s in 

e s t a b lis h m e n t s . G e n e r a lly , r e s p o n d e n t s w e re n ot 

c o n c e r n e d w ith la b o r p r o b le m s o r w ith fu tu re 

n e e d s o f t h e ir e s t a b lis h m e n t s . O nly a fe w in d ic a t e d th e y w e r e u n a b le to f ill p o s it io n s b e c a u s e 

o f la c k o f q u a lifie d p e r s o n n e l. A b o u t 8 p e r c e n t 

sh o w e d s o m e c o n c e r n o v e r fu tu re n e e d s .

I l l i t e r a c y (70 p e r c e n t) an d la n g u a g e d if f ic u lt i e s (o n ly 28 p e r c e n t s p e a k S p a n ish ) a r e th e m a ­

jo r d e t e r r e n t s to a w e ll q u a lifie d la b o r f o r c e . 

U n iv e r s it y e d u c a tio n i s lim it e d to th e l ib e r a l 

a r t s , an d te c h n ic a l e d u c a tio n a t a ll l e v e l s i s 

s c a r c e .

R e c o m m e n d a tio n s in c lu d e d (1) a c u r t a ilm e n t 

o f o u t - m ig r a t io n o f w o r k e r s b y p r o v id in g e m ­

p lo y m e n t o p p o r tu n itie s to r a i s e liv in g s t a n d a r d s ; 

(2) d e v e lo p m e n t o f w o rk s k i l l s o f la b o r f o r c e ; (3) 

in te g r a tio n o f In d ia n s in to so c io e c o n o m ic lif e ; (4) 

c o n tin u a tio n o f e s t a b lis h m e n t stu d y b y E m p lo y ­

m e n t S e r v ic e O ffic e ; an d (5) u s e o f 1960 C e n s u s 

o f P o p u la tio n a s a b a s i c s t a t i s t i c a l to o l.

131

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

P e r u

L a b o r M a r k e t R e p o r tin g P r o g r a m o f S C E P 

(1 9 6 0 ; 7 p a g e s )

H o m e r J . F r e e m a n , A ID L a b o r M a r k e t C o n su lta n t

D e s c r i b e s v a r io u s jo b m a r k e t s u r v e y s an d s u m m a r iz e s 

r e c o m m e n d a tio n s s te m m in g f r o m t h e s e s u r v e y s .

T h e m a jo r r e c u r r i n g s u r v e y s now b e in g c o n ­

d u c te d b y e ig h t s t a f f m e m b e r s in th e I n v e s t ig a ­

tio n s an d S t a t i s t i c s D iv is io n o f th e C o o p e r a tiv e 

E m p lo y m e n t S e r v i c e (S C E P ) a r e :

1. Q u a r te r ly s u r v e y s o f e m p lo y m e n t, h o u r s , 

e a r n in g s , an d jo b m a r k e t tu r n o v e r .

2 . Q u a r te r ly s u r v e y s o f la b o r d is p u t e s .

3 . S p e c ia l s u r v e y o f m in in g in d u s tr y .

S p e c ia l o n e - tim e s u r v e y s a v a ila b le f o r a n a ­

l y s i s a r e :

1 . M an p o w er stu d y o f S o u th e rn P e r u (1 9 5 9 ).

2 . S p e c ia l stu d y on th e b a n k in g in d u s tr y 

(1 9 5 9 ).

3 . S tu d y o f new f i r m s e s t a b lis h e d d u r in g 

1 9 5 9 .

4 . D ir e c t o r y o f la b o r u n io n s.

5« N u m b e r o f p u b lic e m p lo y e e s in e a c h o f 

th e g o v e rn m e n t a g e n c ie s .

6 o S tu d y o f s a l a r i e s b y o c c u p a tio n (1 9 5 9 ).

7 . M a n p o w e r stu d y on N o r th e r n P e r u (1 9 6 0 ).

B a s e d on th e r e s u l t s o f t h e s e s t u d ie s , r e c o m ­

m e n d a tio n s a r e p r o v id e d , a lo n g w ith a tim e ta b le 

f o r t h e ir in itia tio n a n d c o m p le tio n :

1. O b ta in e s t i m a t e s o f t o t a l n o n fa r m e m p lo y ­

m e n t f o r b e n c h m a r k p u r p o s e s .

2 . M ak e e m p lo y m e n t d a ta c o m p a r a b le f r o m 

o n e p e r io d to a n o th e r b y u s in g lin k - r e la t iv e 

m e th o d .

3 . P u b lis h f in e r in d u s t r ia l b re a k d o w n s w h en ­

e v e r s a m p le i s l a r g e en o u gh to sh o w d e t a il.

4 . M ak e b e t t e r u s e o f s t r a t i f ie d s a m p lin g 

te c h n iq u e s.

5. Show m o r e c o m p a r is o n s o f th e c u r r e n t 

p e r io d w ith o th e r p e r i o d s to sh o w t r e n d s in e m ­

p lo y m e n t.

6 . P r e p a r e m o r e c o m p r e h e n s iv e a n a l y s i s o f 

s t a t i s t i c a l d a t a to e x p la in b a s i c r e a s o n s f o r 

c h a n g e s .

7 . In tro d u c e b e t t e r m e th o d s to c o m p u te w a g e 

in fo r m a tio n .

8 . P r e p a r e m o r e d e t a ile d w r itte n in s t r u c ­

t io n s .

9 . C o n s id e r im p r o v in g th e p r e s e n t s y s t e m o f 

r e l e a s i n g in fo r m a tio n .

1 0 . M ak e b e t t e r u s e o f p a y r o ll in fo r m a tio n 

f r o m e s t a b lis h m e n t s .

132

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

P e r u

M a n p o w er In fo rm a tio n P r o g r a m (S C E P )

(In S p a n ish ; 1 9 6 1 ; 3 4 p a g e s )

IL O R e p o r t to th e G o v e rn m e n t o f th e R e p u b lic o f P e r u ; 

O I T / T A P / P e r u / R .7 ; W illia m M a so n , M a n p o w er A d v is e r (G r e a t B r it a in )

A r e p o r t on th e s t a t u s o f th e f a c t - fin d in g an d p u b ­

lis h in g fu n c tio n s o f th e E m p lo y m e n t S e r v ic e .

T h e C o o p e r a tiv e E m p lo y m e n t S e r v ic e (S C E P ) 

s t a r t e d in 1951 u n d e r the d ir e c t io n o f th e M in ­

i s t r y o f L a b o r . T h e D iv is io n o f In v e s t ig a tio n s 

an d S t a t i s t i c s (10 e m p lo y e e s ) c o n d u c ts s u r v e y s 

an d o th e r w is e g a t h e r s s t a t i s t i c a l in fo r m a tio n . 

T h e D iv is io n o f T e c h n ic a l S e r v i c e s (8 e m p lo y e e s ) 

s t u d ie s an d a n a ly z e s t h e s e d a t a . In a d d itio n , th e r e 

a r e s e v e r a l lo c a l p la c e m e n t o f f i c e s in th e l a r g e r 

e m p lo y m e n t c e n t e r s .

T h e v a r i o u s s u r v e y s co n d u c te d b y th e E m ­

p lo y m e n t S e r v ic e an d in fo r m a tio n fr o m o th e r 

s o u r c e s a r e d i s c u s s e d f o r u tiliz a t io n in a m a n ­

p o w e r d e v e lo p m e n t p r o g r a m . F o r e x a m p le , d e ­

m o g r a p h ic in fo r m a tio n c a n b e u s e d to a n a ly z e an d 

p r o je c t th e su p p ly o f m a n p o w e r; in d u s tr y an d o c ­

c u p a tio n a l e m p lo y m e n t s e r i e s s e r v e s a s th e 

b a s i s f o r stu d y in g th e d e m a n d f o r m a n p o w e r a t 

e a c h le v e l o f s k i l l. S u g g e s t io n s a r e m a d e on how 

o th e r s o u r c e s o f d a ta r e la t in g to m a n p o w e r c a n 

b e in c o r p o r a t e d in th e a n a l y s i s in o r d e r to und e r s ta n d th e s o c i a l an d e c o n o m ic d e v e lo p m e n t in 

P e r u .

O ne o f th e t a s k s o f th e c o n s u lta n t w a s to d e ­

v e lo p a t r a in in g p r o g r a m f o r th e p r o f e s s i o n a l 

e m p lo y e e s o f th e E m p lo y m e n t S e r v i c e . T o p ic s 

in c lu d e d the fo llo w in g : te c h n iq u e s f o r a n a ly z in g 

jo b m a r k e t in fo r m a tio n , a n a l y s i s an d i n t e r p r e ­

ta tio n o f m a n p o w e r in fo r m a tio n , an d te c h n iq u e s 

o f r e p o r t w r itin g .

S e v e r a l r e c o m m e n d a tio n s w e re m a d e to im ­

p r o v e E m p lo y m e n t S e r v ic e a c t i v i t i e s , in c lu d in g 

d a t a - c o lle c t io n te c h n iq u e s, d a t a a n a l y s i s , c o o r ­

d i n a t i o n ^ s u r v e y s to a v o id o v e r la p p in g o r d u p ­

lic a tio n , an d p r e p a r a t io n o f th e r e p o r t s on m a n ­

p o w e r. F u r t h e r r e c o m m e n d a tio n s c o n c e r n e d th e 

u s e o f t h e s e d a t a a s a b a s i s f o r th e m a n p o w e r 

d e v e lo p m e n t a s p e c t o f th e c o u n tr y ’ s d e v e lo p m e n t 

p la n .

T h e a p p e n d ix p r o v id e s s a m p le q u e s t io n n a ir e s 

on jo b p la c e m e n t , an d u s e s o f L a b o r S t a t i s t i c a l 

B u lle tin . A n e x a m p le o f a jo b m a r k e t r e p o r t a l s o 

i s p r o v id e d .

133

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

P e r u

M is s io n to P e r u

M a n p o w e r M e m o N o. 2 ; G e n e r a l C o m m e n ts 

(1 9 6 3 ; 22 p a g e s )

D O L IT A C J l/ S ta ff P a p e r N o. 4 0 ;

E u g e n e D . V in o g ra d o ff, M a n p o w er A d v is e r

I m p r e s s io n s o f P e r u ’ s m a n p o w e r p r o b le m s a r e p r e ­

s e n t e d an d an o v e r a l l p r o g r a m i s o u tlin e d .

D e s p it e a r e la t i v e l y h ig h r a t e o f e c o n o m ic 

g ro w th in P e r u , u r b a n u n e m p lo y m e n t an d u n d e r ­

e m p lo y m e n t m a y i n c r e a s e b e c a u s e o f r a p id la b o r 

f o r c e g ro w th an d h e a v y r u r a l im m ig r a t io n . A n 

a c c e l e r a t e d r a t e o f e c o n o m ic g ro w th h a s b e e n 

h a m p e r e d b e c a u s e o f s h o r t a g e s o f skilled 

w o r k e r s ; in a d e q u a te b a s i c e d u c a tio n ; lo w p r o ­

d u c tiv ity , in c o m e , an d p u r c h a s in g p o w e r; r i g i d i ­

t i e s in s o c i a l w e lfa r e p r o g r a m s ; an d in a d e q u a te 

s u p p o r tin g p r o g r a m s in h o u sin g , h e a lth , an d 

c o m m u n ity f a c i l i t i e s . T h e s e an d o th e r p r o b le m s 

in b o th u rb a n an d r u r a l a r e a s c r e a t e p r e s s u r e s 

on th e g o v e rn m e n t. L a b o r u n r e s t p lu s p o te n tia l 

in s ta b ilit y o f th e g o v e rn m e n t m a y e n d a n g e r 

d e m o c r a t ic in s tit u t io n s . T h e o n ly so lu tio n i s to 

a c c e l e r a t e a c t iv ity in th e p u b lic s e c t o r (in t e r m s 

o f e m p lo y m e n t an d s o c i a l r e f o r m ) an d to s t im u ­

la t e p r iv a t e in it ia t iv e .

S p e c if ic a lly , 1 0 0 ,0 0 0 new jo b s a n n u a lly a r e 

n e e d e d in u rb a n a r e a s ju s t to ta k e c a r e o f th e

i n c r e a s i n g la b o r f o r c e . G o v e rn m e n t an d p r iv a t e 

in d u s tr y e x p a n s io n sh o u ld b e r e v ie w e d in t e r m s o f 

jo b s c r e a t e d p e r d o lla r in v e s t e d . T h e c o n s t r u c ­

tio n in d u s tr y i s th e m o s t lik e ly a r e a f o r jo b c r e a ­

tio n a c t i v i t i e s in th e s h o r t t e r m f o r u n s k ille d 

w o r k e r s . A b ou t 3 0 ,0 0 0 jo b s a r e n e e d e d a n n u a lly 

in r u r a l a r e a s . F u n d s an d s t a f f sh o u ld b e p r o v id e d 

to p r o m o te m e a s u r e s f o r la b o r - in t e n s iv e a c t i v i ­

t i e s an d to d e c r e a s e m ig r a t io n to u rb a n a r e a s .

R e c o m m e n d a tio n s a l s o w e re m a d e r e g a r d in g 

s o c i a l w e lfa r e le g i s l a t i o n , t y p e s o f m a n p o w e r 

s t u d i e s , im p r o v in g s k i l l s in la b o r f o r c e , an d 

r a i s i n g in c o m e l e v e l s . T h e s e v e r a l a g e n c ie s 

in v o lv e d in p r o g r a m s a ffe c t in g h u m an r e s o u r c e s 

sh o u ld c o o r d in a te t h e ir a c t i v i t i e s .

J J U .S . D e p a r tm e n t o f L a b o r In te r n a tio n a l 

T e c h n ic a l A s s i s t a n c e C o r p s .

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Federal Reserve Bank of St. Louis
A m e r ic a n R e p u b lic s 

P e r u

M is s io n to P e r u

M a n p o w e r M e m o N o. 3: S p e c ific S u g g e s t io n s 

(1 9 6 3 ; 11 p a g e s )

E u g e n e D . V in o g ra d o ff, M an p o w er A d v is e r

S p e c if ic s t e p s th a t th e h u m an r e s o u r c e s g ro u p in th e 

M in is tr y o f L a b o r sh o u ld u n d e rta k e to d e v e lo p a m a n ­

p o w e r p r o g r a m .

T h e e c o n o m ic d e v e lo p m e n t p la n s e r v e s a s a 

b a s e f o r th e m a n p o w e r d e v e lo p m e n t p r o g r a m . 

O n ce p r o je c t io n s o f th e w h ole e c o n o m y a r e m a d e , 

m a n p o w e r su p p ly an d d e m a n d d a t a th en c a n b e 

r e la t e d to th e e c o n o m ic d e v e lo p m e n t p la n . In th e 

a b s e n c e o f an e c o n o m ic in v e stm e n t p la n , a v a i l ­

a b le p r e lim in a r y m a n p o w e r d a t a sh o u ld b e c o l ­

le c te d an d a n a ly z e d .

D e m an d d a ta c a n b e o b ta in e d b y re v ie w in g 

c u r r e n t in d u s tr y - o c c u p a tio n a l s t a f f in g p a t t e r n s 

f o r p u b lic an d p r iv a t e s e c t o r s , a n a ly z in g t h e s e 

d a t a , an d d e v e lo p in g p r o je c t io n s o f s t a f f in g p a t ­

t e r n s b a s e d on e c o n o m ic p la n s .

S u p p ly d a ta c a n b e o b ta in e d b y r e v ie w in g c u r ­

r e n t la b o r su p p ly b a s e d on e m p lo y m e n t s e r v i c e 

in fo r m a tio n an d d e te r m in in g fu tu r e su p p ly o f 

s k i l l s f r o m e d u c a tio n a l an d t r a in in g in s titu tio n s .

B e n c h m a r k s t u d ie s a r e im p o r ta n t to d e t e r ­

m in e p o in ts o f d e p a r tu r e f o r p r o g r a m d e v e lo p ­

m e n t. C e n s u s d a t a an d la b o r f o r c e s u r v e y s c a n 

p r o v id e th e n e c e s s a r y b e n c h m a r k s f o r la b o r s u p ­

p ly . R o u g h a p p r o x im a t io n s a r e a d e q u a te f o r t h e s e 

f i r s t - t i m e a n a l y s e s . A n a n n u al r e v ie w o f su p p ly 

an d d e m a n d f o r c r i t i c a l l y s h o r t o c c u p a tio n s i s 

n e c e s s a r y to g u id e t r a in in g in s titu tio n s .

L a c k o f c l o s e c o o p e r a tio n a m o n g th e v a r io u s 

a g e n c ie s in v o lv e d in m a n p o w e r a c t iv ity p r e v e n t s 

e a s y c o lle c t io n an d a n a l y s i s o f d a t a an d h in d e r s 

th e o v e r a ll m a n p o w e r d e v e lo p m e n t p r o g r a m . 

T h e r e f o r e , it w a s s u g g e s t e d th a t a s t a t i s t i c a l 

c o o r d in a tin g c o m m itte e b e e s t a b lis h e d an d s t i m ­

u la te d in to a c tio n . T h is c o m m itte e w o u ld s e t th e 

s t a n d a r d s an d g u id e p o s t s to p r o v id e fa c t u a l d a t a 

n e e d e d f o r p la n n in g .

S e v e r a l r e c o m m e n d a tio n s c o v e r e d d e t a il s o f 

s t a f f fu n c tio n s an d m e c h a n ic s o f g e ttin g m a t e ­

r i a l s p u b lis h e d an d in to th e h a n d s o f th e u s e r . 

A ft e r th e e c o n o m ic in v e stm e n t p la n h a s b e e n d e ­

v e lo p e d , e s t i m a t e s o f m a n p o w e r r e q u ir e m e n t s 

c a n b e r e fin e d . T h e su p p ly an d d e m a n d b a la n c e 

s h e e t c a n b e d e v e lo p e d in g r e a t e r d e t a il th ro u g h 

s u r v e y s o f e m p lo y e r s an d o f e d u c a tio n a l in s tit u ­

t io n s . S u p p ly an d d e m a n d r e p o r t s sh o u ld b e p r e ­

p a r e d f o r e a c h m a jo r m e tr o p o lita n a r e a . S u m ­

m a r y r e p o r t s sh o u ld b e p r e p a r e d an d d is tr ib u t e d 

to u s e r s , an d o c c u p a tio n a l g u id a n c e m a t e r i a l s 

sh o u ld b e d is tr ib u t e d to y o u n g p e o p le . S e v e r a l 

o th e r r e p o r t s a l s o a r e s u g g e s t e d .

M e th o d s o f im p le m e n tin g th e m a n p o w e r p r o ­

g r a m a r e d i s c u s s e d an d s u m m a r iz e d a s a g u id e 

f o r A ID ’ S r o le in a s s i s t a n c e .

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A m e r ic a n R e p u b lic s 

P e r u

Im p r o v e m e n t o f th e E m p lo y m e n t In fo rm a tio n P r o g r a m 

in th e E m p lo y m e n t an d H u m an R e s o u r c e s S e r v ic e (S E R H ) 

(In S p a n ish ; 1 9 6 3 ; 41 p a g e s )

IL O R e p o r t to th e G o v e rn m e n t o f P e r u , O I T / T A P / P e r u / R .8 ; 

A rn o ld V . T o t tle , M a n p o w er A d v is e r (G r e a t B r it a in )

D e s c r i b e s th e o r g a n iz a t io n o f th e E m p lo y m e n t an d 

H u m an R e s o u r c e s S e r v ic e an d th e e m p lo y m e n t in f o r m a ­

tio n p r o g r a m an d m a k e s r e c o m m e n d a tio n s f o r th e ir 

im p r o v e m e n t.

Up to th e en d o f 1 9 6 2 , th e C o o p e r a tiv e E m ­

p lo y m e n t S e r v ic e in P e r u h a d b e e n o p e r a t in g 

w ith th e a s s i s t a n c e o f U SA ID . A t th a t tim e , 

U SA ID r e t i r e d f r o m i t s c o o p e r a t iv e a g r e e m e n t 

w h ich le f t the fin a n c in g o f th e S e r v i c e f a ll on the 

G o v e rn m e n t o f P e r u . A new d e c r e e s u b stitu te d 

th e C o o p e r a tiv e E m p lo y m e n t S e r v ic e f o r a n ew 

se m ia u to n o m u s o r g a n iz a t io n c a lle d th e E m p lo y ­

m e n t an d H u m an R e s o u r c e s S e r v ic e (S E R H ). T h e 

o r g a n iz a t io n a l c h a r t o f th e n ew S e r v ic e ( a s o f 

1 963) a p p e a r s on p a g e 3 8 , an d i t s c o m p o n e n t 

m e m b e r s a p p e a r on p a g e 4 0 . A lth o u g h th e 

a d m in is t r a t io n i s in d ep en d en t, S E R H i s r e ­

s p o n s ib le to th e M in is te r o f L a b o r . A s h o r t d e s ­

c r ip t io n o f th e p r o g r a m o f h u m an r e s o u r c e s i s 

p r o v id e d .

T h e m a in p o r tio n o f th e r e p o r t d e a l s w ith the 

in fo r m a tio n p r o g r a m o f S E R H . T h e im p o r ta n c e

o f e x c h a n g in g in fo r m a tio n w ith e d u c a tio n an d 

t r a in in g c e n t e r s , e s p e c i a ll y w ith th e A p p r e n tic e ­

sh ip S e r v ic e (S E N A T I) i s e m p h a s iz e d . T h e t y p e s 

o f m a n p o w e r s t u d ie s th at h a v e b e e n m a d e a r e 

l is t e d . M o st o f th e m c o v e r e d jo b m a r k e t a r e a 

s t u d ie s an d e s t a b lis h m e n t s u r v e y s . S o m e o f th e 

p r o b le m s e n c o u n te re d a r e d e s c r i b e d an d s u g ­

g e s t io n s a r e m a d e to o v e r c o m e t h e s e p r o b le m s 

b y r e d e s ig n in g th e q u e s t io n n a ir e s o r m a k in g 

o th e r t e c h n ic a l a d ju s tm e n ts .

R e c o m m e n d a tio n s c o v e r e a c h p h a s e o f S E R H 

a c t i v i t i e s s u c h a s o r g a n iz a t io n , p e r s o n n e l (in ­

c lu d in g d u t ie s ) , a r e a fu n c tio n an d a c t i v i t i e s , an d 

th e r o le o f S E R H in th e e c o n o m ic d e v e lo p m e n t 

p r o g r a m o f P e r u . S u g g e s t io n s a l s o a r e m a d e 

r e g a r d in g n ew s u r v e y s an d t y p e s o f in fo r m a tio n 

r e q u ir e d to a n a ly z e th e fu tu re su p p ly an d d e ­

m a n d o f m a n p o w e r.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Surinam

Recommendations for the Development of 

Statistical Services in Surinam

Lloyd A. Prochnow, AID Statistical A dviser

Outlines the principal statistical se rie s which appear 

essen tial for effective planning in Surinam , current 

availablity of sta tistic s, and recommendations for their 

improvement and expansion.

In 1953, the Government of Surinam initiated 

a comprehensive 10-year development program 

for the improvement of levels of living for the 

populace. However, because of lack of current, 

reliable factual information, development projects were difficult to plan, execute, and a s s e s s .

At the present tim e, Surinam has a large 

quantity of statistical data collected by the General Bureau of Statistics; but there are gaps in 

coverage and collection. Considerable work is 

needed on compiling and improving data of 

im portance to planning officials.

The consultant d escrib es the u ses and methods of collection for each statistical study and the 

m easu res n ecessary for a program of economic

and manpower development, d iscu sse s the lim itations of current available data for each se rie s, 

and outlines a program for improving and expanding current se rie s. M ajor statistical su rveys are listed in order of priority; the recom ­

mendation is made that they be initiated as soon 

a s financial and technical reso u rces perm it.

Appendix I d escrib es in tabular form the 

sources of b asic statistical data in Surinam. Appendix II lists in tabular form the b asic sta tistical data and se rie s that are essen tial for a 

sound statistical program .

The organizational and staffing requirem ents 

of a statistical office are described, and recom ­

mendations are made for staff training and 

development.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Venezuela

Labor Statistics in Venezuela; Findings, Recommendations, 

and the Alliance for P ro g re ss 

(1963; 14 pages and 3 appendix tables)

Sherrill W, Neville, Labor Statistics A dviser,

(Utah State Employment Service)

Report d escrib es and evaluates the existing so u rces of 

manpower data and m akes recommendations for their 

improvement. A short section d escrib es the role of AID 

in improving technical manpower serv ice s.

The 1961 Census of Population shows evidence of undercount by nearly 6 percent because 

of faulty birth registration s and Census om issions, especially of children under 10 years of 

age. As a resu lt, population and labor force 

projections made by various agencies are not 

based on a true benchmark. Therefore, the 

Four-Y ear Plan (1963-1966) prepared by 

CORDIPLAN understates labor force growth 

and school attendance. CORDIPLAN has not 

planned for these undercounted new entrants 

who will probably not get a job. However, 

unemployment ra te s can be held to a minimum 

if (1) labor force entry of students were postponed through additional schooling and (2) em ­

ployment opportunities were expanded.

Several agencies produce statistic s which 

are needed for projection purposes: The M inistry 

of Labor’ s statistical office collects data each 

month on employment, hours, and earnings from

14,000 establishm ents covering 350,000 w orkers, 

about 35 percent of nonfarm w orkers. The 

Employment Service p rep ares a monthly report 

on job m arket information. The M inistry of

Fomento (Industrial Development) conducted 

the 1961 Census of Population and currently 

surveys manufacturing firm s to estim ate production. Fomento’ s Office of National Sampling 

also conducted a fam ily income and expenditure survey in 1962 and expects to do another 

in 1963. Banco Central estim ates unemployment in C aracas and publishes a cost-of-living 

index for the whole country. INCE published 

two surveys o f occupational employment in 

Venezuela. INCE also had surveyed apprenticeship needs in Valencia. The consultant enumerates the many other government and private 

agency studies on manpower.

