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SADC Human Resources Development Sector

A Regional Training Council (RTC) was established, chaired by the director of the department of economic planning and statistics, as a mechanism for steering the activities of the sector.

Issues relating to the sector's mandate and its institutional arrangements constituted the agenda for the greater part of the initial decade of its existence. Concerning physical space and staffing, the government of Swaziland provided the RTC with its own offices in 1987 and assigned two assistant planning officers as its initial full-time staff. The European Union financed two technical assistance posts to support preparatory activities of the RTC. Discussions concerning its mandate resulted in the restructuring of the manpower sector as the Human Resources Development (HRD) sector by the SADC Council of Ministers in 1987.

The RTC now became known as the HRD Sector Coordinating Unit (SCU). In 1991 the Government of Swaziland restructured the department of economic planning and statistics. and upgraded it to the ministry of economic planning and development. The government also provided the SCU with three additional posts. Later, in 1992, a senior government official was assigned as the first full-time director of the SCU. We see between 1987 and 1992 a relative uplifting of the status of the SCU.

The structure of the SCU is made up of three programme sections responsible for research, education, and management and training. The research programme section is responsible for the collection, analysis and dissemination of information on the situation concerning human resources development in the SADC region. It also acts as a support service to the other sections of the SCU by providing them with the background information they need for the planning and management of programmes and projects. The section's mandate includes the development of research skills at regional level; and the development of a research and documentation centre within the SCU.

The education programme section has responsibility for the management of SADC's policy and strategy for reform and development of education and training systems in the region. It is responsible for initiating, supporting and coordinating programmes and projects for the renewal of education policies and content with a view to contributing to regional integration. The role of the management and training programme section is to provide technical support to all the other sectors of SADC with regard to their human resources development programmes.

Beyond the sector, the SCU is guided by policy decisions taken at the level of Heads of State and Government summits, the Council of Ministers, a standing committee of officials, the SADC Secretariat and the Consultative Conference. At the level of the Sector the programme of the SCU is steered by a sectoral committee of ministers and officials. The SCU also relies on a SADC-wide system of country contact points as its main channel for communicating with member states.

Initial mandate of HOD sector and its programme of action
Twelve years following its launch as SADCC the organization conducted a review of its experience up to 1993. A comprehensive report of that review -A Framework and Strategy for Building the Community (SADC 1993) was the theme document for the 1993 Annual Consultative Conference. The publication of the report followed the signing of the SADC Treaty in 1992. The review examines the evolution of the HRD sector and the SCU as its implementing mechanism.

The document suggests that any assessment of the performance of the SCU must be viewed against the background of the issues that constituted the parameters of the sector itself. Thus central to the debate was the issue of the mandate of the HRD sector in the context of the Windhoek Treaty and, therefore, the role of the SCU in the execution of that mandate. The 1993 document puts forward the following as a key aspect of the strategy for the implementation of the treaty:

"... underlines the critical need for the integration process to be based on the twin pillars of real commitment by the member governments and by popular participation. It emphasises the need to involve all interested parties beyond officials and ministers, particularly the business community, professional bodies, educational and training institutions, sporting and cultural bodies, churches and other nongovernmental bodies. In this context the need to create regional awareness among the peoples of the region through the facilitation of greater contact and exchange has been underlined. .The process recognises that there will be need for new institutions and mechanisms, particularly to ensure the on-going involvement of the people and their institutions in the integration process" (p.2).

The terms of reference for the SCU needed to reflect this strategy and needed to be based on the Sector objectives as outlined in the policy documents.

Official SADC records indicate that the development of the HRDSector went through a number of phases between 1981 and 1996. The first phase (1981 -1985) consisted of preparatory activities in the form of studies and surveys involving the collection of baseline information concerning manpower issues in the region. The report of these surveys formed the basis for the first SADCC manpower symposium conducted in 1984.

The second manpower symposium was organised around this issue in July 1986. That symposium also marked the beginning of the second phase (1986-1991) in the development of the sector. The symposium considered the issue of a clearer mandate and more specific goals and objectives for the manpower development sector. It highlighted training in support of activities of the other SADCC priority sectors as central to the mandate of the sector; and considered the staffing requirements of the R TC secretariat.

Thus the role of the sector was to provide a "manpower planning and development