Recommendations are directed toward the 

action n ecessary for the Government of Venezuela to develop a coordinated and reliable 

manpower development program . Further re c ­

ommendations are directed toward the role 

that AID should take to improve their serv ice s 

to help Venezuela achieve its manpower development goal. A listing of proposed AID technical se rv ice s for the 3-year period 1963 to 

1965 is provided.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Venezuela

INCE—Techniques of Self-Instruction 

(1963; 5 pages plus attachment)

Paul J. Grogan, AID Educational Consultant (University of Wisconsin)

The report d iscu sse s the possibility of adapting U.S. 

self-teaching techniques.

Several documents were prepared for use by 

the National Institute of Cooperative Education 

(INCE); only one is attached to this report. This 

report is a proposal to set up internships for 

INCE personnel in tutorial methods through the 

university extension system .

INCE has a rem arkable opportunity to present 

fully developed national program s in com m erc ia l, industrial, and technical education. The 

spectrum of opportunity is so broad that a som ewhat narrow choice of the various methods should 

be made for expanding the work of INCE in term s 

of meeting its training obligations. University 

extension has great potential for training in the 

various educational program s.

Followup Recommendations

1. Experiences in correspondence instruction gained in the proposed training program at 

the University of Wisconsin should be adapted to 

the widest possible usuage within the operations 

of INCE. For exam ple, all m aterials and methods 

in a re a s appropriate to the m ission of INCE 

should be reviewed, and the content and methodology should be adapted to the particular levels 

and purposes of INCE.

2. A correspondence instruction media consultant should return to Venezuela with the 

trainees to help them implement their knowledge 

and sk ills.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Venezuela

The Development of Human R esources in Venezuela 

An Overview 

(1964; 22 pages)

Dr. E li Ginzberg, Columbia University, at inviation of Instituto P ara el 

D esarrollo Economico y Social (Institute for Economic and Social Development)

An assessm en t of the range of actions that might be 

undertaken by nongovernment organizations to further 

develop and improve the nation’ s human reso u rces.

The m ajor portion of the report is devoted 

to observations and im pression s on the political, 

social, and economic development of Venezuela. 

This country has great natural rich es and an 

active and alert population. Many advances 

have been made both politically and industrially 

but its manpower development still faces many 

handicaps, such a s the low level of education 

and the underdeveloped state of its agriculture.

Under the dictatorship of P erez Jim enez, 

the government influenced the development of 

both natural reso u rces and construction activities. To c a rry out construction activities, men 

with high-level sk ills were imported, which 

undoubtedly retarded the development of sk ills 

of the local population. Current manpower 

program s should be developed to train local 

people in these sk ills.

In the la st few y ears, Venezuela has shifted 

from a predominantly agricultural society to 

an urbanized one. The cau ses and devastating 

resu lts of this rural-to-urban m igration are 

d iscu ssed at length. Although the development 

of industry is n ecessary to survive, agrarian 

reform should not be neglected. There are

real potentialities for economic and social gains 

in the agricultural sector. The fact that Venezuela im ports food, that the average nutritional 

level is below a desirable norm, that the urban 

are as have not been able to provide employment 

opportunities for in-m igrants, all point to the 

need for improving conditions of ru ral life.

The m ajor challenge on the manpower front 

that Venezuela faces in the short run is to 

stim ulate the expansion of employment. Improvement of human reso u rces over the long 

run requ ires a m arked expansion in the number 

and quality of schools, additional health m easu re s, improved housing, adequate nutritional 

levels, and strengthened fam ily structure. However, none of these gains will be possible without a rapid growth in economic development.

Some actions that a nonprofit private o rganization could initiate are: (1) collecting 

information on unemployed youth and reasons 

for their unemployment, (2) developing guidance 

counseling p rogram s, (3) promoting improved 

educational, health, and social se rv ice s in slum 

ru ral a re a s.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Venezuela

Organization of the National Employment Service 

(In Spanish; 1965; 40 pages)

M alcolm Kennedy, AID Manpower A dviser

This report presents in detail the activities and r e ­

sponsibilities of the various offices and staff m em bers 

in the Venezuelan Employment Service,

In the projected organizational pattern, the 

D irector of the National Employment Service 

will have an adm inistrative assistan t in charge 

of budget, finances, and personnel. Two divisions, responsible to the D irector, will serve as 

the principal offices to plan and develop program s and operations of the Employment Service. Each of these Divisions will head several 

specialized Departm ents.

1. The Division of P rogram s and Methods 

will plan and coordinate the various program s of

the Employment Service and develop the methods 

of carrying out these program s.

2. The Division of Operations will coordinate 

and supervise the activities of the regional and 

local offices in the national network.

Most of the report describ es the responsibilities of each Division and Department. Detailed 

job descriptions, including statem ents on knowledge and sk ills required for the job, are provided 

for staff m em bers at all levels.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Venezuela

National Manpower Training and Development 

Valencia Pilot Office of the National Employment Service 

(1965; 46 pages)

M orris J . Doren, AID Manpower Consultant

Experiences of setting up a pilot local employment 

service office in Venezuela.

Under AID au spices, a two-year plan was 

developed to establish a pilot local employment 

service office in Valencia which would set the 

pattern for a network of field offices of the 

National Employment Service. The b asic aim 

of the Venezuelan M inistry of Labor was to 

expand the present Manpower Division into an 

effective National Employment Service, 1 / in 

which the Valencia office would be a Demonstration and Training Center to develop p ersonnel for the National Office.

Valencia was selected because it is the 

center of an important com m ercial and trading 

are a and the location of many large employing 

establishm ents (mostly U.S. firm s). Valencia 

has a large and trainable labor force which 

lack s the n ecessary sk ills to m eet the expanding 

requirem ents of industry. There is also considerable concern in the area about high unemployment, rural-to-urban m igration, and the high 

birth rate.

The functions of the current local office, 

known a s the Placem ent Agency, were lim ited 

to the narrow est concept of an employment s e r ­

vice. The office reviewed job ord ers from em ­

ployers and job applicants were re f erred to these 

em ployers for interview. There were no technical supporting serv ice s n ecessary for an 

effective placem ent program .

The consultant recommended an appropriate 

course of action in the following m ajor are a s:

1. Improvement of the placem ent p ro cess 

in the Valencia office.

2. Reorganization of the employer visiting 

program in the Valencia office.

3. Improvement in the utilization and appearance of the p rem ises of the Valencia 

office.

4. Preparation at the National Office and 

in Valencia for the inception of an employment 

counseling and occupational testing program .

J / See Malcolm Kennedy report, June 1965, 

on organization of the National Employment 

Service.

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Federal Reserve Bank of St. Louis
Am erican Republics 

Venezuela

Apprenticeship and Industrial Training Report 

(1965; 15 pages)

John F. B arrett, AID Apprenticeship Consultant

D iscu sses the operations of INCE a s they affect apprenticeship development, the relationships of these 

operations with the labor laws of Venezuela, and the 

challenge to INCE under its charter to develop and

train the “total* man.

The consultant visited training centers in 

M aracaibo operated by National Institute for Cooperative Education (INCE) and by private oil 

com panies, and observed that m em bers of their 

training staffs have never visited each other. He 

arranged a few meetings and encouraged more 

exchange v isits.

The consultant also a ssiste d in orgainizing 

tripartite trade advisory com m ittees in B arquisim eto. Com m ittees were form ed in m ajor 

occupational are as; they proved quite su c c e ssful. Other INCE directors were encouraged to 

attend later m eetings to observe the methods 

of establishing INCE work at the committee 

level.

Although INCE has built up a significant 

record since 1962, high turnover has occurred 

at the directory and supervisory levels. To hold 

a dedicated staff together, INCE should institute 

a program of Personnel Administration and 

C areer Development.

Ideas and suggestions of the 15 previous consultants assigned to INCE should be reviewed and

consolidated. Such a compilation would stim ulate 

restudy and re-evaluation of the reports and 

would serve as training and research m aterials 

for INCE.

Several recommendations and comments are 

made on apprenticeship development. The decentralized organization of INCE should prove advantageous in carrying out its stated functions of 

total education of the worker, com pared with the 

more institutionalized apprenticeship organizations in other countries. So far, trade unions have 

not participated in INCE’s program s, except for 

some of the building trad es. Several recom ­

mendations are made to encourage their p articipation. Other suggestions cover importation of 

skilled w orkers, provisions in INCE law, and development of sk ills in ru ral a re a s through use 

of mobile training units.

Finally, it is recommended that two AID apprenticeship ad v isers be assigned to INCE fo r a 

minimum of 2 years. The duties of the ad v isers 

are outlined.

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Federal Reserve Bank of St. Louis
A m e r i c a n R e p u b l i c s 

V e n e z u e l a

I N C E a n d C I N T E R F O R

T w o L a t i n A m e r i c a n S k i l l T r a i n i n g I n s t i t u t i o n s 

( 1 9 6 6 ; 1 1 p a g e s a n d 1 a t t a c h m e n t )

D O L I T A C 1 / S t a f f P a p e r N o . 8 ;

E u g e n e H o o d , A p p r e n t i c e s h i p C o n s u l t a n t

P r o v i d e s b a c k g r o u n d i n f o r m a t i o n o n t h e o r g a n i z a t i o n a n d 

f u n c t i o n s o f t w o s k i l l t r a i n i n g i n s t i t u t i o n s i n L a t i n 

A m e r i c a .

T h e N a t i o n a l I n s t i t u t e o f C o o p e r a t i v e E d u c a ­

t i o n ( I N C E ) i n V e n e z u e l a a d m i n i s t e r s t h e l a w 

w h i c h p r o v i d e s f o r s k i l l t r a i n i n g a n d a p p r e n t i c e ­

s h i p f o r t h e e m p l o y e d a n d u n e m p l o y e d . I N C E a n 

a u t o n o m o u s b r a n c h o f t h e M i n i s t r y o f E d u c a t i o n , 

i s d i r e c t e d b y t h e N a t i o n a l A d m i n i s t r a t i v e 

C o u n c i l w h i c h i n c l u d e s r e p r e s e n t a t i v e s f r o m 

g o v e r n m e n t , m a n a g e m e n t , a n d l a b o r . A t a x o n 

p a y r o l l s a n d a g r a n t f r o m g o v e r n m e n t p r o v i d e 

t h e f i n a n c i a l r e s o u r c e s .

T h e l a w r e q u i r e s e m p l o y e r s t o e x t e n d t r a i n ­

i n g t o o n e w o r k e r b e t w e e n 1 4 a n d 1 8 f o r e v e r y

2 0 w o r k e r s e m p l o y e d . P r o g r a m s r a n g e f r o m 

o n - t h e - j o b t r a i n i n g o n v a r i o u s m a c h i n e s t o t h o s e 

c o m b i n i n g c l a s s r o o m s t u d y a n d w o r k e x p e r i e n c e . 

T h e r e p o r t l i s t s t h e v a r i o u s d u t i e s a n d g o a l s o f 

I N C E .

A d e t a i l e d d e s c r i p t i o n o f t h e N a t i o n a l ( C o m ­

p u l s o r y ) A p p r e n t i c e s h i p P r o g r a m i s p r e s e n t e d . 

B a s e d o n a n a t i o n a l m a n p o w e r s u r v e y i n 1 9 6 1 ,

2 1 i n d u s t r i a l a n d c o m m e r c i a l o c c u p a t i o n s i n 5 9 

e s t a b l i s h m e n t s w e r e s e l e c t e d f o r e x p e r i m e n t a l 

t r a i n i n g p r o g r a m s . A l l e s t a b l i s h m e n t s e m p l o y i n g 

m o r e t h a n 1 0 p e r s o n s , a l l g o v e r n m e n t a g e n c i e s ,

a n d a l l b a n k s a n d i n s u r a n c e c o m p a n i e s a r e 

o b l i g e d t o p r o v i d e t r a i n i n g f o r s e l e c t e d y o u n g 

w o r k e r s .

A s u m m a r y o f t h e r e p o r t b y J o h n F . B a r r e t t 

o n “ A p p r e n t i c e s h i p a n d I n d u s t r i a l T r a i n i n g ” 

( s e e s u m m a r y e l s e w h e r e ) p r o v i d e s c r i t i c a l c o m ­

m e n t o n I N C E o p e r a t i o n s .

T h e I n t e r - A m e r i c a n V o c a t i o n a l T r a i n i n g , 

R e s e a r c h , a n d D o c u m e n t a t i o n C e n t e r C I N T E R ­

F O R , I L O , h e a d q u a r t e r e d i n M o n t e v i d e o , U r u ­

g u a y , w a s o r g a n i z e d i n 1 9 6 2 a n d l i s t s m o s t o f 

t h e W e s t e r n H e m i s p h e r e n a t i o n s a s m e m b e r s . 

I t f u n c t i o n s t h r o u g h a T e c h n i c a l C o m m i t t e e , 

w h i c h i s c o m p o s e d o f r e p r e s e n t a t i v e s f r o m 

m e m b e r c o u n t r i e s m e e t i n g o n c e a y e a r . S u m ­

m a r i e s p r e p a r e d b y t h e U . S . d e l e g a t e s t o t h e 

f i r s t t h r e e m e e t i n g s a r e r e p r o d u c e d .

\ J U . S . D e p a r t m e n t o f L a b o r I n t e r n a t i o n a l 

T e c h n i c a l A s s i s t a n c e C o r p s .

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E m p l o y m e n t P r o j e c t i o n s , D i s t r i t o C a r o n i l 9 7 5 

( 1 9 6 6 ; 1 8 p a g e s )

A 0 J o h n V o g t , A I D M a n p o w e r C o n s u l t a n t

A s t a f f w o r k i n g p a p e r d e s c r i b i n g t e c h n i q u e s o f p r o j e c t i n g 

e m p l o y m e n t b y e c o n o m i c a c t i v i t y .

T h e l a t e s t r e v i s i o n o f t h e S t a g i n g S t u d y ( P l a n 

d e l a N a c i o n , 1 9 6 6 ) p r o v i d e s t h e b a s i c e m p l o y ­

m e n t p r o j e c t i o n s o n w h i c h t h i s p a p e r i s b a s e d . 

F o u r m a j o r p o i n t s r e g a r d i n g t h e p r o j e c t i o n s a r e 

d e v e l o p e d :

1 . E m p l o y m e n t p r o j e c t i o n s b e t w e e n 1 9 6 6 a n d 

1 9 7 5 f o r C u i d a d G u a y a n a s h o u l d a l l o c a t e t o t h e i n ­

f r a s t r u c t u r e s e c t o r s ( C o m m e r c e , T r a n s p o r t a n d 

C o m m u n i c a t i o n s , G o v e r n m e n t , a n d O t h e r S e r v ­

i c e s ) 3 5 t o 4 0 p e r c e n t o f t o t a l e m p l o y m e n t r a t h e r 

t h a n t h e s o m e w h a t l o w e r s h a r e a s s i g n e d b y t h e 

S t a g i n g S t u d y . E x p e r i e n c e i n o t h e r c i t i e s i n b o t h 

V e n e z u e l a a n d t h e U n i t e d S t a t e s , a n d i n t h e 

D i s t r i t o C a r o n i i t s e l f , h a s s h o w n t h a t t h e i n f r a ­

s t r u c t u r e s e c t o r s a c c o u n t f o r m o r e t h a n 3 5 p e r ­

c e n t o f t o t a l e m p l o y m e n t . I t s h o u l d b e a s s u m e d 

t h a t C u i d a d G u a y a n a h a s a n d w i l l c o n t i n u e t o h a v e 

a m o d e r n i z i n g u r b a n e c o n o m y .

2 . P o p u l a t i o n p r o j e c t i o n s u s e d i n p r e v i o u s 

s t u d i e s h a v e r a n g e d b e t w e e n 3 0 0 , 0 0 0 t o 4 0 0 , 0 0 0 

f o r C u i d a d G u a y a n a b y 1 9 7 5 . M o r e r e c e n t i n f o r ­

m a t i o n o n i m m i g r a t i o n a n d p o p u l a t i o n g r o w t h 

i n d i c a t e s t h a t p o p u l a t i o n p r o b a b l y w i l l n o t e x c e e d

2 2 5 , 0 0 0 i n 1 9 7 5 . T h e f i g u r e o f 2 2 2 , 0 0 0 a s p r o j ­

e c t e d b y t h e S t a g i n g S t u d y a p p e a r s r e a l i s t i c a n d 

s h o u l d b e t h e b a s i s f o r e m p l o y m e n t p r o j e c t i o n s .

3 . B a s e d o n r e v i s e d f i g u r e s f o r p o p u l a t i o n 

a n d i n f r a s t r u c t u r e s e c t o r s ( i t e m s 1 a n d 2 , a b o v e ) , 

p r o c e d u r e s f o r e m p l o y m e n t p r o j e c t i o n s b y e c o ­

n o m i c s e c t o r s f o r C u i d a d G u a y a n a a r e p r o v i d e d . 

T h i s s e c t i o n f o r m s m o s t o f t h e r e p o r t .

4 . S e c t o r a l e m p l o y m e n t t o t a l s p r o d u c e d b y 

i t e m 3 w i l l b e u s e d b y t h e H u m a n R e s o u r c e s 

S e c t i o n . T h e s e d a t a a r e n o t f i n a l , h o w e v e r , 

s i n c e t h e y w i l l b e m o d i f i e d a s s o o n a s t h e c o m ­

p u t e r p r o g r a m o f t h e E c o n o m i c s S e c t i o n r e ­

l e a s e s “ f i n a l " s e c t o r a l e m p l o y m e n t p r o j e c t i o n 

t o t a l s .

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A m e r i c a n R e p u b l i c s 

V e n e z u e l a

I N C E — S p e c i a l P r o b l e m s 

( 1 9 6 6 ; 1 7 p a g e s )

D O L I T A C J L / S t a f f P a p e r N o . 1 8 ; 

A r c h i e B e a u b i e n , A p p r e n t i c e s h i p C o n s u l t a n t

F u n c t i o n s a n d t r a i n i n g o f t h e N a t i o n a l I n s t i t u t e f o r 

C o o p e r a t i v e E d u c a t i o n ( I N C E ) f i e l d c o o r d i n a t o r s , a n d 

s p e c i a l p r o b l e m s r e l a t e d t o a p p r e n t i c e s h i p c o n s t r u c t i o n .

A o n e - p a g e g e n e r a l i n f o r m a t i o n r e p o r t i s 

p r e s e n t e d o n I N C E ’ s M a n p o w e r D e v e l o p m e n t 

P r o g r a m , 1 9 6 1 - 6 5 . E s s e n t i a l l y t h e s a m e i n ­

f o r m a t i o n w a s p r o v i d e d b y E u g e n e H o o d i n 

a p r e c e d i n g s u m m a r y ; s o m e s t a t i s t i c a l d a t a w e r e 

a d d e d . I N C E ’ s i n c o m e t o t a l e d U . S . $ 2 2 . 5 m i l l i o n 

i n 1 9 6 5 . I t e m p l o y e d 2 , 0 0 0 p e o p l e a n d o p e r a t e d 3 4 

t r a i n i n g c e n t e r s a s w e l l a s o t h e r t r a i n i n g f a c i l i ­

t i e s ( m o b i l e u n i t s ) . D u r i n g 1 9 6 5 , n e a r l y 7 2 , 0 0 0 

e n r o l l e e s w e r e i n p r o g r a m s r a n g i n g f r o m 1 0 - 

h o u r c o u r s e s f o r s u p e r v i s o r s t o 1 - y e a r p r o ­

g r a m s f o r a p p r e n t i c e s .

R e c o m m e n d a t i o n s t o i m p r o v e t h e w o r k o f 

I N C E ’ s f i e l d c o o r d i n a t o r s ( t e c h n i c a l s t a f f ) i n ­

c l u d e d :

1 . A r e v a m p i n g o f I N C E ’ s o r g a n i z a t i o n s h o u l d 

s h o w a d i s t i n c t c l a r i f i c a t i o n a n d r e l a t i o n s h i p 

b e t w e e n l i n e a n d s t a f f p e r s o n n e l a n d f u n c t i o n s .

2 . A c h a n g e i n j o b t i t l e s o f c e r t a i n s p e c i a l i z e d 

I N C E p e r s o n n e l i s s u g g e s t e d .

3 . A n o u t l i n e f o r t h e t r a i n i n g o f i n d u s t r y 

c o n t a c t ( l i n e ) s t a f f i s p r e s e n t e d .

S o m e d i f f i c u l t i e s h i n d e r i n g t h e d e v e l o p m e n t 

o f a c o m p r e h e n s i v e a p p r e n t i c e s h i p p r o g r a m i n 

t h e c o n s t r u c t i o n i n d u s t r y a r e :

1 . T h e r e l u c t a n c e o f a h e a v y l a b o r i n d u s t r y 

t o t a k e o n i m m a t u r e b o y s .

2 . L o w r a t i o p r o v i s i o n s o n c o m p u l s o r y a p ­

p r e n t i c e s h i p .

3 . T h e r e l u c t a n c e o f m a n y y o u t h t o e n t e r c o n ­

s t r u c t i o n a s a p p r e n t i c e s b e c a u s e o f t h e h a r d w o r k 

a n d r e l a t i v e l y l o w p a y .

4 . T h e l a c k o f a p p r e n t i c e s h i p e x p e r i e n c e a n d 

c r a f t t r a d i t i o n i n o r g a n i z e d l a b o r .

G e n e r a l o b s e r v a t i o n s

1 . A s u g g e s t e d p l a n f o r r e o r g a n i z i n g I N C E 

a n d a n o r g a n i z a t i o n a l c h a r t a r e p r o v i d e d i n a t ­

t a c h m e n t 1 .

2 . T h e l i m i t a t i o n s o n a g e ( 1 4 - 1 8 ) a n d o n r a t i o 

q u o t a ( 5 p e r c e n t ) s h o u l d b e r e v i s e d .

3 . E f f o r t s s h o u l d b e m a d e t o s i m p l i f y p r o c e ­

d u r e s a n d t o r e d u c e p a p e r w o r k .

\ J U . S . D e p a r t m e n t o f L a b o r I n t e r n a t i o n a l 

T e c h n i c a l A s s i s t a n c e C o r p s .

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V e n e z u e l a

P r o c e d u r e f o r L a b o r M a r k e t A n a l y s i s o f a n A r e a 

( 1 9 6 6 ; 8 p a g e s a n d 2 2 - p a g e a p p e n d i x )

W i l f r e d V . J o n e s , A I D M a n p o w e r C o n s u l t a n t ; 

M e m o r a n d u m t o M a l c o l m K e n n e d y , U S A I D / V e n e z u e l a

P r e s e n t a t i o n o f a p r o c e d u r e f o r a n a l y z i n g a j o b m a r k e t 

a r e a .

T h e p r o c e d u r a l s t e p s f o r a n a l y z i n g a j o b 

m a r k e t a r e a i n c l u d e :

1 . M e a s u r i n g a n d d e f i n i n g t h e j o b m a r k e t 

a r e a .

2 . E s t a b l i s h i n g a u n i v e r s e .

3 . L i s t i n g s a m p l e e m p l o y e r s a n d e m p l o y ­

m e n t .

A d e t a i l e d d i s c u s s i o n c o v e r s t h e s t e p s i n c o l ­

l e c t i n g , o r g a n i z i n g , a n d c a l c u l a t i n g t h e d a t a . 

S e v e r a l w o r k s h e e t s a r e p r e s e n t e d w h i c h a r e 

p a t t e r n e d a f t e r t h e P u e r t o R i c a n e x p e r i e n c e . 

S a m p l e f o r m a t s a l s o a r e s h o w n t o i l l u s t r a t e 

h o w t h e i n f o r m a t i o n c a n b e d i s t r i b u t e d t o t h e 

p u b l i c .

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T e c h n i c a l A s s i s t a n c e t o t h e N a t i o n a l E m p l o y m e n t 

S e r v i c e O f f i c e

( O c t o b e r 1 9 6 5 t o J u l y 1 9 6 6 ; 4 9 p a g e s )

D O L I T A C J j S t a f f P a p e r N o . 2 1 ;

M e r r i l l E . W e i r , M a n p o w e r A d v i s e r

A c o l l e c t i o n o f s i x r e p o r t s m a d e b y t h e c o n s u l t a n t 

r e g a r d i n g i m p r o v e m e n t s i n t h e l o c a l e m p l o y m e n t s e r ­

v i c e o f f i c e s i n V e n e z u e l a .

1 . A d e t a i l e d l i s t o f e i g h t r e c o m m e n d a t i o n s 

t o i m p r o v e t h e C a r a c a s l o c a l o f f i c e o f t h e 

E m p l o y m e n t S e r v i c e i s p r e s e n t e d . ( 3 p a g e s )

2 . R e c o m m e n d a t i o n s f o r t h e o r g a n i z a t i o n 

a n d l a y o u t o f t h e C a r a c a s l o c a l o f f i c e w e r e 

m a d e a t t h e t i m e t h a t l o c a l o f f i c e w a s b e i n g 

r e m o d e l e d a n d e n l a r g e d . S u g g e s t i o n s a l s o w e r e 

m a d e t o i m p r o v e t h e o p e r a t i o n s o f t h e o f f i c e . 

D e t a i l s o f t h e s e s u g g e s t i o n s a r e p r e s e n t e d a l o n g 

w i t h o r g a n i z a t i o n a l , f u n c t i o n a l , a n d l a y o u t c h a r t s . 

( 1 7 p a g e s . )

3 . T h e o p e r a t i o n s o f t h e l o c a l E m p l o y m e n t 

S e r v i c e o f f i c e i n B a r q u i s i m e t o ( V e n e z u e l a ’ s 

t h i r d l a r g e s t c i t y ) a r e r e v i e w e d . T h e a m o u n t 

a n d k i n d o f s p a c e o c c u p i e d b y t h e o f f i c e a p ­

p e a r e d a d e q u a t e e x c e p t t h a t t h e t h i r d f l o o r 

l o c a t i o n c r e a t e d a h a n d i c a p f o r e f f e c t i v e o p e r a ­

t i o n s . S t r e e t l e v e l f a c i l i t i e s w e r e s u g g e s t e d . 

T h e o p e r a t i n g r e p o r t s w e r e a n a l y z e d a n d t a b u ­

l a t e d . T h e y a p p e a r e d t o b e w e l l p r e s e n t e d a n d 

c o m p l e t e w i t h a p p r o p r i a t e d e t a i l e d i n f o r m a t i o n . 

S e v e r a l r e c o m m e n d a t i o n s f o r i m p r o v i n g t h e 

m e t h o d s o f o p e r a t i o n a r e o f f e r e d . ( 1 0 p a g e s . )

4 . A “ M a n u a l o f O p e r a t i o n s ” i s n e e d e d f o r 

c u r r e n t o p e r a t i o n s i n t h e N a t i o n a l E m p l o y m e n t

S e r v i c e . T h e r e p o r t l i s t s t h e m a n y a d v a n t a g e s 

t h a t w o u l d r e s u l t f r o m u s e o f s u c h a m a n u a l . 

S e v e r a l g u i d e l i n e s f o r i t s p r e p a r a t i o n a r e o f f e r e d 

a n d a t h r e e - p a g e o u t l i n e i s p r e s e n t e d . ( 6 p a g e s . )

5 . T o r e n d e r e f f e c t i v e a n d e f f i c i e n t s e r v i c e 

t o t h e p u b l i c , t h e E m p l o y m e n t S e r v i c e s h o u l d 

d e v e l o p a p r o g r a m t o i m p r o v e t h e s k i l l s o f i t s 

e m p l o y e e s . T h e r e p o r t l i s t s t h e s p e c i f i c o b ­

j e c t i v e s o f a t r a i n i n g p r o g r a m a n d o u t l i n e s t h e 

t y p e s o f t r a i n i n g t o c o n d u c t . T h e o r g a n i z a t i o n o f 

a t r a i n i n g p r o g r a m a l s o i s d i s c u s s e d . ( 8 p a g e s . )

6 . T h e f i n a l r e p o r t s u m m a r i z e s t h e w o r k 

a c c o m p l i s h e d d u r i n g t h e c o n s u l t a n t ’ s 9 - m o n t h 

a s s i g n m e n t . A m a j o r r e c o m m e n d a t i o n r e f e r s 

t o t h e n e c e s s i t y o f f o l l o w u p s u p e r v i s i o n t o 

i n s u r e c o n t i n u a t i o n o f E m p l o y m e n t S e r v i c e p r o ­

g r a m s . A d i s c u s s i o n o n t h e p r i n c i p a l o b s t a c l e s 

t o c o n t i n u e d g r o w t h i n c l u d e s t h e l a c k o f a C i v i l 

S e r v i c e a n d t h e r e l a t i v e l y s m a l l s i z e o f t h e 

E m p l o y m e n t S e r v i c e . ( 5 p a g e s . )

1 / U . S . D e p a r t m e n t o f L a b o r I n t e r n a t i o n a l 

T e c h n i c a l A s s i s t a n c e C o r p s .

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A m e r i c a n R e p u b l i c s 

V e n e z u e l a

A R e p o r t o f U S A I D / V e n e z u e l a M a n p o w e r T e c h n i c a l S e r v i c e i n 

t h e M i n i s t r y o f L a b o r a n d C O R D I P A L N f o r t h e p e r i o d 1 9 6 2 - 6 6 

( 1 9 6 6 ; 2 2 p a g e s a n d t a b l e s )

M a l c o l m K e n n e d y , A I D M a n p o w e r C o n s u l t a n t

A r e v i e w o f A I D ’ S v a r i o u s p r o g r a m s f o r m a n p o w e r 

d e v e l o p m e n t i n V e n e z u e l a .

A s h o r t h i s t o r y o f A I D ’ S t e c h n i c a l s e r v i c e s t o 

V e n e z u e l a a n d t h e r e s u l t s o f t h e s e s e r v i c e s a r e 

d e s c r i b e d . S i n c e t h e e s t a b l i s h m e n t o f U S A I D / 

V e n e z u e l a i n 1 9 6 1 , i t s t o p p r i o r i t y g o a l h a s b e e n 

t o d e v e l o p h u m a n r e s o u r c e s d e v e l o p m e n t . T h e 

p r i m a r y a c t i v i t y t a r g e t s o f A I D ’ S M a n p o w e r 

T e c h n i c a l S e r v i c e s p r o g r a m d u r i n g t h e f i v e - y e a r 

p e r i o d w e r e ( a ) t o e s t a b l i s h a n e f f e c t i v e N a t i o n a l 

E m p l o y m e n t S e r v i c e a n d ( b ) t o s t r e n g t h e n t h e 

m a n p o w e r p l a n n i n g s e r v i c e s i n C O R D I P L A N .

A I D h a s w o r k e d p r i m a r i l y w i t h C O R D I P L A N , 

I N C E , a n d t h e M i n i s t r i e s o f E d u c a t i o n a n d o f 

L a b o r . M o s t e f f o r t w a s d i r e c t e d t o w a r d d e v e l o p ­

i n g e f f e c t i v e e m p l o y m e n t s e r v i c e f u n c t i o n s . B y 

1 9 6 4 , a N a t i o n a l E m p l o y m e n t S e r v i c e o r g a n i z a ­

t i o n , i n c l u d i n g l o c a l f i e l d o f f i c e s , w a s o r g a n i z e d . 

O t h e r a r e a s f o r w h i c h s u b s t a n t i v e a s s i s t a n c e w a s 

p r o v i d e d w e r e l a b o r s t a t i s t i c s , l a b o r i n s p e c t o r 

s e r v i c e , a n d t h e c o o p e r a t i v e m o v e m e n t .

T o c a r r y o u t t h e s e a n d o t h e r t a r g e t s , A I D a s ­

s i g n e d c o m p e t e n t m a n p o w e r a d v i s e r s t o p r o v i d e 

t e c h n i c a l a s s i s t a n c e i n v a r i o u s a r e a s a n d a r ­

r a n g e d f o r m e m b e r s o f t h e V e n z u e l a n t e c h n i c a l 

s t a f f t o p a r t i c i p a t e i n S t a t e s i d e a n d P u e r t o R i c a n 

t r a i n i n g p r o g r a m s . A l i s t o f c o n s u l t a n t s w h o w e r e 

a s s i g n e d t o V e n e z u e l a d u r i n g t h i s p e r i o d s u m ­

m a r i z e s t h e i r a c t i v i t i e s a n d p r o g r a m s . C o m p l e t e 

1 9 6 3 - 6 5 a n d p r o p o s e d 1 9 6 7 a n d 1 9 6 8 p a r t i c i p a n t 

t r a i n i n g c o s t e s t i m a t e s a l s o a r e s u m m a r i z e d .

1 4 9

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Federal Reserve Bank of St. Louis
A m e r i c a n R e p u b l i c s 

V e n e z u e l a

M i s s i o n t o V e n e z u e l a : I N C E 

( 1 9 6 7 ; 5 p a g e s )

D O L I T A C 1 / S t a f f P a p e r N o . 3 2 ; 

E u g e n e V i n o g r a d o f f , M a n p o w e r C o n s u l t a n t

E v a l u a t e s t h e I N C E m a n p o w e r d e m a n d r e p o r t a n d m a k e s 

s u g g e s t i o n s f o r f u t u r e s u r v e y s o f m a n p o w e r .

T h e N a t i o n a l I n s t i t u t e f o r C o o p e r a t i v e E d ­

u c a t i o n ( I N C E ) L a b o r D e m a n d R e s e a r c h P r o j e c t 

o f 1 9 6 6 w a s b a s e d o n a n o n a g r i e u l t u r a l e s ­

t a b l i s h m e n t s u r v e y w h i c h h a d a u n i v e r s e o f 

m o r e t h a n 2 2 , 0 0 0 e m p l o y e r s . R e s p o n s e w a s o v e r 

9 0 p e r c e n t a n d c o v e r e d m o r e t h a n 3 2 1 , 4 0 0 

w o r k e r s . T h e t a b u l a t e d d a t a s h o u l d b e u s e f u l 

i n g u i d i n g t h e w o r k o f I N C E .

A l a b o r r e s e a r c h p r o j e c t s h o u l d b e s e t u p 

t o p r o v i d e t h e f o l l o w i n g :

1 . L a b o r d e m a n d d a t a s i m i l a r t o t h a t a l ­

r e a d y g a t h e r e d .

2 . L a b o r s u p p l y d a t a , e s p e c i a l l y u n e m p l o y ­

m e n t a n d u n d e r e m p l o y m e n t , c o l l e c t e d b y a 

n a t i o n a l s a m p l e h o u s e h o l d s u r v e y , s u c h a s t h a t 

b e i n g c a r r i e d o u t b y C O R D I P L A N a n d o t h e r 

a g e n c i e s .

3 . F o l l o w u p s t u d i e s o f I N C E g r a d u a t e s t o 

d e t e r m i n e t h e e f f e c t i v e n e s s o f t h e i r t r a i n i n g .

4 . S p e c i a l s t u d i e s o n c h a r a c t e r i s t i c s o f 

t r a i n i n g s c h o o l g r a d u a t e s , s u c h a s o n t u r n o v e r .

T h e l a b o r d e m a n d s t u d y s h o u l d b e c a r r i e d 

o u t a s f o l l o w s :

1 . I t s h o u l d b e r e p e a t e d r e g u l a r l y e v e r y y e a r 

o r t w o o n a s a m p l e b a s i s .

2 . I t s h o u l d d r a w o n a l l e x p e r t a g e n c y r e ­

s o u r c e s f o r i m p r o v e m e n t .

3 . I t s h o u l d b e m o r e h i g h l y p u b l i c i z e d t o 

s e c u r e f u l l s u p p o r t .

4 . I t s h o u l d b e r e s p o n s i v e t o a r e a , r e g i o n a l , 

a n d i n d u s t r i a l n e e d s .

5 . C h e c k s s h o u l d b e m a d e f o r a c c u r a c y 

b y s u b s a m p l e i n t e r v i e w s .

6 . P r o j e c t i o n s f o r o n e y e a r a n d b e y o n d 

s h o u l d m a t c h s a m p l e t r e n d s b a s e d o n a c t u a l p a s t 

e x p e r i e n c e o f e m p l o y e r s , r a t h e r t h a n o n e m ­

p l o y e r g u e s s e s .

1 / U . S . D e p a r t m e n t o f L a b o r I n t e r n a t i o n a l 

T e c h n i c a l A s s i s t a n c e C o r p s .

1 5 0

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Federal Reserve Bank of St. Louis
Am erican Republics 

Venezuela

Guayana P roject 

(1967; 8 pages)

DOLITAC 1 / Staff Paper No. 33; Eugene D. Vinogradoff, Manpower Consultant

This memorandum to the USAID M ission is a response 

to a se rie s of questions by the Educational Consultant 

to Corporacion Benezolana de Guayana (CVG).

INCE requested an in crease from B s 600,000 

to B s 1,000,000 per year from CVG for training 

purposes. To be sure that training would be given 

in shortage occupations, CVG raised several 

questions Most of the questions deal with (a) 

agencies involved in manpower studies, (b) types 

of information available, listed by agency in 

charge, (c) types of surveys and methods being 

conducted, and (d) an alysis of quality of re suits of 

surveys. These questions were answered in 

detail.

Several questions related to agency respon sibility and capability to gather data. Job m arket 

information is the responsibility of the National 

Employment Service offices. Household sam ples 

of the labor force come under the aegis of the 

of the Statistical Office of the M inistry of 

Fomento. INCE, through the chief statistician at

the M inistry of Labor, gathers labor demand information. There appears to be duplication and 

overlap of some statistical gathering functions, 

but CVG is in a unique position to a s s is t in im ­

proving coordination and cooperation, since it 

will control finances in the Guayana area.

Recommendations were made for the assign ­

ment of a manpower consultant in Guayana to 

improve employment service functions in the 

Guayana area and to develop detailed procedural 

techniques of gathering data.

JL/ U.S. Department of Labor International 

Technical A ssistan ce Corps.

151

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Federal Reserve Bank of St. Louis
Am erican Republics 

Venezuela

Development of Occupational T est R esearch Program in 

Venezuela’ s National Employment Service 

(1967; 4 pages and 10-page attachment)

DOLITAC_l/ Staff Paper No. 42; Albert R. Cruz, Counseling and Testing A dviser

Report d escrib es the p ro g ress of the counseling and 

testing program of the National Employment Service 

and the procedure for developing an occupational test 

research program .

The counseling and testing program began in 

January 1966 as part of the Division of P rogram s 

and Methods under the Venezuelan National Em ­

ployment Service. The test re se a rc h p ro g ra m is 

developing in three step s, a s follows:

1. United States GATB test m aterials are 

being translated and adapted to the needs of the 

local population.

2. The Puerto Rican norm s (conversion 

tables) are being used but Venezuela should 

develop its own standardization. The consultant 

spent considerable time developing a sam ple 

that would be representative of the Venezuelan 

labor force. A 10-page attachment d escrib es the 

methodology for the study and the design for 

developing conversion tables applicable to Venezuela.

3. Based on the resu lts of the standardization 

study, the National Employment Service will try 

to initiate test development studies to establish 

aptitude test norm s locally.

The consultant su ggests that consultants who 

speak Spanish should furnish further technical 

assistan ce on this topic. In addition, the program of test research should be reviewed after 

the collection of the data and before the analysis 

of these data.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

152

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Federal Reserve Bank of St. Louis
Am erican Republics 

West Indies/G eneral

Manpower Information Training Course 

(1960; 34pages)

ILO Report to the Government of the West Indies; ILO /TA P/W est Indies/R .5; 

M iss J. Pettijohn (Manpower Division, ILO) and F.W. Mahler (Australia)

Summary of a course for Government officials on the 

role of manpower in economic development.

The Manpower Information Training Course 

was conducted by the ILO at the University College of the West Indies. Participants were officia ls from the labor adm inistration in the Unit 

Government of the Federation of the West Indies. 

The course was designed to provide a general 

appreciation of the manpower factor in economic 

planning and development, and to give specific 

instruction in the methods and techniques of collecting, analyzing, and reporting information 

about the manpower situation.

Various asp ects of a manpower information 

program were discussed:

1. Availability of and need for manpower information.

2. M easurem ent and analysis of the manpower supply/demand situation.

3. Preparation of general and special reports 

on the manpower situation.

4. Adm inistrative organization of the manpower information program .

The situation of each of the Unit Governments 

was analyzed and certain broad conclusions were 

reached:

1. Information on present and future manpower supply and demand is lacking in all are as 

except Jam aica, and Trinidad and Tobago.

2. Each Unit Government needs a continuing 

program which should be coordinated with each 

other, using ILO standards for com parability.

3. General reports on the manpower situation 

should be prepared annually and supplemented 

with ad hoc reports.

Recommendations were made concerning the 

role that the Federal M inistry of Labour and 

Social A ffairs should play in coordinating and 

guiding the efforts of the Unit Governments to 

implement a West Indies manpower information 

program .

153

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Federal Reserve Bank of St. Louis
A m erican Republics 

West In d ies/Jam aica

Proposal and Recommendations on 

Manpower Training and Development in Jam aica 

(1966; 38 pages)

DOLITAC 1 / Staff Paper No. 12; Vincent R. Faulds, Manpower Training A dviser

D escription of existing training program s and a proposal 

to coordinate and develop manpower training activities.

High unemployment rates and shortages of 

trained personnel are seriou sly handicapping 

development of production and service industrie s. Current educational and training institutions are geared to manpower requirem ents 

existing in an agrarian economy. Several new 

training plans, such as the apprenticeship se rv ­

ice and youth cam ps, have been introduced to 

correct this situation. However, p ro g re ss has 

been retarded because of a shortage of technical 

and professional leadership and the absence of 

technical serv ice s.

B ased on information obtained from observation v isits and interviewing with representatives 

from government, labor, and management, a proposal was prepared to create a National Comm ission on Manpower Training and Development 

to guide and coordinate all training activities as 

follows:

1. The Com m ission should be attached to the 

Office of the P rim e M inister and should be com ­

posed of m em bership from all public and private 

agencies concerned with training and development.

2* A special fund, provided by a payroll tax, 

should be established to finance the n ecessary 

promotion and development of the national manpower training system .

3. Technical and professional staff should be 

employed to implement the policies of the Comm ission.

4. Agreem ents with foreign agencies should 

be negotiated to cooperate and a s s is t in manpower training and development.

The m ajor portion of the report deals with 

details of the specific recommendations of the 

proposal. O bservations also are made of the 

existing training institutions and of the role the 

M inistry of Labor plays. This M inistry is cognizant of the requirem ents for an effective manpower development program . Organizationally, 

there are a Manpower R esearch Unit, an Em ­

ployment Service, and an Apprenticeship Service; but lack of funds and personnel ham pers 

operations.

The 12-page supplement (labeled appendix II) 

contains check lists on the institutional structure 

and on the training p ro c e ss.

J J U.S. Department of Labor International 

Technical A ssistan ce C orps*

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Federal Reserve Bank of St. Louis
Am erican Republics 

West Indies/St. Lucia

Development in the E astern C arribean Islands 

Series 4: Manpower Surveys: St. Lucia 

(1967; 71pages)

University of West Indies, Institute of Social and Economic R esearch; 

Alice W. Shurcliff (ILO) and J.F . W ellemeyer (Ford Foundation)

A ssessm en t of manpower supply and demand in St. Lucia.

The purpose of this report is to provide the 

Government of St. Lucia and the private sector 

with information on manpower requirem ents for 

their development plans. Information was obtained from officials of Government, industry, 

and trade unions and from the 1960 Census of 

Population. TheUoS. Government provided information on the employment of West Indians in the 

U.S. Virgin Islands and other im m igration data. 

These various sou rces, combined with opinions 

of knowledgeable people, provided the b ases for 

estim ating future effective demand for labor.

According to the 1960 Census of Population, 

there were over 86,000 people in St. Lucia, an 

in crease of 16,000 since 1946. Despite the population in crease, the size of the labor force decreased because of heavy em igration among 

people of working age and the withdrawal of 

women from the labor force. As a result, the increased demand for labor during the early 1960’ s 

was the m ajor reason for the decline in underemployment and unemployment. However, a r e ­

v e rsal in this trend is expected between 1965 and 

1975 when the supply of labor is no longer held 

constant by em igration.

At the present tim e, em ployers report shortages of skilled w orkers, especially m echanics 

and repairm en, electrician s, plum bers, clerk s, 

teach ers, m edical personnel, and m anagers. 

Because of inadequate training facilities, these 

shortages are expected to p e rsist during the 

coming y ears. The education system does not 

have the required output. Thus a serio u s bottleneck is created in upgrading human reso u rces 

to the degree n ecessary to meet the requirements of the economy.

Em ployers in the agricultural sector com ­

plain of low level of effort put forth by worke r s . The lack of incentive to work m ore than a 

few days a week or to maintain other work standard s should be the subject of a serious study by 

an interdisciplinary team since reports are contradictory on reasons for this low level of effort 

and on the actual effect of farm productivity. 

St. Lucia likely has built up a set of mutually 

reinforcing factors leading to unsatisfactory 

worker output, such as poor health, poor land 

tenure system , lim ited education and a sp ira ­

tions, low social status of farm w orkers.

155

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Federal Reserve Bank of St. Louis
Am erican Republics 

West Indies/St. Vincent

Development in the E astern Caribbean Islands 

Se ries 4: Manpower Surveys: St. Vincent 

(1967; 51 pages)

University of West Indies, Institute of Social and Economic R esearch; 

Alice W. Shurcliff (ILO) and J.F . Wellemeyer (Ford Foundation)

A ssessm en t of manpower supply and demand in St. Vincent.

The purpose of this report is to provide the 

Government of St. Vincent and the private se c ­

tor with information on manpower requirem ents 

for their development plans. Information was obtained from officials of Government, industry, 

and trade unions and from the 1960 Census of 

Population. The U.S. Government provided information on the employment of West Indians in the 

U.S. Virgin Islands and other im m igration data. 

These various so u rces, combined with opinions 

of knowledgeable people, provided the b a se s for 

estim ating future effective demand for labor.

According to the 1960 Census of Population, 

nearly 80,000 people lived in St. Vincent; the 

labor force consisted of nearly 25,000 of whom 

3,363 (13.5 percent) were unemployed. The population is weighted heavily with young people; the 

proportion below age 15 was 51 percent in 1965.

Skilled w orkers and secondary school grad ­

uates are in short supply. The Five-Y ear Development Plan regard s tourism as the m ost 

prom ising industry for development. In view of 

this possibility, barm en, m aids, cooks, and 

receptionists must be trained. Skilled c ra ftsmen are needed for the construction industry

which is expected to expand rapidly. The in crease 

in population and economic activity will stim ulate 

demand for professional w orkers, especially 

physicians and n urses. The Government sector 

will require auditors and adm inistrators.

Growing unemployment p oses a seriou s problem over the forecast period. The closing of the 

sugar factory and discontinuance of the growing 

sugarcane contributed to the high level of unemployment. Cane cutters are able to get seasonal 

employment in other islands, but new w orkers 

are flooding the job m arket. The policy of the 

Government is not only to provide jobs outside 

the home m arket, but also to widen the opportunities within the island itself.

P re ssu re s of population growth and high unemployment ra te s necessitate that the Government foster em igration. This policy, however, 

encourages people with initiative and sk ills to 

leave the island, thus reducing scarce sk ills 

m ore severely. The problem may be overcome 

by training a greater number of people and by 

opening outlets for unskilled persons. The re st 

of the study d iscu sse s supply of and demand for 

labor in each of the economic secto rs.

156

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Federal Reserve Bank of St. Louis
Am erican Republics 

West Indies/Trinidad and Tobago

Establishm ent of a Manpower Information Program m e 

(1960; 32 pages)

ILO Report to the Government of Trinidad and Tobago; 

ILO /TA P/W est In d ies/R .l; F.W. Mahler (Australia)

D escribes existing manpower serv ice s and the state 

of manpower information.

Existing Manpower Services

1. Employment Service activities were 

lim ited to placem ents in unskilled and dom estic 

occupations.

2. Vocational training activities consisted of registerin g 700 apprentices in m etal, 

electrical, and printing trades.

State of Manpower Information

Considerable data were available on size and 

structure of the population and labor force and on 

employment in establishm ents. Educational and 

training statistics and data on o v erseas m igration also were available. However, no m easurements have been made on manpower requirements or on training outside of form al 

apprentices. Although available to Government 

authorities, these data have not been used as

extensively a s might be because available information had wide gaps and is scattered among 

many documents.

Adm inistrative Machinery

To carry out a manpower information program , the expert assiste d in developing administrative machinery. He established a Manpower 

Technical Advisory Committee and a ssiste d in 

the establishm ent of a Manpower R esearch Section in the M inistry of Labour. Within the Manpower R esearch Section, special em phasis was 

placed on developing standard classification 

sy stem s, conducting establishm ent surveys and 

labor force surveys, analyzing data, and p reparing reports. D etails of each task are described and recommendations are provided for 

continuing the work of both the Committee and 

the R esearch Section to develop a continuing 

program of manpower information.

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Federal Reserve Bank of St. Louis
Am erican Republics

West Indies/Trinidad and Tobago

Organization and Operation of the Employment Service 

(1964; 21 pages)

ILO Report to the Government of Trinidad and Tobago; 

IL O /T A P /T rin idad/R .5; V.G. Munns (UnitedKingdom)

An examination of the organization and operation of 

the Employment Service and recommendations for its 

expansion and improvement.

Existing Employment Service Situation

The work of the Service has consisted p rim arily of registerin g w orkers and recording 

vacancies, p rim arily for lab o rers and dom estic 

personnel. Techniques used for this purpose were 

rudimentary; no written instructions were available on policy or procedure. Both w orkers and 

em ployers were d issatisfied with se rv ice s p rovided by the Employment Exchange.

Action Taken

B ased on his review of the Employment E xchange, the expert outlined the changes in organization needed to develop the Service into an effective organization. This report was submitted 

to the Government for discussion. Actions to im ­

prove current operations included:

1. Preparing a manual of instructions to 

guide clerk s in perform ing their du ties._

2. Training in techniques of employment interviewing.

3. Visiting em ployers to acquaint staff on 

operations in each occupation in the various 

industries.

4. Preparing establishm ent card s containing 

employment and occupational information.

Conclusions and Recommendations

Several broad conclusions were drawn about 

the need for an Employment Service. These are 

explained by describing the contribution that an 

Employment Service m akes to improve the economic and social development of the country.

The following recommendations are proposed 

to implement and improve the various functions 

and organization:

1. A branch office and additional staff should 

be added.

2. Operations of the Employment Service 

should be developed on the b a sis of the previous 

ILO report on the Establishm ent of a Manpower 

Information P rogram (1960).

3. Cooperation should be developed with vocational schools to prepare the ground for se tting up a vocational guidance serv ice for young 

w orkers.

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Federal Reserve Bank of St. Louis
E ast A sia and Pacific 

Regional

High-Level Manpower for Development 

(Pre-Publication Excerpts)

(1964; 66 pages)

UNESCO-LAU R esearch Program on Higher Education 

in Relation to Development in Southeast A sia; Guy Hunter

Probable high-level manpower requirem ents in selected 

Southeast Asian Countries. 1/

In every country in the region, between 60 to 

80 percent of the population is engaged in a g riculture. Com m ercial life is centered on theim - 

port/export trade and is therefore concentrated 

in the main ports. Every country has a sm all 

nucleus of modern industry based on Government 

or expatriate investment.

Many countries have a lim ited capacity to 

absorb high-level manpower. Therefore, unrestricted educational expansion may resu lt in the 

creation of unemployment among graduates at a 

great financial cost. The consultant warns 

against attem pts to expand higher education beyond employment opportunities.

The techniques used to make projections 

were based on certain assum ptions that applied 

to the are a a s a whole:

1. High-level manpower will grow at a rate 

fa ste r than National Income, whereas the total 

labor force will grow at a slow er rate.

2. The technician-to-professional ratio will 

in crease from 3:1 to 5:1.

3. W astage in original stock over a 10-year 

period will be about 40 percent.

General issu e s which apply to m ost countries 

surveyed include:

1. Total enrollm ents in universities are high 

but output is low. Except for teachers and physician s, high-level requirem ents could be met if 

w astage were reduced and if graduates were 

better prepared.

2. W astage in secondary education is high. 

Post-secondary vocational training should be introduced.

3. University-trained teachers are needed 

throughout the region. Law faculties are overdeveloped.

4. Every effort m ust be made to encourage 

a flow of trained manpower into ru ral are a s.

The m ajor portion of the report is devoted 

to studies of the individual countries and p resentation of available data on manpower and education. Each study covers the following elements:

1. General economic situation and power 

structure.

2. Key educational statistic s.

3. A nalysis of four a re a s of manpower r e ­

quirem ents: agriculture, science, medicine, and 

education.

4. A ssessm en t of current stock and p rojections to 1970 and 1975.

1 / Burm a, Thailand, M alaysia, Indonesia, 

Philippines, South Vietnam and Cambodia.

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Federal Reserve Bank of St. Louis
E a st A sia and Pacific 

Burm a

The Establishm ent of a Manpower Information Program 

(1964; 18 pages)

ILO Report to the Government of the Union of Burm a; 

IL O /T A P /B u rm a/R .29; M, M. Mehta (India)

Organization and development of a continuing manpower 

information program , including staff training and sta ­

tistical techniques.

A survey of existing sources of manpower 

information showed that they were inadequate 

for the assessm en t of the current and future 

manpower situation. The la st complete census 

was conducted in 1931; the 1941 census was lost; 

and the planned m id-fifties census never was 

completed. M easurem ents of labor force activities were inadequate. The lack of manpower data 

seriou sly hampered the preparation and fulfillment of the Second F our-Y ear Plan. No department or m inistry had responsibility for manpower planning work.

The Government created two units to operate 

a continuing manpower information program :

1. Manpower Information Advisory Comm ittee—to direct, supervise, and guide the 

program .

2. Manpower Information Unit in the D irectorate of Labour A ffairs—to provide the technical know-how in collecting information and 

preparing reports.

To achieve the broad objectives of a manpower information program , the following projects were initiated:

1. A ssessm en t of manpower requirem ents 

of the Four-Y ear Development Plan.

2. Detailed plan for the organization of an 

employment m arket information program .

3. Development of a Burm a standard c la ssification of occupations.

4. Survey of training facilities.

5. Survey of employment status of university 

graduates.

6. Survey of urban unemployment.

7. E mployment opportunitie s in urban a r e a s .

8. National re g iste r of scientific and technical personnel.

9. Manpower requirem ents in public and 

private industrial secto rs, by detailed occupation.

B ased on the information obtained from these 

projects and from other available sources, a 

comprehensive manpower report was prepared 

a s a supplement to this report. (See following 

sum m ary.)

Recommendations

1. The manpower information program that 

now has been established should be continued 

and developed.

2. The program should be directed toward 

providing information for the operation of E m ­

ployment Service offices and for the evaluation 

of the manpower situation.

3. The statistical sy stem s should be im ­

proved and periodic reports prepared.

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E ast A sia and P acific 

Burm a

Report on the Manpower Situation in Burm a 

(1964; 90 pages and statistical appendixes)

ILO Report to the Government of the Union of Burm a 

ILO /T A P /Burm a/R .29 (Supplement); M0 M. Mehta (India)

Comprehensive manpower report prepared from inform ation collected from surveys and other studies.

The scarcity of reliable statistical inform ation concerning Burm a’ s economic and human 

reso u rces seriously handicaps efforts to achieve 

a complete and accurate manpower assessm en t 

and m akes the findings of this report tentative 

and assum ptive.

The m ost reliable estim ates place Burm a’ s 

population figure currently between 22 million 

and 24 million; these figures include a labor 

force estim ated at approxim ately 9.8 million. 

Burm a is a predominantly agricultural economy; 

approxim ately 85 percent of the labor force are in 

agricultural occupations. Though the labor force 

appears to be expanding rapidly, opportunities 

for employment are lagging fa r behind. In fact, 

employment levels have declined in recent years 

in the modern sector and substantial underemployment is evidenced in the very low productivity figures in both industry and agriculture.

In drawing up future economic development 

plans, consideration should be given to the p o ssibility of increasing investment levels, promoting labor-intensive industries and technologies, and promoting ru ral employment which,in 

Burm a with its rich land and natural reso u rces, 

appears to offer an especially attractive opportunity for creating large numbers of new jobs in 

a relatively short period of tim e and with com ­

paratively sm all investment requirem ents.

In the longer view, current and planned training facilities will be inadequate to meet the expected demand for w orkers in alm ost all the occupations requiring vocational training. This inadequacy will be all the more m arked in the event 

of an attempt to provide m ore jobs through accelerated economic development. Training and 

educational facilities will have to be expanded 

greatly to turn out the personnel qualified to 

occupy the positions that will be required by an 

overall program of economic development in 

Burm a. The extent and rate of expansion must 

be coordinated carefully with such a program . 

In p articular, facilities will be required for training skilled w orkers of all types, including technicians, professional persons, and teachers.

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Federal Reserve Bank of St. Louis
E ast A sia and Pacific 

Republic of China

The Role of Educational Planning 

in the Economic Development of the Republic of China 

(1962; Vol. I, 63 pages; VoL II, 159 pages)

Henry F. M cCusker, J r ., and H arry J. Robinson; Stanford R esearch Institute.

A study of the ways by which the Republic of China’ s 

educational system can contribute m ore effectively to 

the achievement of national economic goals.

The Third Four-Y ear Economic Development Plan of the Republic of China covers 

the period from 1961 through 1964. Little em ­

p h asis, however, has been placed on planning 

for manpower needed to reach the goals of the 

Plan. The purposes of the project were to examine the educational system , a s s e s s current 

levels of skilled manpower reso u rces, estim ate 

needs im plicit in the Plan, determine d iscrepancies in supply and demand, and find 

m eans to resolve these discrepancies.

Findings

1. Enrollm ents a s a percentage of the population are large com pared with other developing countries.

2. The economy is not absorbing students 

as fast a s they graduate.

3. Education is not coordinated with manpower requirem ents; a s a resu lt, an oversupply of certain graduates and shortages of 

others exist.

4. Little attention is devoted to on-the-job 

training for m iddle-level and skilled w orkers.

5. Wage and salary differentiation at various 

skill levels is not broad enough to attract 

qualified people.

6. Course content and examination system s 

tend to retard the role of education in support 

of economic development.

Recommendations

1. The M inistry of Education should cooperate with other agencies to plan manpower 

requirem ents for fulfillment of development 

goals.

2. The Government should take steps to 

upgrade the quality and in crease the number 

of skilled and technical manpower.

3. Since student enrollm ents are likely to 

in crease rapidly, care should be exercised to 

prevent a lowering of quality and to achieve a 

greater relevance of educational program s to 

economic development.

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E a st A sia and Pacific 

Republic of China

Manpower Problem s and P rogram s in Taiwan 

(1963; 19 pages)

DOLITAC 1 / Staff Paper No. 46; H arry W eiss, Manpower A dviser

A survey of the m ajor manpower problem s and the 

program s designed to meet these problem s.

Population on the island is growing at the 

rapid rate of 3 percent a year. According to ag ricultural experts, the growing population cannot 

be supported through agriculture. Since there 

are no significant opportunities for the in creasing population in agriculture, ex cess farm population should be moved to industry. Industry, in 

turn, should be expanded to reach la rg e -scale 

proportions with adequate capital and modern 

production methods in order to compete with 

Japan.

The Government needs a manpower planning 

organization. Currently, it does not know its 

manpower reso u rces or requirem ents for the 

next 5 or 10 y ears. The best location for a manpower planning unit would be in the newly established Council for International Economic Cooperation and Development. This unit should 

coordinate the work of the various agencies to 

develop an overall manpower program for 

achieving the needs of the economic development 

plan. The Stanford R esearch study of manpower

requirem ents should be continued to make projections of requirem ents by occupation.

If Taiwan is to become a modern industrial 

society, an effective Employment Service must 

be established. Only through this organization 

can a balance between manpower supply and 

manpower demand be met.

Approximately 85 percent of the students 

sent to the United States for graduate work do 

not return. The cau ses and effect of this seriou s 

lo ss to the country are discu ssed. The entire 

educational system should be reappraised. The 

weakest link in the training system appears to 

be the lack of an apprenticeship program . To 

develop a corps of skilled w orkers needed in a 

modern industrialized economy, a wellorganized apprenticeship program should be 

established.

1/ U.S. Department of Labor International 

Technical A ssistan ce Corps.

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E ast A sia and the P acific 

Republic of China

Manpower A ssessm en t and Planning 

(1965; 42 pages)

ILO Report to the Government of the Republic of China; 

ILO /TA P/C hina/R .8; Alice W. Shurcliff (United States)

The development of a manpower assessm en t program 

and the improvement of manpower statistics.

The fir st manpower study had been done 

by the Council for International Economic Cooperation and Development (CIECD) in 1962. 

In 1964, sev eral Government agencies prepared 

partial manpower assessm en ts. The formation 

of an interm inisterial Manpower R esou rces 

Committee had stim ulated considerable interest 

in having manpower assessm en ts prepared on the 

b a sis of the Economic Development Plan.

The consultant prepared a se rie s of 33 

tables which showed labor force by occupation 

and industry in 1965 and the distribution to 

be expected in 1970 according to the growth 

factors contained in the Economic Development 

Plan. The various statistical sources for this 

an alysis are described and comments made for 

their improvement.

The Republic of China has improved the 

quality of its manpower reso u rces by an expansion of school facilities and by agricultural 

extension work among fa rm e rs. The supply 

of skilled manpower has increased as fast as 

effective demand, and unemployment has been 

held down to a 4-percent level. Seasonal unemployment and underemployment have been le s ­

sened in agriculture by expansion of modern 

techniques (irrigation, crop diversification).

Recommendations

1. Manpower projections should be made 

for long-term objectives in the next 10 to 15 

y ears.

2. Long-term projections should be made 

by using high, medium, and low ra te s of industrialization.

3. A publicity program should be developed 

to inform the public of changes in the supply 

of and demand for labor in various occupations.

4. All agencies in are as that have vocational 

training program s should report periodically 

to one agency about the output of their program s and the quality of training given.

5. Public employment offices should undertake a continuing program of collecting inform ation on current and future labor requirements of the industries and plants in the area 

which they serve.

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E a st A sia and P acific 

Republic of China

A Survey of Employment and Manpower 

in the Republic of China 

(1966; 20pages)

F.W. M ahler, ILO Asian Regional Manpower A dviser

An assessm en t of current and projected manpower supply 

and demand.

All available data from reports prepared by 

various agencies of the Government of the Republic of China and by international organizations 

form ed the b asis on which this report is p re ­

pared. Topics covered include employment, labor 

force trends, employment projections, supply of 

qualified manpower, and anticipated shortages 

in certain occupations.

At the time of this report, virtually no planning regarding the manpower skill requirem ents 

of em ployers had taken place. The rapid expansion of education in recent y ears has been undertaken with only a general reference to manpower requirem ents. Elem entary education has 

been planned to provide universal education for 

all children between the ages of 6 and 12 years.

N early 97 percent of children in this age group 

are enrolled in school. Plans are being made to 

provide universal education beyond 12 years of 

age to include secondary and vocational school 

levels.

Recently, there have been significant developments in the establishm ent of an organization for 

manpower planning. A Manpower R esources 

Committe has been set up in the Council for 

International Economic Cooperation and Development. In addition, seven working groups 

have been established to deal with various a s ­

pects of manpower planning: education, training, 

recruitm ent, distribution, motivation, utilization, and stabilization. There is also a committee 

to coordinate manpower statistic s.

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E ast A sia and the Pacific 

Republic of China

Final Report on the Labor Force Survey 

in the Republic of China 

(1967; 15 pages)

DOLITAC 1 / Staff Paper No. 39;

Matilda Sugg, Statistical Consultant

Description of m easu res to im prove usefulness and 

accuracy of data in labor force surveys.

Q uarterly surveys of the labor force in the 

Republic of China are conducted by the Labor 

Force Survey R esearch Institute of the Departm ent of Social A ffairs. The Secretariat 

of the Manpower R esou rces Committee of the 

Council for International Economic Cooperation 

and Development (CIECD) requested an evaluation of the survey techniques. The aim was to 

recommend m easu res which might be introduced 

to improve the usefulness and accuracy of the 

data.

From the point of view of end-users of labor 

force data, desired im provem ents are sum ­

m arized as follows:

1. The resu lts of the surveys should be 

issued m ore promptly after the date of referen ce.

2. More interpretation and an alysis of the 

findings should be included in the reports.

3. Explanations of e rratic fluctuations should 

be contained in the an alysis.

4. Data on the employment se rie s should 

be separated into (a) agriculture, hunting, fo re stry, and fishing, and (b) nonagricultural industrie s.

Recommendations are intended to effect im ­

provem ents listed above. They constitute a longrange program for improving the survey and 

cover the following topics:

1. C larify concepts and definitions.

2. R evise questionnaire.

3. Simplify tabular presentation in quarterly 

report.

4. Improve accuracy of estim ates.

5. P ro c e ss and publish data rapidly.

6. Obtain regional estim ates.

7. Introduce one-time supplementary questions on survey.

8. Improve salary schedule of survey staff.

9. Train survey staff.

10. E stablish a R esearch and A nalysis Unit 

to interpret findings.

1 / U.S. Department of Labor International 

Technical A ssistan ce Corps.

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E ast A sia and Pacific 

Republic of China

Term inal Report to the Republic of China 

(1964 to 1967; 17 pages)

DOLITAC 1/ Staff Paper No. 45; Chester W. Hepler, Manpower Adviser

Report of a 3-year tour of duty in Taiwan a s adviser 

to the Manpower Development Committee.

A Secretariat was organized in 1964 to a ss ist 

the Manpower Development Committee in the r e ­

search and study of manpower problem s. Seven 

Working Groups were established to study these 

problem s and make policy recommendations. 

B ased on their reports, a Manpower Plan was 

submitted to and approved by the Executive Yuan 

in 1966.

V arious steps were taken to implement the 

plan. Four Working Groups were established to 

keep the manpower program under review and 

evaluate p ro g re ss. These groups were a s follows: (a) Employment Security, including subgroups on employment service, vocational training, labor standards, and unemployment 

compensation, (b) Education, (c) Manpower Utilization, and (d) Manpower Statistics. D etails 

of the work of these groups are discussed.

The rem ainder of the report d escrib es the 

work that should be given m ore attention by the

Manpower Development Committee and by the 

agencies responsible for implementing the program . Most of the comments are directed toward 

improved coordination and cooperation among 

the agencies with the recognition that the Manpower Development Committee is the central 

coordinator. Em phasis is placed on granting 

m ore authority to the Committee.

Note: During the consultant’ s tour of duty, 

he prepared papers for lectu res, m agazines, 

memoranda to Government officials, etc. These 

papers were collected and published by the 

Council for International Economic Cooperation 

and Development (CIECD) as follows: Manpower 

Planning for Prosperity, 1964-1967, The Republic of China, by Chester W. Hepler, 201 pages.

JL/ U.S. Department of Labor International 

Technical A ssistance Corps.

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Federal Reserve Bank of St. Louis
E a st A sia and P acific 

Indonesia

High-Level Manpower for Economic Development 

The Indonesian Experience 

(1965; 29 pages)

Bruce G lassburner (University of California). A rticle in Manpower and 

Education, Country Studies in Economic Development, Frederick Harbison and 

C harles A. M yers, editors (New York, McGraw-Hill Book Company, 1965) pages 173-201.

A h istorical review of the educational system in Indonesia and an assessm en t of the magnitude of highlevel manpower problem s.

Education under the Dutch Colonial Government and the Japanese occupation is discu ssed. 

After independence in 1945, the Government of 

the Republic of Indonesia expanded the educational system at all levels and encouraged 

enrollment. Medicine and law rem ain the two 

m ost prestigious degrees in Indonesia, followed 

closely by econom ics and sociology.

Indonesia has not developed a system atic 

program for the development of human r e ­

sources. The two m ajor economic development 

plans—the Five Y ear Plan for 1956 to 1960 

and the long-range plan, 1961 to 1969—are 

essen tially lists of projects allocating planned 

levels of investment. No overall plan for manpower development to fulfill these goals was 

included in the program s. Specific information 

concerning high-level manpower needs are 

treated independently in each sector; this procedure m akes it alm ost im possible to see the

broad im plications in overall manpower r e ­

quirem ents.

Indonesia should give seriou s consideration 

to generating the n ecessary information for the 

development of a clear manpower reso u rces 

and requirem ents relationship with the economic 

development plan. Current labor force studies 

should be refined and extended to provide a 

se rie s of manpower data. These data should 

be used a s a b a sis for linking with the anticipated 

growth in various sections of the economy.

Government policy should continue to encourage expansion of enrollment at the m aximum rate that reso u rces will allow. Such 

expansion should be rapid enough not only 

to in crease the absolute numbers of persons 

in the high-level category but also to ra ise 

the ratio of such persons to the labor force 

and to the population.

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E ast A sia and Pacific 

Indonesia

Manpower in Indonesia 

(1961; 11 pages)

E. L. Nelson, AID Manpower Adviser 

An analysis of Indonesia’ s manpower situation.

The Eight-Y ear Economic Development Plan 

has a large number of projects that will require 

a vast in crease in trained manpower. However, 

the Plan m akes no provisions for providing the 

human reso u rces needed to c arry out these 

p rojects.

Statistics are sketchy and based on obsolete 

data; but it is assum ed that 40 percent of the 

population are in the labor force, m ostly in a g riculture.

Manpower needs of Indonesia include occupations which require extensive education or manual skill. The various training facilities for developing trained manpower are described* A 

m ajor need is for vocational and occupational 

guidance program s to guide young people entering post-secondary schools.

Current plans are to produce, over the 8- 

year period, m ore than 400,000 trained w orkers. 

Skilled w orkers are needed urgently in the construction, transportation, communications, and 

rep air service industries. Therefore, training 

should be em phasized in skilled occupations in

building construction, metalworking, electrical 

trad es, and automotive maintenance rep air.

Indonesia’ s Department of labor has a valuable but underutilized resource in the Employment Service. This organization is national in 

scope and operates through a structure of r e ­

gional offices and 82 local offices. It has a staff 

of 1,500, nearly 40 percent of total employment 

in the Department of Labor. Its m ajor work is 

processin g large numbers of unskilled applicants 

for jobs as lab o rers, whereas Indonesia’ s real 

need is to place w orkers who have sk ills. B ecause qualified Indonesian citizens could not 

be recruited to fill job o rd ers, the Employment 

Service had to issue work perm its for over

127,000 foreign w orkers in 1960.

Most of the consultant’ s recommendations 

were directed toward ways of improving the E m ­

ployment Service. Technical assistan ce should 

be provided to aid in training skilled w orkers, to 

strengthen Employment Service functions, and to 

train Employment Service officials in U.S. Departm ent of Labor participant-training facilities.

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E ast A sia and Pacific 

Indonesia

The Organization of the National Employment Service 

(1961; 32 pages)

ILO Report to the Government of Indonesia; 

ILO /TA P/Indonesia/R .16; T. J . Simond (A ustralia)

Steps taken to improve the organization and functions 

of the Employment Service.

From its beginning in 1945, the Indonesian 

Employment Service was concerned prim arily 

with attem pts to find work for job seek ers. 

L ater, it began to collect data from local 

offices—the beginning of a statistical section. 

An occupational research program , a vocational guidance program , and registration of 

foreign w orkers were additional responsibilities 

assigned to the Service.

The Employment Service is one of two 

departm ents within the Manpower D irectorate; 

it has a head office in D jakarta, 5 regional 

inspection offices, and 37 local offices. Attached 

to these local offices are 47 branch offices.

The consultant visited sev eral local offices 

to observe the operations. These v isits confirm ed the im pression that the Service was 

concentrating on the placem ent function and 

that these efforts were meeting with le s s than 

m oderate su cce ss. For exam ple, about 150,000 

job see k ers re g iste r annually and of these 

only 15,000 to 20,000 are placed each year 

in employment.

A pilot office in Bandung was established 

to serve a s a model and as a training ground 

for Employment Service personnel. B ased on 

the experiences of this pilot office, a manual 

of operations was prepared for use of all offices. 

It covered step-by-step procedures of applicant 

registration, vacan cies, special placem ents, vocational guidance, foreign employment, adm inistration, and employment m arket information.

Information on current and prospective manpower supply and demand has been collected 

by the local offices of the Employment Service. 

A survey of establishm ents that employed 51 

w orkers or m ore was conducted in 1957 and was 

repeated in 1958, at which time the firm s were 

asked to fo recast their employment levels. Many 

em ployers proved unable or unwilling to make 

a forecast, but it was cle ar that industrial 

activities were declining.

Recommendations included advice on such 

topics a s the occupational classification system , 

vocational guidance program s, staff training, 

inspection, and the operations manual.

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E a st A sia and Pacific 

Indonesia

A nalysis of the Vocational Training Program 

of the Republic of Indonesia 

(1962; 12 pages)

S. M. Ju stice, AID Training Consultant

A review of the various vocational training program s 

adm inistered by Indonesia’ s Department of Labor.

The organizational chart of the Vocational 

Training Division m akes provision for substantially all types of vocational training. In p ractice, however, som e activities are far better 

developed than others. F or exam ple, 9 of 13 

planned vocational training centers are in full 

operation. Recommendations are made for the 

establishm ent of the four additional vocational 

training centers. An attempt also should be made 

to define the relative ro les of the Department of 

Labor and the Department of B asic Education in 

the general field of vocational training.

The Vocational Training Division offers 

cou rses at the vocational training centers for 

su p erv isors. The Productivity Institute of the 

Department of Labor is responsible also for the 

adm inistration of a form al training-withinindustry program . It is recommended that USAID

continue to support the latter program , but that 

the ro les of the Vocational Training Division and 

the Productivity Institute be clarified.

The Department of Labor has recently become interested in the establishm ent of mobile 

training units, equipped with trucks and portable 

shelter, to provide training sk ills in remote 

a re a s. USAID was asked to help fund one such 

pilot unit.

In sum m ary, very little p ro g ress has been 

made in developing a coordinated apprenticeship 

program . Staff personnel have had to devote their 

tim e to mobile unit planning and to supervisory 

training. A sound apprenticeship system should 

be developed a s soon as possible. All sk ills 

training program s should be coordinated closely 

with other phases of the Department of L abor’ s 

manpower activities.

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E a st A sia and Pacific 

Indonesia

A nalysis of Labor M arket Information and Employment Service 

in the Republic of Indonesia with reference to the Development 

of a Manpower P rogram for Economic Development 

(1962; 20 pages)

Joe White, AID Manpower A dviser

A description of the problem s that must be resolved 

before an effective manpower program can become 

operational.

Manpower Planning—A committee composed 

of officials of the Manpower D irectorate and 

the Employment Service of the Department of 

Labor refined the draft manpower plan to 

present to the National Planning Council. This 

plan provides a framework for a program 

directed toward the manpower needs im plicit 

in the 8-year plan. Included in the draft were 

plans for a National Manpower Council, which 

would have the responsibility for manpower planning. Manpower sem inars were planned for key 

Government officials and private businessm en.

Labor Market Information—Heavy reliance 

has been placed on the Employment Service to 

assu re efficient use of trained w orkers. Manpower data should be collected and analyzed to 

provide the Service with important information 

on manpower reso u rces and requirem ents. Inform ation on occupational supply and demand is 

especially needed for guiding and training young 

people.

Employment Service—The current organization and operation of the Employment Service 

are based on techniques used in the United States. 

Each program is analyzed in relation to the conditions existing in the country. The manual 

prepared by a previous ILO consultant was used 

a s a b a sis for reaching conclusions and making 

recom m endations.

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E ast A sia and Pacific 

Indonesia

Manpower Information and Planning 

(1963; 16 pages)

ILO Report to the Government of the Republic of Indonesia; 

ILO /TA P/Indonesia /R .19; Michail Y. Opanasenko, Manpower Adviser (USSR)

A review of the manpower situation, manpower data, 

and the manpower information program .

Indonesia’ s m ajor manpower problem are (a) 

the current need for qualified w orkers, (b) insurance that trained w orkers will be available 

when needed, and (c) creation of sufficient job 

opportunities to relieve chronic unemployment. 

Some prelim inary m easu res have been taken to 

tackle these problem s.

The four main sou rces of manpower information are (a) the Central Statistical Bureau, (b) 

the Bureau of Planning, R esearch, and Statistics 

in the Department of Labor, (c) the statistical 

divisions of other Departm ents, and (d) the Em ­

ployment Service. The types of data available 

from these sources are described. In general, 

these data are insufficient and lack com parability for an effective manpower information p rogram . The m ost seriou s problem appeared to be 

the lack of coordination among the organizations 

collecting the data.

The present manpower situation in Indonesia 

is characterized by larg e -scale unemployment 

and underemployment, chronic shortages of highlevel manpower, inadequate facilities for education and vocational training, and m aldistribution 

of population in geographic are a s.

Recommendations

1. The principle should be accepted that manpower planning is a part of the broad fram e work 

of economic and social development planning.

2. An appropriate adm inistrative organization should be established for realization of the 

general aim s of manpower planning.

3. The statistics-gath ering functions of all 

agencies should be coordinated and the organization of the Central Statistical Bureau should 

be strengthened.

4. A widespread information program should 

be initiated to acquaint the public at large with the 

principles of planning program s and their overall 

objectives of raisin g living standards, and to em ­

phasize the responsibilities of the various agenc ie s in regard to the supply of information.

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E a st A sia and Pacific 

Indonesia

Human Resource Development in Indonesia 

Problem s, P olicies, P rogram s 

(1964; 15 pages)

Don Roney, Employment and Manpower A dviser, Labor Division, USAID/Djakarta 

O bservations on manpower development activities.JL/

Indonesia’ s manpower situation should 

be reviewed carefully before USAID invests 

in a manpower program . Too am bitious a program might doom the undertaking to failure. 

This report attempts to identify secto rs in which 

critical bottlenecks are likely to develop.

The m ajor problem s encountered are the lack 

of adequate manpower data, the relatively low 

educational level of the work force, the unbalanced institutional capability, and the lack 

of a central organization for manpower planning.

Some of the b asic manpower task s that 

the Government of Indonesia can undertake 

are a s follows:

1. Expand enrollm ents and school facilities 

at the senior technical high schools.

2. Develop a network of schools to train 

technicians.

3. Double the faculty in the physical scien ces 

at the State universities.

4. Integrate management training facilities 

and p rogram s.

5. Develop skilled manpower for maintaining 

and repairing capital equipment.

6. Develop a vocational guidance program at 

the junior high school level.

7. C reate a central organization for manpower planning and training.

8. Develop Employment Service functions, 

especially the manpower information program .

Before USAID continues to invest in program s in Indonesia, the field of human r e ­

source development m ust be viewed against c e rtain fundamental questions: What are the needs? 

What kind of program is appropriate to meet 

these needs? To what extent can or should U.S. 

aid be appropriately provided? A long-range 

program may be im practical if no reasonable 

assuran ce is given that USAID presence and 

support will be continuing and constant.

1 / Consultant’ s note: This report is a fr a m e 

of reference for USAID for discussion and 

further program decisions; it is not a statement of USAID policy.

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K orea

High-Level Manpower in K orea 

(1960; 11 pages)

J. L. Thurston, AID Manpower Consultant

A general statem ent of manpower development and 

information program s as background for describing 

K orea’ s manpower problem s.

The role of manpower, especially high-level 

manpower, in a developing country is discussed. 

Manpower planning is a complex concept since it 

involves many peripheral considerations, such 

a s the educational system , economic growth, 

population shifts, industrial patterns, social 

attitudes, political views, etc. All these sectors 

have to coordinate and cooperate their efforts to 

develop a skilled work force capable of carrying 

out the goals of the overall economic development 

plan.

B asic questions regarding the su cce ss of a 

manpower program require proper tools of 

m easurem ent. Labor force studies are essential 

to uncover job information and personal chara cte ristics of the labor force. Other b asic statistical studies include surveys of establishm ents 

and of educational institutions.

Recommendations

1. A single unit of Government should be 

charged with the responsibility for planning in 

the manpower field. This should be the Economic Development Council.

2. A cabinet-level manpower coordinating 

committee should be appointed by the President.

3. A manpower advisory committee should be 

appointed; it should be made up of rep resen ­

tatives from education, labor, b u sin ess, etc.

4. The National O fficials Training Institute 

should be expanded to include management 

cou rses.

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K orea

Manpower Development and Utilization in K orea 

(1965; 31 pages)

DOLITAC 1 / Staff Paper No. 47;

Edgar C. McVoy, Manpower A dviser

A review of the manpower situation in Korea.

In the field of education, K orea ranks with 

som e semiadvanced countries. However, there 

is an ex cess of college and high school graduates 

relative to current employment opportunities. 

Shortages of m iddle-level manpower appear 

among technicians, su p ervisors, and c ra ftsmen. Industry has very little system atic inservice training to prepare people who have 

education but not the right sk ills for jobs. 

M easures are being taken to establish apprentice training for industrial needs, but they 

are not yet in effect.

Full use has not been made of available 

manpower data. For exam ple, the 1960 Census 

of Population has useful information with resp ect 

to employment by occupation and industry. 

Projections of the population have been made, 

but none for the labor force, although the 

n ecessary data are available. The annual survey 

of education also provides useful data for planning. These data should be integrated with 

manpower requirem ents, when and if pro jections 

are made.

A program for the development of manpower 

policy, coordination, and adm inistration is described and recommended for implementation by 

the Government of K orea.

In planning education and training program s 

to provide manpower for development, more 

attention should be given to quality and content 

of such training to insure that it actually 

corresponds to the needs of the economy. The 

cost of education should be given careful consideration to determ ine on which levels of education to concentrate. About 10 recom m endations are provided for guidance in types and 

levels of education.

In the p ro cess of moving into a modern industrial economy, K orea m ust give m ore attention to the Employment Service for manpower 

distribution and utilization. Considerably m ore 

budget and technical development are needed 

to bring the sm all and weak local offices into 

an effective national system . Related to this is 

the need to expand and improve vocational 

guidance and counseling serv ice s.

1/ U.S. Department of Labor International 

Technical A ssistan ce Corps.

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K orea

The Role of Manpower in Korean Economic Development 

(1966; 85 pages)

Edward D. Hollander, AID Manpower Consultant

An examination of manpower reso u rces, requirem ents, 

and institutions in K orea, particularly in reference 

to the Second Five-Y ear Plan (1966-71).

N early two-thirds of the. employed labor force 

is engaged in agriculture, forestry, hunting, and 

fish erie s. The literacy rate is over 80 percent. 

Because of the relatively highly developed educational system , the proportions of profession al, 

technical, and w hite-collar w orkers are high.

F a r from being confronted with a general 

manpower shortage, K orea is faced with the 

problem of finding productive employment in 

order to achieve effective utilization of its skilled 

labor force. Some shortages may occur among 

m anagers and technical manpower, but these 

shortages can be avoided if the Government 

carefully estim ates needs and supply and takes 

the requisite steps to meet the deficiency.

The consultant estim ates that the total number of additional jobs created under the plan will 

be significantly le ss than that projected by the

Economic Planning Board. An analysis of the 

projections is provided.

Recommendations concerning organizations and 

institutions required for manpower planning and 

program m ing:

1. An Office of Manpower should be created 

in the Economic Planning Board to serve as the 

focal point for all manpower planning.

2. The Government should establish a 

cabinet-level M inistry of Labor. Labor m atters 

are now under the jurisdiction of the Office of 

Labor A ffairs in the M inistry of Health and 

W elfare.

3. An Employment Service Office should be 

developed within the M inistry of Labor and should 

include employment m arket information and 

occupational research functions.

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M alaya

Manpower Information 

(1962; 21 pages)

ILO Report to the Government of the Federation of Malaya; 

ILO /TA P/M alaya/R .16; Richard R. Zoeckler (United States)

A review of available manpower data in M alaysia.

The Second Five-Y ear Plan (1961-65) of 

M alaya anticipated that the 15-percent in crease 

in the population of working age would generate 

the need for 340,000 additional jobs during the 

period if the development targets could be 

attained. Because the F irst Five-Y ear Plan 

(1956-60) of Malaya did not absorb all the 

in crease in the labor force during that period, 

the Government felt it was n ecessary to refine 

their data in order to anticipate problem s in the 

current Plan.

Sources of manpower data

1. 1957 Census of Population.

2. 1960 Census of Manufacturing Industries.

3. Annual Employment and Wage Statistics.

4. 1959 Unemployment Survey.

5. 1962 Survey of Employment and Unemployment.

6. Monthly Report of the M inistry of Labour.

7. 1960 Report of the Education Review 

Committee.

Data from these sources were analyzed, 

and concepts and definitions were checked for 

com parability. It was not possible to draw up 

a statistical analysis of the current manpower 

supply- demand situation from the information 

available. A few general observations were made 

about the need for training teachers to in crease 

the educational and skill levels of the population.

Recommendations

1. Develop the Employment and Wage 

Statistics Reports into a periodic employment 

information se rie s.

2. Improve the reliability of the Em ployment Exchange rep orts.

3. Form ulate uniform standard definitions 

and classification c rite ria for occupations, indu stries, and employment status.

4. Develop annual benchmark tabulations on 

total employment from the Em ployees’ P rovident Fund Board reports.

5. Create a new position of Coordinator 

of Specialized Manpower in either the M inistry 

of Labour or the Economic Planning Unit.

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M alaya

Manpower Survey 1965: States of Malaya 

Technical Report 

(1966; 246 pages)

N.S. Choudhry, ILN. Sampling Expert; and David Christian, Ford Foundation Manpower Adviser

R esults of the first comprehensive manpower survey 

in M alaysia.

The Economic Planning Unit required an a s ­

sessm ent of manpower as a part of the form ulation of the F irst M alayasian Plan (1966-70). 

The survey was planned to provide data on em ­

ployment in all secto rs of the economy as a 

b a sis for analyzing manpower sk ills, shortages, 

requirem ents, and the industry-occupational 

m atrix. The Department of Statistics and the 

M inistries of Labor and Education cooperated in 

carrying out the survey. The sam ple covered 

about 60 percent of the total number of em ployees 

in the States of Malaya.

Most w orkers with sk ills are likely to be em ­

ployed in government or manufacturing. Government se rv ice s, including education, cover 35 

percent of all available jobs, and account for 52 

percent of the professional and m anagerial jobs, 

89 percent of the subprofessional jobs, 49 p e rcent of the clerical jobs, and 50 percent of the 

skilled jobs. Mining and manufacturing, which 

cover 15 percent of the total available jobs, 

employ 25 percent of the skilled jobs. In contra st, the estates sector of agriculture employs 

40 percent of the total available jobs of which 

nearly two-thirds are sem i- or unskilled jobs.

Out of the 3,400 foreign w orkers employed 

in the States of Malaya, over 95 percent were 

occupying professional and subprofessional positions. Most of these are in the nongovernment 

sector.

At the time of the survey, there was a shortage of 18,000 qualified w orkers, m ostly in the 

government sector. At the professional level, the 

vacancy rate was about 20 percent. Vacancy rate s 

also were serio u s in other occupations requiring 

education and skill. Acute shortages were in occupations in education, medicine, engineering, 

adm inistration, and management.

Recommendations

Training in nongovernment establishm ents 

should be stepped up to meet existing shortages 

and needs for replacem ent and expansion in the 

next 5 years. Government should expand inservice training and send more people abroad 

for training. Foreign sp e cialists should be re ­

cruited on a tem porary b a sis to meet som e of 

these needs.

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Thailand

Proposed Sample Design for a Labor Force Survey 

Report to the Central Statistical Office of Thailand 

(June 1962; 21 pages)

Dr. M argaret Gurney, AID Statistical Sampling A dviser, 

U. S. Department of Com m erce, Bureau of the Census.

An abbreviated outline of the first steps in the design of a sam ple for m easuring the ch aracteristics of 

the labor force in Thailand.

It is proposed to start the program m odestly 

with a sam ple of municipal a re as. The program 

later would expand the sam ple to cover the balance of the country. As experience is gained and 

funds become available, it is hoped that the 

sam ple eventually will provide separate r e ­

gional estim ates, on a monthly or quarterly 

b a sis.

The 1960 census of population contains the 

basic data needed to draw a sam ple for the 

survey of the labor force. For the initial 

program covering municipal are as only, a 

sam ple of 5,000 households containing 30,000 

persons is proposed. B ased on present population 

estim ates, this number represen ts a sam ple 

of about 1 in 120.

Out of 120 municipal a re a s in Thailand, 

93 will be covered in the first round. All

large municipal areas will be included and 

m ost sm all ones; probability of inclusion will 

be proportionate to size. Within the municipal 

a re a s, at le ast three census enumeration d istricts will be included, from which five to 

six households will be selected. Approximately 

150 interview ers will required, each of whom 

will interview from 15 to 40 households.

For the rem aining 3.6 million households 

outside municipal a re a s, a sam ple of 10,000 

households may be sufficient; that is, a ratio 

of 1 in 400. A staff of 160 interview ers will be 

needed; each interviewer will cover 60 households.

The report also covers such topics a s r e ­

liability, estim ation procedures, estim ation of 

varian ces, quality of survey, costs and timing 

of the survey, and rotation of sam ple.

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Thailand

Report on the Manpower Situation in Thailand 

(1962; 7 pages)

Joe White, AID Manpower A dviser *

D escribes the present manpower situation and future 

outlook, identifies problem s, and recommends possible 

lines of action of a comprehensive manpower program .

Thailand has made only a beginning toward 

the development of a full-fledged manpower program . A National Economic Development Plan 

was prepared; but, with few exceptions, the im ­

plications of the plan for manpower skill needs 

have not been examined.

A National Manpower Board was created in 

1961 under the chairmanship of the M inister of 

the Interior. The Board is responsible for re c ­

ommending manpower policy to the Government. 

However, as of the date of this report, the Board 

had met only at its organizational meeting.

A National Employment Service has been in 

operation for some tim e. Since its operations 

are confined largely to Bangkok, the Service is 

not a national organization in scope or character. 

Its ability to contribute to a national manpower 

program or to cope with problem s and responsib ilities is limited.

On the positive side, the recent 1960 census 

is expected to yield information that will be valuable in analyzing the manpower situation. A 

periodic sam ple labor force survey is expected 

to provide detailed occupational information 

which is lacking in the census. (See preceding

sum m ary.) These sources will provide labor 

supply information.

Immediate attention is needed on labor demand. Short-range estim ates of future requirements are obtained semiannually from employe r s . These data, however, are not sufficient to 

determine whether current educational and training efforts will meet future requirem ents.

Recommendations

1. The National Economic Development Plan 

should be analyzed to determine manpower re ­

quirements by occupational skill level, location, 

and year of need.

2. The adm inistrative machinery for manpower planning and operations should be 

strengthened.

3. The program s and staff of the National 

Employment Service should be expanded and 

improved.

4. A central training authority should be 

established and made responsible for planning 

and coordinating educational and training program s.

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Thailand

Development of a Manpower A ssessm en t Program 

(1963; 59 pages)

AjO Report to the Government of Thailand; 

ILO /TA P/Thailand/R .23; A. G. Read (Great Britain)

P resen ts recommendations for the organization and 

adm inistration of the National Manpower Board and for 

the improvement and expansion of manpower statistical 

program s.

In 1961, the Government of Thailand r e ­

quested ILO assistan ce in gathering and app raisin g manpower data for the development of 

manpower policies consistent with the economic 

development plan. The existing organization 

for the development of manpower reso u rces 

was the National Manpower Board, which was 

created in 1961, under the guidance of the Manpower Executive Committee. The Labor Division 

of the Department of Public W elfare, M inistry 

of the Interior, was expected to provide technical and adm inistrative support. However, 

because of lack of funds and staffing re so u rce s, 

the Labor Division was not able to assum e such 

responsibility.

The inability of the National Manpower 

Board to function a s planned is explored in 

Mr. Read’ s report. In late 1962, he was re ­

quested to advise the Secretary General of the 

National Economic Development Board on the 

b asic principles concerning the organization 

and conduct of a manpower assessm en t program 

suitable to the needs of Thailand. As a guide for 

understanding these principles, a se r ie s of detailed memorandums was prepared outlining the

organizational asp ects, steps and methods involved, and type of data used for analyzing 

manpower supply and demand. A ssistan ce also 

was provided in drafting the first report on the 

manpower situation in Thailand.

Existing manpower se rv ice s in the Labor 

Division included an employment serv ice , em ­

ployment information program , occupational inform ation, and vocational training. These p rogram s were not very effective, however, because 

of lack of staff, coordination, authority, and 

other hindrances. Relatively few data were 

available to evaluate, and the resu lts of the 

1960 census of population were not p rocessed 

completely. Semiannual data on employment 

in establishm ents that had 10 w orkers or more 

in the Bangkok-Thonburi area were available. 

Some statistics on student education and training 

were available from the M inistry of Education. 

Recommendations were made to improve the 

quality of existing manpower se rv ice s and to 

promote the collection and analysis of additional 

manpower information n ecessary for the a s s e s s ­

ment of human reso u rces.

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Federal Reserve Bank of St. Louis
E a st A sia and Pacific 

Thailand

Prelim inary A ssessm en t of Education 

and Human R esources in Thailand 

(Revised edition, October 1963;

Volume I : pages 1-85; Volume II : pages 89-456)

Joint Thai/USOM T ask Force on Human R esources Development 

in Thailand; AID consultants:

Eugene W. B u rgess, Cole S. Brem beck, and William J. Platt

Analyzes and projects manpower for educational planning. The report is basic to many subsequent studies.

This report is the outgrowth of a recom m endation made by A.G. Read, ILO adviser to the 

National Economic Development Board in 1962; 

the recommendation concerned the organization 

and conduct of a manpower assessm en tp ro gram 

suitable to the needs of Thailand. (See preceding 

sum m ary.) Since M r. Read’ s study, manpower 

responsibilities were tran sferred from the Ministry of Interior to the National Economic Development Board.

In 1963, the Board, in cooperation with the 

M inistry of Education, created a task force to 

carry out a prelim inary assessm en t of manpower. The objectives of the project were to (1) 

a s s e s s Thailand’ s human resource requirements for national development, (2) identify educational p rio ritie s, and (3) undertake educational planning for the m ost effective development 

of human reso u rces.

The AID contracted with Michigan State University for three direct-hire technicians to serve 

on the task force to complete the first two phases 

of these objectives. This report represen ts their 

activities during the 2-month study.

Volume I of the report d escrib es the m ajor 

findings of the task force and presents recom ­

mendations. Volume II is a detailed account of 

the sources and methods used to arrive at the 

conclusions.

M ajor Findings

Manpower projections to 1980 indicate that a 

high incidence of secondary school graduates 

(middle-level manpower) will be required if all 

manpower targets are to be met. Under the p resent educational structure, however, the output 

of secondary school graduates will not be sufficient to meet the demand.

M ajor Recommendations

1. The National E con om ic Development 

Board should continue manpower projection efforts begun by the task force.

2. An analysis of the secondary educational 

system should be made with the assistan ce of 

a task force of U.S. consultants. No long-range 

commitment of funds should be made until this 

step is done.

3. Manpower and Education Planning Offices 

should be established to a s s is t their respective 

M inistries. (A Manpower Planning Office and an 

Education Planning Office were later established.)

4. The Labor Division in the Department of 

Public Welfare should be elevated to Departmental level. (This was accom plished in October 

1965.)

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Thailand

Educational Planning in Thailand 

Paper presented to Summer Conference on 

Educational Planning, Syracuse University 

(July 1964; 30 pages)

Cole S. Brem beck, Michigan State University 

Institute for International Studies in Education

A companion—piece to Dr. Platt’ s Manpower Planning 

in Thailand. M ajor findings and recommendations concerning education, which were submitted by the Joint 

Thai/USOM T ask Force on Education and Human R esources in Thailand (to which the author was assigned), 

are supported by a detailed an alysis of the available 

data.

In sum m ary, the Joint T ask Force Study 

reem phasizes the need for education at all 

levels. At this stage in Thailand’ s development, 

however, secondary education is of critical 

value for the development of m iddle-level manpower. Such people are needed in trade, se rv ice s, 

management, supervision, and other tertiary 

secto rs of the economy. The T ask Force Study 

recom m ends redesigning the vocational, technical and other secondary school program s to 

meet these needs.

The m ajor portion of the report a s s e s s e s 

the structure and capacity of the educational 

system in Thailand. It analyzes current and 

projected (1970) demand for and supply of 

graduates at each educational level to determine the estim ated shortfall. The m ost seriou s 

deficit appears in the secondary education 

group.

To produce the number of secondary graduates needed to meet the economic development 

requirem ents for 1970, the number of graduates 

would have to be quadrupled. There are potentially enough students to fill this demand, but 

many of them are enrolled in academ ic cou rses 

in preparation for college. However, figures 

show that only one in four of the academ ic 

school graduates enter college; thus, the 

m ajority of the graduates are unprepared for 

the world of work. It was recommended that, 

in addition to the academ ic and vocational school 

system s already in existence, a third system 

be initiated. This system would cover general 

subjects that prepare young people for sem iskilled jobs in trade, serv ice s, and other 

w hite-collar jobs. The source of students for 

this “general” course would come from the 

overflow of the academ ic and vocational school 

sy stem s.

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Thailand

Manpower Planning in Thailand 

Paper presented to Summer Conference on 

Education Planning, Syracuse University 

(July 1964; 37 pages)

William J. Platt, Stanford R esearch Institute

A companion-piece to Dr. Brem beck’ s Educational Planning in Thailand. It develops the method of projecting 

manpower demand to 1980, as presented by the Joint 

Thai/USOM T ask Force on Education and Human Resources in Thailand to which the author was assigned.

Lacking the lead tim e to wait for resu lts from 

new surveys, the Joint T ask Force analyzed existing data. The m ost important sources were an 

economic development planfor 1960-66, the 1960 

census, a demographic projection to 1980, and 

semiannual job m arket surveys of establishments in the Bangkok-Thonburi area. The years 

of 1966 and 1980 were selected as target years 

for planning.

A nalyses of the educational attainment by occupation and economic sector for 1960 were p re ­

pared. The number of people expected in each 

occupation or sector was extended by the appropriate educational attainment coefficient to generate a required future stock or inventory of 

manpower needed for the specified economic 

output. The difference between future and present 

stock, in addition to allowance for outflows, rep ­

resen t the demand placed on the educational 

system , Certain refinem ents were made with 

regard to the changing educational attainment 

coefficients over the projected period.

For 1966, output estim ates by economic 

sector were available from the economic development plan in monetary term s. Using 1960 output and employment a s a b ase, the T ask Force 

made assum ptions a s to changes in productivity 

in each sector between 1960 and 1966. Shortrun 

projections of manpower stock in 1966 were 

made to determine whether current trends in 

output of graduates were keeping pace with the 

economy.

Long-range estim ates to 1980 required a 

variety of projections based on different a s ­

sumptions and a study of the patterns of demand 

generated by such variations. Labor force and 

industry/occupational structu res were p rojected. A com parison of changing international 

trends was made to refine the projections.

The report concludes with a discussion of the 

machinery for carrying out the functions of manpower planning and utilization. Specific recom ­

mendations for the new Manpower Planning 

Office were made; they pertained to its functions, 

responsibilities, and role in relation to other 

agencies.

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Manpower A ssessm en t and Planning 

(1965; 22 pages)

ILO Report to the Government of Thailand; 

ILO /TA P/Thailand/R .25; William A. Langbehn (United States)

Report em phasizes the need for a strong manpower 

planning organization within the National Economic 

Development Board.

Following the recommendations of A .G .R ead 

(see page 182), the Government of Thailand 

requested assistan ce in developing an effective 

organization to guide manpower planning and 

policy asp ects within the whole economic and 

social development plan. A Manpower Planning 

Unit, attached to the National Economic Development Board, was in operation on an ad hoc 

b a sis. (This unit later becam e the Manpower 

Planning Division.) An organizational plan was 

proposed and adopted; it called for operating 

sections on research , assessm en t, and publicizing work on the manpower situation.

The effectiveness of the work of the consultant was dimmed by the lack of full-tim e 

counterpart personnel. To make up for this 

gap, the consultant prepared over 130 documents covering concepts, prin ciples, and activitie s of manpower assessm en t and planning. It

was hoped that these papers would serve as 

training m aterials, background data, and survey 

methods when appropriate staff were available.

Sources of statistical data that could be used 

in manpower a ssessm en ts were investigated. 

Requests were made for tabulations on the 

industrial census; however, these data were not 

available by the end of the m ission. A step-bystep method was prepared for the Manpower 

Planning Unit to continue studies on manpower 

demand based on the Joint Thai/USOM Education and Human R esources study.

Recommendations concentrated on the establishment of an adm inistrative organization for 

manpower planning and on a com prehensive plan 

of short- and long-term activities of that organization. Other recommendations dealt with the 

development of clear-cu t policies and objectives 

on employment and training.

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Function and P rogram of the Department of Labor 

of the Government of Thailand 

(1965; 17 pages)

DOLITAC 1 / Staff Paper No. 10; Edgar C. McVoy, F ar E ast A rea Specialist

The Labor Bureau was upgraded to Departmental level 

in 1965, as a resu lt of the recommendations of the Joint 

Thai/USOM T ask Force on Education and Human Resources in Thailand (1963). This report describ es the 

problem s under the new Department of Labor.

Manpower program s

The program s and activities of the Labor 

Department, which include (1) employment exchange, (2) vocational guidance, (3) vocational 

training and (4) occupational promotion, are described and suggestions for their improvement 

are presented.

Special comments and observations are made 

regarding the coordination of the work in the 

Labor Department with the Manpower Planning 

Office in the National Economic Development 

Board. The respective roles of the Labor Department and the M inistry of Education need to be 

clarified, especially in the field of apprentice 

training.

Labor Relations and Labor Standards

A labor law was p assed in 1965 which estab ­

lish es new procedures for settling disputes. 

Future plans call for improvement and expansion of labor inspection activities and safety 

and health program s, revision of the Labor Code, 

and preparation of a handbook on settlem ent of 

disputes. Several suggestions are made about 

the improvement of current labor laws and 

standards.

The labor law of 1965 prohibits the formation 

of unions but perm its the right to bargain collectively ad hoc through a representative. Within

the context of Thailand’ s history and culture, the 

new law may be regarded a s a responsible first 

step toward normal labor-m anagem ent relations. 

It is hoped that the government will encourage 

labor to develop identity and leadership which 

is independent of management.

Labor Statistics R esearch

The m ajor statistical surveys and reports 

produced by the Department of Labor include an 

annual establishm ent survey in the BangkokThonburi area; occupational wage surveys in 

selected industries; annual reports on conciliation, work stoppages, work in juries, and em ­

ployment service activities; and reports on the 

patterns of employment status of vocational 

school graduates, on m igration, and on working 

conditions in m ines.

New projects for 1966 include studies of the 

employment situation of university graduates, 

underemployment in the Northeast, and working 

conditions in Bangkok. Specific recommendations 

are made to develop and improve sam ple surveys 

of establishm ents.

1/ U.S. Department of Labor International 

Technical A ssistan ce C orps.

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Federal Reserve Bank of St. Louis
E a st A sia and Pacific 

Thailand

Internal M igration 

(1965; 150 pages)

ILO Report to the Government of Thailand; 

ILO /O TA/Thailand/R.26; Robert Poupart

Report provides, for the first time in Thailand, com ­

prehensive b asic information on the movement of ru ral 

w orkers. Includes numerous statistical tables and m aps.

Migration has been associated with a number 

of deleterious effects, notably the growing problem of unemployed m igrants in urban are a s. 

An increasing rate of ru ral m igration into Bangkok has given rise to governmental concern. 

To obtain a clear picture of the situation, the 

Government of Thailand requested ILO a s s is t ­

ance in conducting a survey of internal m igratory movements.

The m ission ’ s objective was to determine 

the principal m igratory movements of rural 

w orkers. The em phasis was on qualitative 

asp ects such as cau ses of m igration, living 

and working conditions, and effect of rural 

m igration on economic p ro g re ss. The project 

was intended a s a pilot study to be continued 

by the Labor Department.

Available data consisted of information from 

the 1960 Census of Population and from a few 

reports prepared by the Department of A griculture. To obtain m ore intensive information, 

surveys were conducted in 45 out of 71 provinces. Interviews were conducted with anyone 

who had a knowledge of local conditions: government officials, teachers, em ployers, fa rm ers,

and local and m igrant w orkers. In BangkokThonburi, over 2,000 m igrant w orkers were 

interviewed during various season s at the Em ­

ployment Service offices and at bus and railw ay 

stations.

Economic factors, according to the survey, 

are the prim ary cause of m igratory movements. 

Population p ressu re and the scarcity of suitable 

farm land are the prim e factors causing migation 

among fa rm e rs. Other factors include excessive 

rainfall, lack of water, and crop p ests. The 

report also analyzes other social and economic 

conditions in ru ral a re a s which cause m igration 

and d iscu sse s the problem s connected with p ermanent and tem porary m igration.

The M ission recommended that the Government of Thailand consider certain rem edial 

m easu res for the alleviation of m igratory problem s. To keep ab reast of the situation, an 

adm inistrative unit should continue the study 

of m igratory movements. Government policy on 

m igration should be outlined clearly and the 

various agencies involved strengthened. Several 

recom m endations cover the protection and welfare of m igrant w orkers and control of m igratory movements.

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Federal Reserve Bank of St. Louis
E ast A sia and Pacific 

Thailand

Current and Projected Secondary Education P rogram s for Thailand 

A Manpower and Educational Development Planning P roject 

(1966; 257pages)

Educational Planning Office, M inistry of Education, Thailand, Publication No. 9

This report is based on one of the recom m endations of the Joint Thai/USOM T ask Force. 

This recommendation related to a more intensive 

study of secondary education, both vocational 

and academ ic, with special reference to manpower needs. A team from Michigan State University, supported by AID funds, a ssiste d in the 

preparation of this study. The team included Dr. 

Raymond N. Hatch, Chief, Dr. Stanley P. Wrondki, 

and Dr. David K. Keenan.

Contents of report

1. Background of secondary education in 

Thailand.

2. Organization and adm inistration of the 

M inistry of Education.

3. Present and future demand for manpower 

in Thailand.

4. Social and philosophical b a se s of secondary education.

5. The objectives of education for the youth 

of Thailand.

6. Enrollment status and trends, projected to 

1986.

7. The curriculum , covering subject m atter, 

instructional aid s, and teaching methods.

8. Quality of the instructional staff.

9. Education productivity, m easured by 

quality of the educational product and the efficiency with which it is produced in term s of 

time and money expended.

10. Summary and recommendations.

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Federal Reserve Bank of St. Louis
E a st A sia and P acific 

Thailand

Manpower Development in Thailand’ s Private Sector 

(Memorandum, July 1967; 7 pages)

Henry F. M cCusker, Manpower A dviser, Stanford R esearch Institute, 

assigned to the National Economic Development Board of Thailand

An overview of the manpower situation in the private 

sector of Thailand’ s economy.

The Manpower Planning Division of the National Economic Development Board conducted 

research in preparation of Thailand’ s Second 

National Economic and Social Development Plan, 

1967-71. Information regarding employment and 

training program s was obtained from a survey 

of 20 companies that represent a cro ss-se ctio n 

of Thailand’ s m ajor economic secto rs.

M ajor findings of the survey

1. Employment in la rg e -sc a le private enterp rise will in crease on an average of 40 percent 

in the 1967-71 period.

2. Competition for engineers, technicians, 

m anagers, and supervisory personnel is very 

keen and their sa la ry level is risin g rapidly.

3. Sa larie s in private en terprise have a wide 

range and are, on the average, considerably 

higher than those paid to government em ployees. 

Among professional and supervisory w orkers, 

the differential may be three or four tim es as 

great.

4. Fringe benefits are broad and far exceed 

those offered to government w orkers.

5. Most com panies have som e form of training p rogram s, generally unplanned, informal 

on-the-job training. The m ajor exceptions are 

the petroleum com panies which have well-planned, form al in -service training program s tailo red to their specific needs.

A list of persons and com panies visited is 

provided, together with types of training program s offered by the various com panies.

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Federal Reserve Bank of St. Louis
E ast A sia and Pacific 

Vietnam

The Work Force in Saigon

A Survey of Some Economic and Social C h aracteristics 

of Em ployees in M edium-Sized Industry 

(1960; 178 pages)

Ja m es B. Hendry, Michigan State University, Vietnam Advisory Group

An examination of the social and economic ch aracteristics 

associated with employment in m edium -size industrial 

establishm ents in Vietnam,

The main purpose of the survey was to understand what happens to people when rapid industrialization in a form erly ru ral economy 

takes place. Since no data on the labor force in 

Saigon were available, it was decided to sam ple 

the work force employed in industrial firm s.

A sam ple of four “typical” establishm ents 

was selected; they represented pottery manufacture, drugs and p lastics, soap, and printing. 

Three of the firm s employed 100 people, the 

fourth employed 300. One-half of the employees 

in the three sm all firm s were drawn into the 

sam ple and one-fourth in the large firm . The 

response of those selected represent som e of 

the conditions of and the attitudes toward industrialization in Saigon in 1958.

Information was obtained on the following 

general a re a s of interest:

1. Description of the work fo rce—age and sex 

distribution, income range, duration of employment, form er employment.

2. Living conditions and fam ily structure— 

type of housing, recreational facilities, m arital 

statu s, fam ily size.

3. Movements of w orkers—extent to which 

m igrants and displaced persons have been absorbed into the labor force; education and experience of recent m igrants com pared with longterm city residents.

4. Unionization—composition of unionized 

labor force in term s of skill, length of employment, sex, type of plant.

5. Work satisfaction and attitudes toward 

management—examination of job preferences 

and job satisfaction according to such variables 

a s job sk ills, education, workplace, etc.

The appendixes describe the methods used 

and the interview experience, and contain a copy 

of the 32-question questionnaire. There are 54 

tables in the text and 24 in an appendix.

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Federal Reserve Bank of St. Louis
E a st A sia and P acific 

Vietnam

Report on Manpower A dvisory P roject, USAID/Vietnam 

(March 19 to June 2, 1966; 10 pages)

DOLITAC 1 / Staff Paper No, 13;

Richard R. Zoeckler, Manpower A dviser

A report on current p ro g re ss in a sse ssin g urban manpower needs.

Considerable attention was focused on the 

demand-supply situation in Vietnam in late 1965, 

when construction contractors and other large 

em ployers indicated their manpower requ irem ents would be increased. Arrangem ents were 

made for the importation of Am erican and 

third-country nationals to fill key positions and 

to meet shortages of critical sk ills. Speculation 

soon arose regarding the impact of such hiring 

on the Vietnamese economy and on labor-m anagement relations. A U.S. Civilian Manpower 

Committee was form ed to evaluate the situation.

Existing population and employment data are 

inadequate for pu posesof an alysis. An estab lish ­

ment survey is currently (1965-66) being conducted by the M inistry of Labor in the SiagonGia Dinh area and in An-Giang Province. A 

sim ilar 1964 survey is still being p rocessed. 

Establishm ent reporting will be em phasized 

from now on. The adviser recommended that 

data be developed by area rather than on a national b a sis.

The National Institute of Statistics is planning a complete census of industrial and com ­

m ercial establishm ents on its own. It will include data on production, power consumption, 

and capital investment.

The M inistry of Labor is being reorganized. 

This reorganization involves many personnel 

shifts and reassignm ent of certain functions. 

The agency added a research planning and labor 

statistic s division in its new reorganization. 

The Employment Service is engaged principally 

in recruiting w orkers for construction p rojects. 

Little service is beingprovided other em ployers.

The Manpower D irectorate’ s Committee on 

Manpower Planning was given the assignm ent 

of drafting long-range manpower policy su ggestions. For 1966, special attention is to be given 

to the development of vocational training. The 

aim for 1967 is to improve employment p lacement operations. The adviser suggested that em ­

ph asis be placed on obtaining accurate and dependable labor force information before making 

far-reach ing policy prop osals.

1 / U.S. Department of Labor International 

Technical A ssistan ce C orps.

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Federal Reserve Bank of St. Louis
Near E a st and South A sia 

Afghanistan

Human R esources Development 

and Manpower Utilization in Afghanistan 

(1967; 69 pages)

Meredith B. Givens, AID Manpower Consultant

An evaluation of Afghanistan’ s educational and training 

activities in relation to current and projected manpower 

needs.

At present, Afghanistan has no system atic 

program or central organization concerned with 

the development of human reso u rces nor an effectively organized central statistical office. 

However, some rudim entary components for a 

manpower program exist:

1. A Manpower D irectorate in the M inistry of 

Planning, which collects employment information 

from establishm ents and is responsible for allocation of university-trained personnel to posts 

with Government.

2. A Civil Service Department in the Prim e 

M inistry.

3. A National Employment Bureau in the Ministry of Mines and Industries, which con sists of 

two officials attached to the Personnel Office. 

The work is lim ited to a few placem ents each 

year.

4. A National R egister of Skilled Personnel. 

Questionnaires have been issued to government 

personnel but very few have been returned.

5. A Division of Vocational Guidance in the 

Department of Vocational Education in the Ministry of Education, which con sists of two em ­

ployees who also have duties elsew here. Very 

little work has been accom plished.

The first National Census ever to be taken in 

Afghanistan will occur in 1968/69, with advisory 

se rv ice s from the United Nations. Up to now, 

manpower estim ates and projections have been 

made by various advisory team s from ILO, 

U .S.S.R ., and the United States (Robert Nathan 

A ssociates). These data are inadequate for developing a manpower program .

Education is the Nation’ s faste st growing 

industry. The number of schools and the number 

of pupils at each educational level have increased 

rapidly during the la st 5 y e ars. The educational 

system is heavily dependent on foreign aid, e s ­

pecially from the United States and U.S.S.R. 

Unemployment and underemployment of liberal 

a rts graduates from the University of Kabul are 

sign s of overinvestm ent in this area. In order to 

avoid this w aste, studies on manpower needs 

should be made to guide educators on the content of cou rses and the level of education that 

are required to meet these needs. Form al education should be linked with work-based training in the development of m iddie-level manpower.

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N ear E a st and South A sia 

Ceylon

Observations on V isit to Ceylon 

(1961; 8 pages)

S. M. Ju stice, AID Apprenticeship Consultant

A report on apprenticeship activities in Ceylon, based on 

a 5-day observation tour.

Participant followup

A meeting was arranged for 12 of the 15 

form er participants who received training with 

the Bureau of Apprenticeship and Training, 

U.S. Department Labor. In general, they showed 

satisfaction with the program s that had been 

arranged for them in the United States.

Contact with M inistry of Labour

A v isit was made to the Central Employment 

Service Exchange and new vocational training 

center. Some of the topics d iscu ssed included:

1. Wage Board ordinaces. In the field of 

motor engineering, certain w orkers may re ­

ceive supplemental instruction at the Ceylon 

Technical College for which they are granted 

re le ase tim e and pay by their em ployers.

2. Vocational and trade testing center. Occupational capacities of Employment Exchange 

registran ts are tested for placem ent of machinis ts , w elders, and sim ilar occupations.

3. M iscellaneous problem s of Employment 

Exchanges including early school le av ers and 

large numbers of hard-to-place unskilled worke r s.

V isit to the Ceylon-German Workshop

This workshop provides technical training 

of m echanics to overhaul and maintain the nationalized bus system in Ceylon. Sixty men are 

selected each year from the over 4,800 applicants to undergo a 3-year training program . 

The consultant considered this to be the best 

training center observed during his trip to 

sev eral countries.

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Federal Reserve Bank of St. Louis
N ear E ast and South A sia 

Ceylon

A Survey of Employment, Unemployment and 

Underemployment in Ceylon, 1959-60 

(1963; 11 pages)

International Labour Review, Vol. 87, M arch 1963, pp. 247-257.

Summary of the methods used and the resu lts of a labor 

force survey.

A household survey of the labor force was 

conducted by the ILO Expanded Program m e of 

Technical A ssistan ce with the cooperation of 

Ceylon’ s Department of Labor and Department 

of Statistics. The survey covered four quarterly 

periods of the year ending March 1960. A sam ple 

was selected from the 1953 census for three 

ru ral a re a s and two urban a re a s. Sample households were divided further to provide independent 

subsam ples so that estim ates of ch aracteristics 

would be available at the four separate quarters.

Ceylon has a young population. Out of a population of 10.3 m illion, nearly 44 percent were 

children under 15 y ears of age. N early 80 percent 

of school-age children, 5 to 15 y ears old, were 

attending schools, an unusually high proportion 

for a developing country.

About a third of the population was in the la ­

bor force, either working or looking for work. 

Sex participation ra te s were 45 percent for m ales 

and 16 percent for fem ales. A griculture, fo restry , and fishing activities employed 58 percent 

of the labor force; and manufacturing, mining, 

and public utilities accounted for 14 percent.

D espite the great dependence of the economy 

on agriculture, a relatively large proportion (63 

percent) of the w orkers in Ceylon were wage and 

salary e arn ers. Even in ru ral a re a s, a s much a s 

61 percent of employed person s were wage and 

sa lary earn ers, a feature which distinguishes 

Ceylon’ s economic organization from that in 

many other developing countries.

N early 13 percent of the labor force were unemployed persons. Unemployment in Ceylon is 

concentrated among youth and young adults. 

Among w orkers under 15 y ears of age, 44 percent 

were unemployed, chiefly in the ru ral a re a s 

where school attendance is low. More serio u s, 

however, was the high proportion of unemployment among young adults; over 30 percent of the 

15 to 19 age group and 20 percent of the 20 to 24 

age group in the labor force were unemployed.

Using the ILO definition, the survey m easured 

underemployment to include persons who worked 

fewer than 5 days or 40 hours during the past 7 

days and who were available for m ore work. 

About 45 percent of the ru ral employed and 30 

percent of the urban employed worked fewer than 

40 hours a week. However, relatively few of these 

people wanted extra work.

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Federal Reserve Bank of St. Louis
N ear E a st and South A sia 

Cyprus

Employment Service Organization and Operations 

(1962; 23 pages)

Report to the Government of the Republic of Cyprus; 

ILO /T A P /C yprus/R .2; G erald R. P arrish (U.S. Department of Labor)

Report review s the current Employment Service operations and d escrib es the conduct of establishm ent surveys.

In I960, the new Government of Cyprus 

faced a serio u s problem of unemployment and 

underemployment. Placem ent se rv ice s of the 

Employment Exchange system , which had been 

in existence since 1945, were found to be 

deteriorating. In order to proceed with planning for economic development, the need for 

current information on employment and manpower becam e urgent.

To estim ate the current manpower situation, 

two establishm ent surveys were conducted 6 

months apart. The first survey in February 1962 

covered all public and private em ployers with 

five w orkers or more in the N icosia-K yrenia 

D istrict. The second survey was conducted in 

September 1962. At the sam e tim e, an initial survey was undertaken in the L im asso l 

D istrict. Employment Exchange officers gained 

considerable experience which should form 

the b a sis for continuing surveys of manpower 

and employment information.

Certain technical problem s were yet to 

be resolved, however. For exam ple, benchm ark data were needed for total employment 

in each industrial sector and in each establishm ent. It was hoped that the 1960 Census 

of Population and the 1962 Census of Industry 

would provide the n ecessary benchmark data. 

However, technical difficulties delayed the use 

of the 1960 Census of Population by the consultant, and the 1962 Census of Industry had 

not been completed.

The consultant evaluated the organization 

and operations of the Employment Service, 

including its functions (employer relations, 

registration interviewing and special service), 

staffing, accom m odations, staff training, and 

preparation of the manual of operations. Recommendations on these topics were made 

consistent with ILO Convention No. 88 concerning Employment Service Organization. A 

time schedule was devised to effect these recom ­

mendations.

The Employment Service should play an 

important role in combatting the seriou s p roblem s of employment and unemployment by 

taking steps in the following are a s:

1. Until the conditions of rural life can 

be improved, stop-gap relie f from ru ral underemployment can be afforded through public 

works program s, a ssiste d by equitable placement serv ice s.

2. Chronic unemployment of educated youth 

can be alleviated by introducing m ore intensive 

and realistic vocational guidance program s.

3. R aising the skill level of the labor force 

can be done by improving the interviewing 

techniques of the staff and by providing the 

staff with current occupational information based 

on projections of manpower requirem ents.

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Cyprus

Manpower A ssessm en t and Employment Service 

(1964; 18 pages)

ILO Report to the Government of the Republic of Cyprus; 

ILO /T A P /C yprus/R .6; Richard R. Zoeckler (U.S. Department of Labor)

A review of the p ro g re ss of the Employment Service since 

the 1962 ILO M ission.

The principal objectives of the project were 

to advise the M inistry of Labour and Social Insurance on the development of a continuing program of manpower information and on the o rganization and operation of the Employment 

Service.

Information on the manpower suppy-demand 

situation was needed to implement the Five-Y ear 

Plan (1961-66). The three principal sources of 

manpower data were examined:

1. 1960 Census of Population—a valuable 

guide to the ch aracteristics of the labor force 

but of questionable validity in the a re a s of unemployment because of inadequate definition.

2. 1962 Census of Industry—valuable information but not complete because of inadequate 

coverage in several industrial secto rs.

3. Data from Employment Service 

activities—basically sound information on p e rsons actively registered for work. Data from the 

establishm ent surveys could not be linked to the 

Census for trend an alysis.

Supplementary manpower information for 

planning purposes cam e from the various administrative control system s in the Employment

Service office, from the annual survey of school 

graduates reporting labor m arket intentions, and 

from student registration s.

The consultant tried several methods to im ­

prove the current statistical information reporting system s. For exam ple, the semiannual 

establishm ent survey which was set up su c c e ssfully by the previous m ission was interrupted 

tem porarily to correct certain inconsistencies 

and to expand coverage to other towns.

Recommendations for improving the manpower 

statistic s program include:

1. Conduct a household survey of the labor 

force to fill in gaps of m issing information from 

the Census.

2. Use unemployment insurance data a s an 

indicator of the volume and trend of unemployment.

3. Improve techniques of establishm ent su rveys regarding size of sam ple, geographic 

coverage, etc.

4. Improve various operations of the Em ­

ployment Service, such a s adm inistration, p e rsonnel, job vacancy information, occupational 

classification system .

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N ear E a st and South A sia 

G reece

Organization of the Employment Service 

(1962; 26 pages)

ILO Report to the Government of G reece; 

ILO /T A P /G reece/R .17; A. Y. W. Cowie (United Kingdom)

A description of the adm inistrative organization and work 

of the Employment Service.

Responsibility for Greek employment m atters 

and for vocational guidance and training r e sts 

with sep arate D irectorates in the M inistry of 

Labour. Responsibility for unemployment benefits, fam ily allow ances, and con scripts5 benefits 

belongs to the Organization for Employment 

and Unemployment Insurance which is governed 

by a board appointed by the M inister of Labour. 

The Institute of Social Insurance acts a s a 

collection agency for social insurance contributions. C osts of operating these various o rganizations, including 49 local Employment 

Service offices, come from social insurance 

contributions.

The M ission noted many problem s arisin g 

from dual control of employment offices by the

M inistry of Labour and the Organization for 

Employment and Unemployment Insurance. Specifically, personnel staffing and duplication of 

work seem to be the m ajor problem a re a s. 

The M ission concludes that the only satisfacto ry 

solution is to place the employment offices under 

unified control and to allocate the employment 

and vocational guidance work among the various 

organizations involved.

In all, 30 detailed recommendations are 

presented as n ecessary to implement and im ­

prove the se rv ice s of employment offices. Most 

of these recommendations deal with organization, 

staffing, and local office control.

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Federal Reserve Bank of St. Louis
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G reece

Education for Economic and Social Development—G reece 

(1964; 237 pages)

Organization for Economic Co-operation and Development 

D irectorate for Scientific A ffairs, The M editerranean Regional P roject

This report is one of six prepared by research team s for 

the M editerranean Regional P roject with the financial 

support and technical assistan ce of the Organization for 

for Economic Co-operation and Development (OECD).

The research team assigned to G reece a s ­

se sse d educational and manpower needs and r e ­

sources in light of long term targets for 

economic and social development.

The first half of the book is devoted to a s ­

se ssin g the current educational system and potential reso u rces for educational expansion. 

Educational input and output, and their related 

factors, are analyzed in great detail supported 

by many statistical tables. Expenditures on 

education are presented for both private and 

public secto rs. Attempts also are made to app ra ise the quality of the educational system by 

analyzing teacher/pupil ratio s, school c la s s ­

room s and buildings, and other m easu res of 

quality.

The second half of the book deals with projections of manpower needs and educational 

requirem ents. Working within the economic 

development plan for the three 5-year periods 

to 1979, the research team analyzed projected 

changes in the occupational structure of nonagricultural industries, and estim ated manpower r e ­

placem ent requirem ents due to death and re tire ­

ment. The team then translated the adjusted 

manpower estim ates into educational requirements to 1979. The n ecessary expenditures for 

buildings, teach ers, operating co sts, etc., r e ­

quired to meet the long term demand for skilled 

manpower, are estim ated to be 3.2 percent of 

the 1974 G ro ss National Product, com pared with 

with 2.1 percent in 1961.

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India

Apprenticeship Training 

(1960; 25 pages)

ILO Report to the Government of India; 

ILO /TA P/India/R .3; S. A. Norton (Canada)

Report on the apprenticeship program in the State of 

West Bengal.

Under the National Apprenticeship Scheme 

(NAS), the all-India target was to train 7,000 

apprentices between 1957 and 1961. West Bengal 

had been allotted 3,000 places which were later 

reduced to 1,000. By 1959, the mid-point of 

this 4-year period, only 273 apprentices had 

completed training. By the tim e of the consultant’ s departure, 410 places had been filled. 

One of the reason s for the relatively few 

apprentice trainees appeared to be the lack 

of adequate publicity.

A conference of training officers from industry in the Calcutta area was held. Many 

topics were discu ssed and a program was 

prepared; for exam ple, standardizing sk illtraining syllabu ses, developing work schedules, 

establishing duration of study, and maintaining 

record s. A pilot project was conducted in one 

engineering plant to develop an apprenticeship program .

On the b a sis of his work and experiences 

in West Bengal, the consultant form ulated c e rtain views on the National Apprenticeship 

Scheme. Some of the topics discu ssed included 

a code of discipline, duration of training, ratio 

of apprentices to skilled w orkers, apprenticeship 

reco rd s, and periodic and final te sts.

Recommendations

1. State apprenticeship ad v isers should play 

a key role in the implementation of the National Apprenticeship Scheme.

2. A State Apprenticeship Committee should 

be established in each State and composed 

of representative from Government, industry, 

and labor.

3. In the la rg e r establishm ents, a Plant 

Apprenticeship Committee should be organized 

to help establish in-plant training.

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Near E a st and South A sia 

India

A Manpower P rogram for Economic Development 

Observations and Suggestions Concerning India’ s Manpower Program

(1960; 153 pages)

Leo R. W erts, Manpower Consultant, The Ford Foundation

Methods of developing, utilizing, and distributing manpower to achieve economic development goals.

The m ost seriou s problem facing m ost developing countries is how to e^qpand the experienced 

and skilled work force needed for economic progr e s s . Since many sk ills can be learned on the job, 

the responsibility for developing trained manpower belongs to both public and private enterp rise s. The report suggests various methods of 

encouraging establishm ents to develop their own 

skill training program s.

M aterial, equipment, power, money, and 

manpower reso u rces can be utilized effectively 

only if high-level m anagerial and professional 

technical sk ills are developed. Such talent is best 

developed through form al training at universitie s. Once trained and working on the job, manag e rs and high-level technical personnel should 

be given the opportunity to utilize their capacities a s fully as possible.

Developing and preparing new generations of 

manpower can be done by providing educational 

institutions with information on future occupational requirem ents so that enough young people 

can be adequately prepared to fulfill these r e ­

quirem ents. In addition, educational institutions 

should provide opportunities for the development 

of attitudes which serve the national and com ­

munity in terests, a s well a s their own individual 

aspirations.

As urban a re a s and industrial en terp rises 

rapidly in crease in size and number, the labor 

m arket becom es large and complex. Under these 

conditions, the country requires an Employment 

Service organization to assu re the orderly movement of w orkers, to provide a placement service 

for high-level manpower, and to provide job 

counseling to young people.

Modernizing societies m ust cope with the 

problem s of surplus unskilled labor and of shortages of skilled manpower. The Third Five-Y ear 

Plan includes program s to utilize surplus labor 

and to promote employment opportunities. Seve ra l additional suggestions are offered.

Responsible lead ers from Government, industry, and labor should review and examine the 

various program s already in existence in India 

and introduce a fully coordinated manpower adm inistrative and planning organization for the 

development of manpower. An All-India Manpower Policy Advisory Committee should be 

established to advise the Government on manpower policy and program . State and area subcom m ittees should provide n ecessary inform ation to the National Committee. All educational 

and training institutions should be included in 

the manpower adm inistration.

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India

O bservations on V isit to India 

(1962; 6 pages and 3 appendixes)

S. M. Ju stice, AID Apprenticeship Consultant

A report on apprenticeship activities in India, based on 

a 5-day observation tour.

Contact with M inistry of Labour

D iscussion s with the D irector General of 

Employment and Training in New Delhi included the following topics:

lo Provision of the new 1961 Apprenticeship 

Act, outlined in appendix I.

2. Training m aterials extensively in use, 

listed in appendix n.

3. Request for AID Apprenticeship Consultant for 6-month tour of duty.

4. V isit to the P u sa Industrial Training 

Institute, one of seven c ra fts training centers 

in New Delhi. T rad es and number of apprentices 

are listed in appendix III.

Contact with the National 

Productivity Council

This organization has sent sev eral p articipants to the training program s of the Bureau 

of Apprenticeship and Training, U.S. Department of Labor. Seven form er participants were 

contacted.

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Federal Reserve Bank of St. Louis
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India

P ro g re ss of the Occupational Information 

and Vocational Guidance P rogram s 

(1962; 14 pages)

ILO Report to the Government of India; 

ILO /TA P/India/R .15; S.O. Doos (Sweden)

A report of a second followup m ission to evaluate p ro g ress 

of vocational guidance program s instituted several years 

e a rlie r. 1 /

In 1955-56, ILO a ssiste d the Government of 

India to develop, within the D irectorate General 

of Employment and Training (DGET), a group 

of related program s: occupational information, 

youth employment serv ice, vocational guidance, 

and employment counseling. A fir s t p ro g re ss r e ­

port was made in 1958. This is the second progr e s s report.

Occupational R esearch and Information

E fforts to meet all of the different demands 

for occupational information will only lead to a 

diffusion of reso u rces. Therefore, available r e ­

sources should be devoted to a very limited 

number of activiites. Additional work can be 

started when reso u rces perm it and when it does 

not interfere with work already going on.

P rogram s which should be given high priority 

include:

1. Completing the National C lassification of 

Occupations.

2. Training Employment Service officers.

3. Revising Guide to C areer pam phlets.

4. Updating handbook on training facilities.

5. Expanding research on assessm en t of educational and training requirem ents.

6. Preparing p o sters and wall charts.

7. Preparing reading m aterials on occupational information for distribution to schools.

Vocational Guidance

Vocational guidance in the Employment Service has developed very rapidly. The number of 

guidance officers is expected to in crease over 

the current Five-Y ear Plan period. Guidance 

talks are provided to large numbers of groups 

and individuals. Em phasis should be placed on 

providing re alistic vocational guidances. Vocational guidance program s should be speeded up 

in the school system in order to guide young 

people while they are still in school.

1/ Report to the Government of India on 

Development of Program m es of Occupational 

Information and Youth Employment Service, 

Vocational Guidance and Employment Counselling (ILO /TA P/India/R.4) 1957.

Report to the Government of India on the 

P ro g re ss of the Occupational Information and 

Youth Employment Service and Vocational Guidance P rogram m es (ILO /TA P/India/R.6) 1958. 

F ir st followup m ission.

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India

The Operation and Extention of 

Vocational Guidance A ctivities 

(1965; 35 pages)

ILO Report to the Government of India; 

ILO /TA P/India/R .17; G. E. T. Whiting (United Kingdom)

A report on the current status of vocational guidance program s and on the assistan ce provided to expand these 

program s.

In addition to the Vocational Guidance Unit 

at the D irectorate General of Employment and 

Training, local units were set up at som e Em ­

ployment Exchanges to guide young and inexperienced school' le av ers and to counsel jobhunting adults. In addition, the Education 

Department was attempting to provide guidance 

program s in all secondary schools. According 

to a 1962 survey, however, only 5.5 percent of 

the 1,600 secondary schools offered a guidance 

program .

The consultant prepared a pilot project on 

vocational guidance for school-leavers. The 

purpose was to provide guidance for pupils 

through a joint program by the educational 

authority and the National Employment Service. 

Of the 400 pupils interviewed, 55 percent r e ­

quired a change of occupational goal, m ostly 

because the pupils tended to be over ambitious 

or tended to choose occupations unrelated to 

their capacities and inclinations.

On the b a sis of the resu lts of the pilot 

project, revised vocational guidance procedures 

at Employment Exchanges were recommended.

Most of the prop osals covered improvement 

in the number and quality of the guidance officers 

and som e changes in their duties. The consultant 

further recommended that Vocational Guidance 

Units should not be linked or concerned with 

selection or placement work. These units 

should be in p rem ises separate from Em ­

ployment Exchanges in order to have a wider 

appeal to job seek ers. Approval for this plan 

was withdrawn, however, because of problem s 

of lo gistics and finances.

An excellent analysis of the b asic problem s 

and fundamental difficulties besetting India’ s 

vocational guidance program is provided in 

detail. Some of the topics covered are: meaning of vocational guidance, need for employment, 

prestige attached to jobs, job satisfaction, 

function of the interview, basic research , and 

financial lim itations. Based on this analysis 

and on the outcome of the pilot project, r e ­

commendations are presented; they deal p rim arily with details of organization and of dayto-day operations.

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Federal Reserve Bank of St. Louis
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Iran

High-Level Manpower Development in Iran 

(1960; 83 pages)

Dr. T. H illiard Cox, Manpower A dviers, Governmental A ffairs Institute

A study to provide a b a sis for the expansion and im ­

provement of high-level manpower development in Iran.

Data used to prepare this report are the resu lt 

of a nationwide survey of higher educational institutions in Iran and student training program s 

in universities abroad. Information on b asic 

needs and future requirem ents for high-level 

manpower was obtained from a 1958 establish ­

ment survey. 1 / The m ajor em phasis of this 

study was to analyze high-level manpower problem s and to suggest program s of action for their 

solution through the expansion of present fa cilities, establishm ent of new activities, and im ­

provement or revision of existing program s.

The resu lts of the study indicate that present 

program s for developing high-level manpower 

are inadequate to meet Iran’ s industrial development requirem ents. Minimum additional manpower needs for 1963 are estim ated at 25,000 

p erson s. However, only 11,000 of these requirements will be met through training at home and 

abroad. The net shortage of 14,000 will occur in 

profession s considered to be of critical im portance to economic development: adm inistrator, 

physical scientist and engineer, agricultural 

scien tist, and m edical p rofession s. (Ironically, 

a surplus of nearly 5,000 is e je c t e d in the fields 

of liberal a rts, law, literatu re, and philosophy.) 

Net shortages of m iddle-level personnel, such 

a s teachers, n urses, and supervisory personnel, 

are also analyzed.

An examination of the utilization of employed 

high-level manpower shows that about half are 

utilized only partially. It is estim ated that, if it 

were possible to attain full utilization, the need 

for producing additional trained manpower could 

perhaps be cut by one-third to one-half.

Recommendations for the development and 

utilization of high-level manpower included the 

following:

1. E stablish a national registe r of high-level 

personnel.

2. Improve and expand curricula in all types 

and levels of technical and science schools.

3. R evise the salary structure of teachers 

at all levels.

4. E stablish a training-within-industry institute.

1/ National Manpower R esources and R equirem ents Survey, Iran 1958, Government of 

Iran, M inistry of Labor and Plan Organization, 

1959, 90 pp. Technical assistan ce provided by 

Governmental A ffairs Institute, including a 28- 

page manual on survey methods and procedures.

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Federal Reserve Bank of St. Louis
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Iran

Population and Labor F orce of Iran 

A Statistical Summary 

(1960; 38 tables)

Compiled by the Program and Econom ics Office, USAID/Iran 

A reference document for use of re se arc h e rs.

Statistical data contained in the various 

tables were taken from published reports of 

the M inistries of Interior and Labor, Plan 

Organization, and the Governmental A ffairs 

Institute. Information on the population appears 

in tables 1 to 15. T ables 16 to 32 present data 

on the ch aracteristics and size of the labor

force. The rem aining tables indicate the sk ills 

of the labor force and som e occupational inform ation. These latter tables are sum m aries 

of the manpower shortages that were compiled 

for the High-Level Manpower Development 

Study. (See preceding sum m ary.)

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Iran

Manpower Planning 

(1965; 26 pages)

ILO Report to the Government of Iran; ILO /T A P /Iran/R . 13; N ils T. Strom (Sweden)

An appraisal of the current and the developing manpower 

situation in relation to economic planning.

In 1962, a General Department of Manpower 

Studies and Statistics (MSS) was created in the 

M inistry of Labour and Social A ffairs to carry 

out manpower studies and to collect statistic s on 

labor m arket problem s. The MSS currently is 

(1965) conducting a household survey of the labor 

force. The General Department of Employment 

collects employment m arket information through 

its regional employment offices. Some job 

studies have been conducted by this office. Data 

from other sou rces also are listed.

B ased on these and other data, several r e ­

p orts on manpower and vocational training for the 

years between 1963 and 1972 were prepared. 

These reports contain many recommendations 

for the improvement of sk ills of the labor force. 

The broad conclusion drawn by this appraisal is 

that labor sta tistic s, employment m arket information, and manpower planning are fa r from 

sufficient to m eet the requirem ents of economic 

and social development planning. Statistical data 

on existing conditions are sc a rce ; and collecting, 

processin g, analyzing, and publishing of such 

data have been initiated only recently in many

fields. Because these data are sc a rce , a r e a listic evaluation of future manpower supply and 

demand is met with great difficulty.

Recommendations

1. The 1966 Census of Population should be 

conducted.

2. Detailed studies of the labor force should 

be made.

3. Human resource policy should be coordinated with the overall economic development 

plan.

4. Studies should be made of the manpower 

needs of the m ajor economic se cto rs.

5. The employment service organization 

should be enlarged and its operations improved.

6. ILO recommendations on the occupational 

classification system should be adopted.

7. Employment counseling should be organized in the General Department of Employment.

8. Vocational training should include more 

sp ecialties, esp ecially for m etal and construction work.

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Federal Reserve Bank of St. Louis
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Iran

Iran’ s Experience with Manpower Planning 

Concepts, Techniques, and L esso n s 

(1965; 32 pages)

George B. Baldwin (Harvard Advisory Group in Tehran). A rticle in Manpower 

and Education, Country Studies in Economic Development, Frederick Harbison 

and Charles A. M yers, editors (New York, McGraw-Hill Book Company, 1965)

pages 140-172

Background of manpower planning in Iran and its p ro spects for the future.

Manpower planning started just after thebeginning of the second Seven-Year Plan in 1955, 

with the establishm ent of a Manpower Development Division in Plan Organization. Weakened 

by p olitics, the Division had no role in the 

first national manpower plan of 1960-61 and was 

abolished in 1961. Long before 1961, the Economic Bureau of Plan Organization became interested in human resource development. This 

group rapidly became the main power center 

in Plan Organization and was assigned prim ary 

responsibility for drawing up the country’ s third 

plan. By 1962, Iran had a manpower plan of 

100 pages and an education plan of 250, more 

space in the 1,500-page plan than any other 

topic. Political re v e rse s, competition from 

rival in terests, and duplication of effort p re ­

vented much of the manpower plan from being

carried out. However, the plan provides a 

strategy and a standard which the country can 

follow when the situation changes.

The m ajor portion of the article d escrib es 

the various surveys conducted and analyzes 

the resu lts of the data collected. T ables of the 

occupational structure of nonfarm employment 

are provided and the output of schools for the 

next sev eral y ears is discussed. The shortage 

of teachers appears to be the m ost seriou s 

bottleneck lim iting expansion of the educational 

system .

In the long run, education will be the main 

inspiration for throwing off the traditional 

culture and for creating an atm osphere in which 

m ore will be possible than any one can now 

expect. In the short run, all that can be hoped 

for is the avoidance of g ro ss m istakes.

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Federal Reserve Bank of St. Louis
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Iraq

Reorganization and Development of the National Employment Service

(1962; 29 pages)

ILO Report to the Government of Iraq; IL O /T A P /Iraq/R .7; J.A . Rizvi (India)

An analysis of the operations of the Employment Service 

and recommendations for its improvement under the new 

Labour Law.

The Employment Service is one of the se c ­

tions under the D irectorate General of Labour 

in the M inistry of Social A ffairs. The establish ­

ment of the Employment Service is based on 

provisions of the Labour Law of 1958, which now 

is (1962) being revised. The consultant was to 

provide advice concerning changes in the new 

Code which may affect the Employment Service.

The Employment Service in Baghdad has two 

sections: The Identity Card Section which issu e s 

the n ecessary identity card s to enable w orkers to 

seek and hold jobs, and the Employment Section 

which keeps book re g iste rs on job applicants and 

job placem ents. The work of the m ission concentrated on establishing priority activities for 

strengthening the work of the Baghdad office. 

Em phasis was placed on reorganizing the office 

so that the Employment Service could serve as 

a model and training ground for future offices.

Staff m em bers attended daily training sessio n s 

which covered all asp ects of employment organization procedures and p ractices.

Recommendations for the improvement of the 

Employment Service under the new Labour Law:

1. The Service should be given independent 

statutory b a sis and financial provision.

2. An appointed Central Employment Board 

should be constituted as soon a s possible and 

local Employment Committees created as the 

Service expands.

3. The Manual of Instructions and the standard form s prepared by the consultant should be 

printed and used by the staff of the Employment 

Service O ffices.

4. Available employment data should be analyzed and made public at regular intervals.

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Israe l

Methods of Forecastin g Manpower 

Requirem ents and R esources 

(1961; 43 pages)

ILO Report to the Government of Israel; 

IL O /T A P /Israel/R .14; Harold Goldstein (United States)

Techniques of projecting short- and long-term requirem ents for occupations important to economic development.

Israe l has the basic statistical reso u rces, 

re se arch experience, and competent personnel 

to make possible an effective research p ro gram 

on manpower reso u rces and requirem ents. Data 

needed for projections have been developed in the 

Central Bureau of Statistics, the Bank of Israel, 

the Independent Falk P roject for Economic 

R esearch , and the economic m in istries. Manpower studies have been made in the M inistry of 

Trade and Industry.

A central staff is needed to bring together 

the various studies made by these agencies. 

This staff should be a single organization and 

recognized a s the Secretariat of the National 

Manpower Council, which is chaired by the 

M inister of Labour. 1 / P olicies and program s 

should be adopted and the facts and findings of 

the coordinated studies should be publicized to 

help develop public understanding and support 

for the program s.

An an alysis of all the available data is made 

and recommendations for their improvement 

are presented. For exam ple, coverage of the 

establishm ent survey should be extended to

include additional important economic activitie s, and information on employment by occupation should be obtained through periodic surveys.

Detailed recom m endations on the techniques 

of making short- and long-term projections are 

made. The method described combines the analytical approach with em ployers’ projections 

of their own needs.

Projections of manpower requirem ents 

should be based on those made by the Bank 

of Israe l because they represent the official 

appraisal of the outlook. The staff of the M inistry 

of Labour should work closely with the staff of 

the Bank of Israe l to develop the 10-year p rojections of manpower requirem ents. These p rojections should also consider alternative assum ptions on im m igration in view of the erratic 

nature of the origin and the occupational com ­

position of im m igrants.

1 / A Manpower Planning Authority was 

created in 1962 to serv e as Secretariat.

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Israel

Organization of the Employment Service 

(1963; 24 pages)

ILO Report to the Government of Israe l 

IL O /T A P /Israel/R .15; A.G. Hart (United Kingdom)

A review of the current adm inistrative organization of 

the National Employment Service and suggestions for its 

improvement.

The Employment Service Law of 1959 created 

a free National Employment Service under the 

general supervision of the M inistry of Labour. 

More than 700 people are employed in the Service. The organization con sists of a main office 

to manage the activities of the Service, a special 

office to provide placem ent and information 

serv ice to professional people, an office to place 

seam en, 29 district offices, 21 local offices, 65 

branch offices, and 62 staff offices. The functions 

and operations of these offices are described in 

detail.

The findings and recommendations are p rim arily comments aim ed at improving the adm inistrative organization and Employment Service policies. F or exam ple, the com pulsory 

nature of the law, regarding vacancies and 

registratio n s, has had a detrim ental effect on

the operation of the Service. It was recommended 

that action be taken to lim it the scope of the com ­

pulsory registration provisions or repeal them 

a s soon a s possible.

Sim ilarly, the law regarding the point system 

of placing applicants in jobs should be modified 

or repealed. Points are given registran ts according to number of dependents and duration of unemployment. Those with the highest points are 

placed in vacancies rega rd le ss of their physical 

or mental attributes or experience for the job. 

This practice places an unnecessary expense 

and delay on the employer who is obliged to give 

the person a trial. Furtherm ore, the point sy s ­

tem acts as a dangerous impediment to the e ffective development of manpower. Such development is one of the key factors in the p ro ce ss of 

economic growth.

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Israel

Manpower A ssessm en t and Planning 

(1965; 66 pages)

ILO Report to the Government of Israel; 

IL O /T A P /Israel/R .20; Sam A. M orgenstein (United States)

An an alysis of the 1964-69 manpower projections and 

suggestions for developing an effective manpower inform ation program .

Since its creation in 1962, the Manpower 

Planning Authority has served a s the central 

body for the coordination of research essential 

to manpower assessm en t and planning and as 

secretariat for the National Manpower Council. 

Informal but effective relationships have been 

established with all M inistries and agencies involved in manpower. The jurisdictional responsibility for manpower research rem ains to be 

worked out with the Central Bureau of Statistics.

The Manpower Planning Authority completed 

the 1964-69 manpower supply and demand projections. Methods used in these projections are 

analyzed and the educational output (supply factor) is described in detail. By the end of the 

1960’ s, Israel will be facing shortages in those 

occupations which require the longest period of 

education or training.

Types of data needed for a continuing em ­

ployment m arket information program are explained. The various organizations already collecting m ost of these data should be coordinated 

to avoid duplication and overlap of work. The 

National Manpower Council should perform this 

serv ice.

Recommendations were arranged in groups 

by order of implementation capability. Group 

A recommendations can be implemented im ­

m ediately; for exam ple, redefining the authority 

and functions of the manpower machinery. Group 

B recommendations require either further investigation or a longer time to put into effect; 

for exam ple, developing a system to collect 

accurate data on vocational training program s.

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Jordan

Organization of a Manpower A ssessm en t 

and Planning P rogram 

(1964; 23 pages)

ILO Report to the Government of the Hashemite Kingdom of Jordan; 

ILO /T A P /Jordan/R .7; O.B. Railey (United States)

An appraisal of the current and projected manpower situation and advice on the organizational requirem ents of 

a continuing manpower program .

The Jordan Development Board, which is r e ­

sponsible for economic and social planning, is 

attempting to include manpower asp ects in its 

development plans. The Board had conducted a 

study in 1960, but the data on which the study was 

based were inadequate. A population census was 

conducted in 1961, but complete tabulations were 

not expected until 1964.

The Department of Labour is concerned p rim arily with the adm inistration of the Labour 

Code. It does not operate an Employment Service 

or conduct research into the manpower situation.

Jordan’ s greatest need is for a permanent 

organization to establish a program of manpower 

assessm en t and planning. Within the Planning 

Division of the Development Board, a Manpower 

Planning Section was created on an ad hoc b a sis. 

The organization and functions are outlined in 

this report.

About half of the population is under 17 years 

of age. L e ss than a fourth of the population is in

the labor force. This very low proportion re suits 

from the preponderance of youngpeople and from 

the sm all number of women in the labor force 

(about 3 percent). Occupational and industrial 

distributions are provided in the analysis.

In order to fill gaps in the available manpower 

information, an establishm ent survey was conducted. The survey covered nearly 760 establish ­

ments in which alm ost 17,000 persons were em ­

ployed. Questions relating to occupations and 

future plans were asked. These data were used 

to analyze current and projected manpower 

needs.

Shortages of skilled workers and a surplus of 

untrained manpower will affect Jordan’ s eeo*- 

nomic and social planning. Recommendations are 

directed mainly toward the various means of providing for a continuing»study of manpower under 

the auspices of a permanent Manpower Planning 

Section.

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Jordan

Manpower in Jordan 

(1965; 8 pages)

Report to USAID/Jordan; E .L . Keenan, Manpower Consultant

Nature and extent of manpower problem s in Jordan and 

types of manpower program s that should be initiated or 

continued.

Population in Jordan is increasing at the rate 

of 3 percent a year, and labor force at the rate 

of 4 percent a year. It is estim ated that 17,000 

new w orkers joined the labor force in 1964. According to the draft Seven-Year Plan, however, 

only 12,000 new jobs are planned for the entire 

period to 1970. As a resu lt, there will be serious 

unemployment in Jordan.

The Government of Jordan should establish 

a manpower development unit within the Planning Division of the Development Board. At the 

sam e tim e, a manpower function in the Department of Statistics, M inistry of National Economy, 

should be established to gather and sum m arize 

data on a continuing b a sis. To a s s is t the Government in creating these units and advising on 

their functions and operations, AID should provide a broad gaged manpower sp ecialist.

There are at le ast three facets of the manpower situation in Jordan that deserve attention:

1. Manpower in Government is wasted because of the early retirem ent system and liberal 

pensions.

2. The pay scale for top level and technical 

personnel in Government is low com pared with 

sa la r ie s that they receive in Saudi A rabia or 

Kuwait. The situation can be improved through 

development of job qualification standards, job 

perform ance evaluation, and m ore equitable 

pay scale s.

3. The labor force is growing fa ste r than new 

jobs. At the present tim e, trained Jordanians are 

finding employment opportunities outside the 

country. There should be a m ajor expansion in 

the unplanned se cto rs of the economy; for exam ple, tourism will in crease employment opportunities in hotels, restau ran ts, bu ses, etc.

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Jordan

The Further Development of the Manpower A ssessm en t Program m e

(1966; 12 pages)

ILO Report to the Government of the Hashemite Kingdom of Jordan; 

ILO /T A P /Jordan/R .9; O.B. Railey (United States)

A follow-up review of p ro g re ss made since con sultants 

previous visit in 1964.

The Government of Jordan recently ratified 

ILO Convention No. 122 concerning the establishment of an active employment policy. To 

implement the provisions of this Convention, an 

organized manpower assessm en t and planning 

unit is needed. The functions of a Manpower 

Planning Section are described. (See sum m ary 

of ILO report IL O /T A P /Jordan/R .7).

Recommendations

1. Manpower Planning Section should be p ermanently established in the Planning Division of 

the Development Board.

2. Manpower Council should be established 

to form ulate manpower policies. It should be

composed of high-level officials from Government, industry, and unions. It should review, 

evaluate, and recommend manpower policies and 

studies, and otherwise give direction to the field 

of manpower development.

3. Manpower Information Advisory Comm ittee should be appointed by the Council to insure technical cooperation. The Committee 

should help in the technical coordination of manpower and related data.

4. Full use should be made of the information 

supplied by em ployers in the 1963-64 Manpower 

Survey.

5. Every effort should be made to complete 

the R egister of P rofessional and Technical 

Manpower which was started in 1964.

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Pakistan

Manpower Survey 

(1956; 176 pages)

ILO Report to the Government of Pakistan; ILO /T A P/Pakistan/R .lO ; 

C.W. Hepler (United States) and W.H. Mason (United Kingdom)

An an alysis of current and projected manpower reso u rces 

and requirem ents.

In preparing an Economic Development Plan 

at the end of 1953, the Pakistan Planning Board 

recognized the need for current and detailed information regarding manpower. The Board decided that the M inistry of Labour should conduct 

manpower surveys, with the advice and a s s is t ­

ance of a manpower expert from ILO, in order to 

develop the n ecessary information.

Several surveys were made to determine the 

supply of and demand for manpower:

1. A survey of about 5,000 establishm ents 

was conducted to collect information on the levels 

of employment, occupational distribution, fo rec a sts for 6 months hence, and estim ates of occupational shortages.

2. A household survey was conducted to determ ine the supply of labor. Information was 

collected on the age, sex, and wage of household 

m em bers; employment and occupational status; 

hours worked; and seasonal variations in work.

3. A survey was conducted by the M inistry 

of Education to determine the existing facilities 

for technical, professional and vocational trainingo

Data collected from these surveys and from 

available information were analyzed and supply/ 

demand projections were made. A com parison 

between the reported occupational shortages 

and the available training facilities gave some 

indication of the extent to which present facilities are adequate to meet currently expanding 

needs and projected needs. Each high-level p rofessional and skilled occupation was so analyzed.

M ajor Recommendations

1. There is an urgent need for the regular 

collection and rele ase of information about the 

manpower situation, particularly in connection 

with the p ro g re ss of the Development Plan. This 

information should be provided by m eans of a 

continuing employment information program .

2. To avoid wasteful overlapping of effort 

in planning, collecting, and distributing manpower information, the Department of Manpower 

and Employment should be recognized as the 

appropriate channel for these functions.

3. In form ulating plans for the expansion of 

technical and vocational training, p rio rities 

should be determined by the needs identified in 

the survey.

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Report on Thailand, Pakistan, A ustralia and the Philippines 

in Connection with the SEATO Skilled Manpower Report 

(1958; 9 pages and 3 attachments)

F red W. E rhard, AID Manpower A dviser

The SEATO Report of the Study Group on training needs 

for skilled manpower recommended strengthening vocational and technical schools, instructor training, and 

on-the-job training. This report deals with implementing 

these recommendations in Pakistan.

Attachment 2 presents specific proposals to 

USAID for the initiation and development of a 

national apprenticeship program and other form s 

of training in Pakistan. The prop osals include 

the following topics:

1. Training should be job-oriented to the 

actual needs of private industry and government.

2. Instructors from both government and 

private industry should be broadgaged enough 

to develop training sk ills as need a rise s.

3. Two U.S. training sp e cialists should be a s ­

signed to a s s is t in developing program s.

4. Responsibility for on-the-job training 

should rem ain in the Department of Labor. Offjob training responsibilities will have to be 

clarified by Government authorities.

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Development of an Employment Information Program 

(1958; 22 pages)

ILO Report to the Government of Pakistan; 

ILO /T A P /P akistan /R .17; W.H. Mason (United Kingdom)

Report exam ines the p ro g re ss made since the manpower 

report of 1956 1 / implementing the Employment Inform ation P rogram ,

The p ro g re ss made since 1956 has been good 

in staffing arrangem ents and in the training of the 

personnel. The Department of Manpower and 

Employment in the M inistry of Labor su c c e ssfully completed additional surveys of private 

households and employing establishm ents. P reparations for a fourth round of establishm ent 

inquiries were preceded by cou rses for the field 

staff given by the ILO consultant and his Pakistani counterpart, who had been trained abroad. 

However, p ro g re ss in issuing employment m arket reports and developing their u se s has been 

slow.

Recommendations to solve som e of the adm inistrative problem s:

1. Budget should be increased to allow for 

p rice index changes.

2. Local employment m arket reports should 

be function of local office.

3. Calculating m achines should be used to 

speed data processing.

4. Vacancies should be filled by promotion 

from within.

Recommendations regarding the technical 

problem s:

1. A specified cycle of establishm ent surveys 

based on type of industry (timetable in appendix 

A) should be made.

2. Employment m arket reports should be 

prepared a s described in sam ple in appendix B.

3. Proposed national sam ple labor force su rveys by the Central Statistical Office should r e ­

place current household studies now undertaken 

by the M inistry of Labor.

4. Employment m arket reports should be 

circulated widely throughout government.

1 / Report to the Government of Pakistan on 

a Manpower Survey, ILO, 1956,ILO /T A P /P akistan/R .10.

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Development of an Apprenticeship Scheme, 1957-1962 

(1963; 35 pages)

ILO Report to the Government of Pakistan; 

ILO /T A P /P akistan/R .28; H.X. Pootjes (Netherlands)

A description of the apprentice training program in 

Pakistan during the period 1957 to 1962 and recom m endations for its improvement.

P rior to the consultant’ s arrival, very little 

training of a system atized and regularized nature existed in Pakistan. The Department of 

Manpower and Employment directed five technical training centers. In 1957, a National Apprenticeship Council was established to review 

apprentice training in general and to make re c ­

ommendations for improvement. A National 

D irectorate of Apprenticeship Training was 

created and regional directorates were sanctioned in D acca and Lahore. L ater, a D irectorate 

of Technical Training was established. In 1960 

and 1961, advisory com m ittees suggested that 

these two directorates be operated within the 

M inistry of Health, Labour, and Social W elfare. 

The consultant recommended, in addition, that 

all councils, boards, and other training organizations coordinate their various facilities and 

operations under a National Training Board.

The ILO consultant’ s initial task was to 

awaken interest among the industries in the need 

for apprentice training. This work resulted in 40 

factories starting apprenticeship program s 

which included about 2,000 apprentices by the end

of his m ission. These program s were in the 

m etal and engineering trad es, the textile industrie s, and the printing industry. Apprentice 

training of marine engineers also was started at 

the request of the K arachi Port T rust.

The ILO consultant experimented with an 

Am erican mechanical aptitude test, adapted to 

Pakistani conditions, for the selection of applicants for training. He prepared theoretical 

lectures for cou rses given in the Karachi Polytechnic Institute, where 275 apprentices received 

training by 1962. A course was also instituted 

by the Dawood Cotton Mill and the Pakistan 

Swedish Institute.

In 1962, an ordinance requiring industry to 

take a role in training w orkers for skilled occupations was passed . The legislation states 

that those establishm ents which employ 50 

w orkers or more (of whom five or m ore are in 

apprenticeable trades) should train, at their own 

expense, at le ast 20 percent of the total number 

in these trad es. Expenditures incurred in this 

training would be allowed a s deductions on income tax returns.

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Pakistan

Manpower A ssessm en t and Planning P rogram 

(1963; 21 pages)

ILO Report to the Government of Pakistan; 

ILO /T A P /P akistan/R .30; G.D. Bishop (Canada)

Report d escrib es the various branches of the Pakistan 

adm inistration concerned with manpower.

Pakistan officials recognized the need for a 

manpower planning program to coordinate the 

vigorous program of investment under the 

Second Five-Y ear Plan (1960-64) and that proposed for the Third Five-Y ear Plan (1965-69). 

The Planning Com m ission operated a Manpower 

Section with a staff of two p rofession als. Most 

of their work consisted of utilizing existing data 

to estim ate employment changes by economic 

se cto rs and to project population and labor fo rce. 

B ecause of inadequacy of the data, in-depth 

studies were not possible.

The Central Statistical Office form ulated a 

com prehensive statistical program to coordinate 

local and central Government statistical activities to provide the Government with proper 

m easurem ents for social and economic planning. 

The following plans were outlined:

1. A directory of all establishm ents employing five em ployees or m ore.

2. The tran sfer of household labor force su rveys from the M inistry of Labour to the Central 

Statistical Office.

3. A quarterly establishm ent survey of em ­

ployment, earnings, and labor turnover.

4. An annual survey of vocational, technical, 

and professional training institutions.

5. An agricultural ru ral labor survey.

The manpower information program of the 

R esearch and Statistics Branch of the M inistry 

of Labour was based m ostly on resu lts of annual 

establishm ent surveys. Data were published 

about 2 y ears after the survey and were d istributed on a very lim ited b asis. The m ost recent 

survey (1961) included the occupational com position of each firm . Because of the importance of 

this information arrangem ents were made to 

tabulate resu lts in the Central Statistical Office. 

However, it was not possible to develop a trend 

se r ie s with data from the establishm ent surveys 

because of frequent changes in coverage and 

definitions.

Recommendations

The consultant confined his recommendations 

to the organization, staffing, and priority r e ­

search studies in the Manpower Section of the 

Planning Com m ission.

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Review of the T rad es Training Center Plan 

(1963; 167 pages)

Raymond D. Larson , Manpower A dviser, 

U.S. Department of Labor Survey Team

Report review s the feasibility of establishing a T rad es 

Training Center in Pakistan to serve a s a model for 

other developing countries.

Since m iddle-level sk ills were in short supply, it was hoped that the T rad es Training Center would sharply speed up training of these 

needed w orkers. The plan focused on training 

w orkers for employment in, and related to, the 

construction industry since this industry is b asic 

to all other secto rs. Significant features of the 

plan are as follows:

1. Reduction of training time by eliminating 

nonessential theoretical instruction.

2. Peace Corps volunteer carftsm en to serve 

as instructors.

3. The gradual replacem ent of Peace Corps 

volunteers with local in structors.

The survey Team suggested that a reasonable 

goal for training would be to increase the proportion of skilled w orkers in the construction 

work force from its current 12 percent to 50 p e rcent; that is, a goal of training m ore than 200,000 

skilled w orkers. Specific occupations, type of 

training, and equipment cost for each occupation 

are described.

The cost of building adequate training fa cilities is discu ssed in detail. It was estim ated 

that a total of 91,520 square feet for the Center 

could be built for $3.3 million. F irst-y e a r operation would cost about $300,000. It was estim ated 

also that 54 people, aided by two U.S. ad v isers, 

would be required to operate the facility. About 

110 in structors would be needed to train 780 

students in 18 construction trades.

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Survey of Labor Management Relations and Related 

Labor P rogram s in Pakistan 

(1964; 46 pages)

Adrian R oberts, AID Labor Management Relations Consultant

Study concentrates on proposed revision s of ordinances, 

the need for more study of protective labor law s, suggestions for reorganization of provincial Labor D epartment functions, and m eans for training labor union le ad ers.

Industrial growth in Pakistan has created new 

problem s in employee-management relations, 

and laws to promote industrial peace have failed 

to settle grievan ces. Legislation to encourage the 

trade union movement has stim ulated m em bership but failed to develop union leadership at the 

local levels. Under the 1962 constitution, the 

provincial governments were given responsibility to adm inister m ost labor legislation, while the 

central government retained coordination control to assu re uniformity. The consultant suggested that a sm all corps of liaison officers be 

established to advise provincial se c re ta rie s and 

d irectors.

Suggestions for revision s of the three m ajor 

labor laws were as follows:

Industrial Disputes Ordinance of 1959: A 

lim itation should be im posed on the jurisdiction 

and types of c a se s which may be referred to the 

industrial cou rts. Too many c a se s have gone to 

the courts rather than to conciliation. In addition, 

a revision of the works committee ru les should

be made to provide for greater equality in com ­

m ittee operations and to guarantee freedom from 

re p risa ls.

Trade Unions Ordinance of I960: A policy 

statem ent to encourage growth of labor unions 

for collective bargaining purposes should be included. All unions should be registered and the 

waiting time for union recognition should be re ­

duced. Study should be made of inconsistancies 

favoring em ployers in penalties handed down 

by industrial courts.

Industrial and Com m erical Employment 

Ordinance of 1960: A positive statem ent of purpose is needed. An amendment should specify that 

no worker can be discharged with just cause.

Suggestions were also made for establishing 

a Labor-M anagem ent Relations Division and a 

Conciliation Service in the provincial Labor 

D epartm ents, and for training union officers 

and m em bers at the plant level.

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Proposed Technical Training Pilot P roject for the 

Rural Works Program of E ast Pakistan 

(1964; 24 pages)

S.M. Ju stice, AID Apprenticeship A dviser

Report provides recommendations concerning the proposed Rural T rad es Training P roject to be developed by 

USAID and the Peace Corps.

The Rural Works P rogram is directed toward the economic development of the ru ral 

are a which includes 85 percent of E ast Pakistan’ s 

55 million people. The proposed pilot training 

project is related directly to the Program and 

would help meet the need for ru ral skill development. The sk ills to be developed include those 

pertaining to irrigation, flood control and drainage, road s, construction, and sim ilar activities. 

(Skills listed in appendix I.) These activities 

represen t the m ost im m ediate and urgent needs 

for ru ral development.

Specific recommendations cover the staffing 

patterns for AID consultants and Peace Corps 

volunteers who serve a s instructors; the c re a ­

tion of an apprenticeship planning and coordinating committee; the appointment of a 

Pakistani to serve as D irector of the project; 

the use of Com illa a s an experim ental proving 

ground for techniques and approaches used in 

the project; training of su pervisors before attempting to organize cou rses for w orkers. In 

addition, the qualifications and functions of the 

senior AID adviser are outlined.

Reference

“The Impact of the Rural Works P rogram on 

E ast P akistan,” report by Sol O zer, USAID/ 

Pakistan, 1964. No copies available for sum ­

m ary.

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Pakistan’ s High-Level Manpower and Human R esource 

Development Planning 

(1965; 65 pages)

Nicholas DeWitt, AID Manpower Consultant

If the targets of Pakistan’ s Third F ive-Y ear Plan are to 

be met, expansion of education is needed, esp ecially at 

the secondary level*

Human reso u rces planning and human capital 

studies should have commanded p riority attention 

long ago. The 1956 ILO report on Manpower Survey in Pakistan (ILO /T A P /P akistan /R .10),page 

39, stre sse d the urgent need for the regu lar collection and re le a se of information about the manpower situation. A list was made of the types of 

information required, but no data have been 

collected to date. The various Five-Y ear Plans 

have included statem ents on manpower and education, but no m easu res have yet been im plemented. B ecause of the paucity of data, the first 

p riority should be given to collecting and p rocessin g statistical information on a regular b a sis.

The data presented in this report constitute 

the first attempt to study employment and productivity based on g ro ss value of output. The 

details of the method used are d iscu ssed and the 

re su lts are presented in 19 tables. Topics include 

estim ates and projections of total and nonagricultural employment and of high-level manpower by 

industry se c to rs; occupational composition

changes, 1951-61; and educational attainment of 

the population, labor force, and occupational 

groups.

The final section of this report deals with 

planning for human reso u rces development. Research p rio ritie s for manpower and educational 

planning are listed, and a conceptual fram ework 

and model is described in detail.

R eferences

M easuring the E ffects of Population Control 

of Economic Development, Pakistan a s a C ase 

Study, Edgar M. Hoover and M ark Perlm an, 

University of Pittsburgh, Center for Regional 

Economic Study, January 1965.

Projections of the Population of Pakistan by 

Age and Sex: 1965-1968, A M easure of the Potential Impact of a Fam ily Planning P rogram , 

U.S. Department of Com m erce, Bureau of the 

Census, June 1965.

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Human R esources P rogram s and Economic Planning in Pakistan

(1965; 44 pages)

DOLITAC JL/ Staff Paper No. 28; Eugene Vinogradoff, Manpower A dviser

Description of various manpower problem s in Pakistan 

and suggestions for action by the Manpower Council.

The m ajor portion of the report d iscu sse s 

the problem s involved in developing human r e ­

so u rces in Pakistan, followed by suggestions 

and recommendations for the guidance of the 

Manpower Council and for AID assistan ce. Some 

of the topics dealing with employment m arket 

problem s are:

1. Imbalance between jobseekers and jobs in 

both urban and ru ral a re a s.

2. Shortages in certain skilled occupations.

3. Low income and low productivity of average w orkers, esp ecially in farm and trade occupations.

4. Waste of human reso u rces a s resu lt of 

“educated unemployed.*

The program s for human resource development include the following m ajor are as:

1. Educating and training current and potential labor force participants.

2. Improving health and socioeconomic environment of w orkers.

3. Safeguarding human reso u rces through 

on-the-job safety devices and program s, 

minimum-wage legislation, insurance welfare 

p rogram s, and other economic security m easu res.

4. Supporting p rogram s, such as housing, 

water, sew age, road s, and other community 

facilities and public se rv ice s.

In addition to providing suggestions for each 

of the topics on labor m arket problem s and on 

human resource development, the consultant 

m akes specific recommendations regarding the 

adm inistration and role of the Manpower Council 

in the economic development of Pakistan. There 

is a strong need for a thorough occupational manpower survey and especially for high-level and 

m iddle-level supply and demand projections to 

estim ate occupational shortages. Current occupational staffing information can be obtained 

from a sam ple of urban em ployers, and supply 

projections can be obtained from the M inistry 

of Education. These projections would provide 

the Manpower Council with enough information 

to make its own recommendations and to set its 

own work p rio ritie s.

Recommendations for AID action are aimed 

at strengthening the Manpower Council through 

the assistan ce of a full-tim e manpower sp ecialis t and through short-term assignm ents as 

specialized problem s a rise .

U U.S. Department of Labor International 

Technical A ssistan ce C orps.

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Syria

Manpower A ssessm en t and Planning 

(1964; 17 pages)

ILO Report to the Government of the Syrian Arab Republic; 

IL O /T A P /Syria/R .9; C.B. McAlpine (UnitedKingdom)

An assessm en t of current and projected manpower r e ­

so u rces and requirem ents by skill levels.

In 1963, the M inistry of Planning consisted of 

five D irectorates of which the D irectorate of 

Economic and Social Planning was responsible 

for manpower planning. E stim ates had been made 

of manpower requirem ents of many of the 

p rojects included in the Second Five-Y ear E conomic Plan (1965-69), but details on manpower 

needs by occupation were lacking.

Existing manpower se rv ice s consisted of 

sev eral Employment Service offices. The Labour 

Law of 1959 provided for obligatory notification 

of vacancies by em ployers and the registration 

of jobseekers. Manpower information required 

for the effective operation of an Employment 

Service was inadequate.

Information on the labor force was available 

from the 1960 Population Census and from a 

labor force sam ple survey. Some data on manpower were available from sev eral industrial 

production surveys and the 1960 Census of Industrial Establishm ents. Information regarding 

profession s was obtainable from re g iste rs of 

profession al so cieties. E stim ates of future demand had not been collected from em ployers.

The consultant prepared an outline for a 

comprehensive report on the manpower situation 

in Syria. The report itself was not prepared because resu lts of the census and labor force su rveys were not available at that tim e.

Recommendations

1. Guided by the proposed Manpower Section 

in the M inistry of Planning, the Government 

should establish a program of manpower information.

2. A Manpower A dvisory Committee should 

be created and com posed of represen tatives of 

all M inistries.

3. The com prehensive manpower report 

should be completed as soon a s data are available.

4. The Syrian C lassification of Occupations 

should be completed and kept up to date.

5. An establishm ent survey should be conducted to determine current employment by 

occupation and to estim ate future demand.

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Turkey

Employment M arket Information Program 

(In French; 1961; 26 pages)

ILO Report to the Government of Turkey; 

O IT/O TA/Turkey/R.15; H.M. D reyer, ILO Expert

P ro g re ss report of the information program in the Em ­

ployment Service.

The manpower information program was initiated in 1956 with ILO guidance. In 1959, monthly 

rep orts on the levels of employment in industry 

and quarterly reports on the operation and adm inistration of the 31 local offices were initiated. 

Special manpower studies have been conducted 

in Istanbul and in several other regions. The 

central office established a re g iste r of the principal em ployers in the country, classifie d by 

industry and region. The ILO occupational c la ssification system was adopted and a job analysis 

program has started. Over 1,500 job an alyses, 

out of an estim ated 5,800, have been completed.

Recommendations

1. Bureau chiefs of the regional offices 

should cooperate in the development of adm inistrative and operating procedures of the Employment Service.

2. Information collected in the various are a s 

should be shared among the regional Employment 

Service offices, the different Government agenc ie s, labor unions, and industrial en terp rises.

3. R esearch should be started on the ru ral 

underemployed in order to develop a program for 

the improvement of this group of w orkers.

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Organization and Function of a Manpower Planning P rogram 

(1962; 18 pages)

«

ILO Report to the Government of Turkey;

ILO /T A P /T urkey/R .21; J.F . W ellemeyer (United States)

A review of available manpower data for a manpower 

development program .

In 1960, a State Planning Organization was 

established in the Office of the Prim e M inister. 

The State Planning Organization is com posed of 

the Central Planning Organization and the High 

Planning Council. The Central Planning Organization p rep ares plans for review by the High 

Planning Council. It analyzes data n ecessary for 

planning purposes and occasionally may collect 

data. A lso within the State Planning Organization 

is a Department of Social Planning which a s ­

sem bles data n ecessary for manpower projections.

The consultant assiste d in the preparation of 

a 1-year (1962) manpower development plan and 

advised on the types of manpower information to 

be included in the Five-Y ear Plan (1963-67). For 

exam ple, he supervised the preparation of 

projections by industry and occupation, the tabulation of a special study of the public sector,

and the analysis of unfilled vacancies a s reported 

by the Employment Service.

Recommendations consisted of suggestions 

for supplementing and strengthening the work 

already started:

1. The various types of information needed 

for manpower planning and analysis were d iscussed. The manpower information program 

should describe manpower problem s in general 

and should concentrate specifically on manpower 

conditions in those secto rs of the economy which 

the development plan intends to influence.

2. The adm inistrative organization of a manpower planning office and its working relations 

with other organizations were outlined in detail. 

The organization should participate in setting 

manpower goals in the economic and social development plans.

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Turkey

Manpower in Cukurova 

(1964; 20 pages and 16 appendix tables)

Alice W. Shurcliff, AID Manpower A dviser

Sum m ary of the manpower situation in Cukurova (Province) and projections of the labor fo rce .

Population in Cukurova is increasing at a 

fa ste r rate than in Turkey as a whole because 

of a higher rate of natural in crease and a high 

rate of net in-m igration. Unemployment has not 

occurred, however, because of the general p ro sperity of the region. The rural-to-urban movement is a result of greater job opportunities in 

the cities rather than of ru ral poverty. By 1985, 

half of the population of Cukurova will be living 

in the 13 m ajor cities.

In 1960, 58 percent of the m ale labor force 

was engaged in agriculture. It is estim ated that 

1 percent of the ru ral labor force and 3 percent 

of the urban labor force are unemployed. Unemployment is higher during the winter months. For 

exam ple, the Mediterranenan Village Survey of 

February 1959 found 10 percent of the men unemployed in v illages, and 30 percent employed 

in jobs outside of their villages.

Relatively few children receive education 

beyond the prim ary school level principally because of the poor distribution of facilities. Seven 

cities in Cukurova have no academ ic, com m ercial, vocational, or technical schools.

A large proportion of employment in manufacturing is in sm all family-owned en terp rises 

in which sk ills are handed down from father to 

son. Most large manufacturing establishm ents 

are in traditional industries, such as spinning, 

weaving, and m illing, which require relatively 

short periods of on-the-job training. Current 

demand for higher level sk ills come from the 

construction industry and from installation and 

repair serv ice s.

The techniques of making projections of the 

population and labor force are described and accompanied by tables. Population is projected to 

1990 and the labor force to 1975. E stim ates of 

employment by industry and occupation are provided for 1955 and 1960.

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Turkey

Manpower Planning in Turkey, 1962-1964 

(1964; 16 pages and 4 tables)

Edgar C. McVoy, AID Manpower A dviser

A discussion of manpower problem s in Turkey and program s to alleviate these problem s.

Manpower planning in Turkey is related to 

two basic problem s: (a) the supply of trained 

manpower to m eet increasing demand of economic growth, and (b) overpopulation and unemployment. Manpower policies and m easu res in 

the Five-Y ear Plan (1963-67) are discu ssed . Implementation of the manpower program s has p roceeded by increasing employment in all skill 

levels. This have been accom plished by developing nonfarm activities in ru ral a re a s, by exporting surplus labor, and by expanding laborintensive p rojects. Manpower studies have been 

made and placem ent se rv ice s have been im ­

proved.

Several Government agencies are involved 

in manpower program s. The M inistries of 

Labor, Education, and Industry; the State Institute of Statistics; and the State Personnel 

Board all play an important role in manpower 

p rogram s.

Recommendations

1. Concepts of the econom ically active population, employment, and unemployment should be 

revised to provide m ore accurate and com parable data.

2. A household sam ple of the labor force 

should be initiated on a current and regu lar b a sis.

3. An area employment survey should be 

conducted.

4. Information on specific groups of w orkers 

should be collected, such as wage and salary 

w orkers and scientific, technical, and adm inistrative personnel.

5. Projections of manpower requirem ents 

should be revised.

6. Various m easu res for improving manpower utilization and for increasing levels of 

employment are provided.

7. The various offices and m in istries should 

coordinate their efforts in the development of 

manpower program s and training.

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SELECTED READINGS

Technical Manuals, Sem inar Proceedings, 

and Manual O rders on Manpower, published or sponsored 

by the Agency for International Development

Establishm ent of National Employment Services in Developing Countries (also available in Spanish)

Demographic Techniques for Determining Manpower Planning in Developing Countries (also 

available in Spanish)

Role of a Labor Department in Developing Countries 

Role of Social Security in Developing Countries 

A Guide to the Preparation of a Labor Inspectors Manual 

The Forecastin g of Manpower Requirem ents 

Conducting a Labor Force Survey in Developing Countries

How to Make an Inventory of High Level and Skilled Manpower in Developing Countries 

Techniques for Determining Manpower Skill Needs and Training Requirem ents 

Manpower P rogram s and Planning in Economic Development

Manpower in Economic and Social Growth - Proceedings, 6th International Manpower Sem inar 

(also available in French)

Manpower and Employment P olicies for Developing Countries - Proceedings, 7th International 

Manpower Sem inar (also available in Spanish)

Manpower and Active Employment P rogram s for Developing Countries - Proceedings, 8th, 9th 

International Manpower Sem inars

Symposium on Forecastin g of Manpower Requirements

Symposium on Manpower and the War on Hunger

Manual Order 1612.40.3, Strengthening Labor M inistries

Manual Order 1612.40.4, Manpower and Employment Development

☆ u . S. GOVERNMENT PRINTING O FFICE : 1969 O - 355-005

Digitized for FRASER 

http://fraser.stlouisfed.org/ 

Federal Reserve Bank of St. Louis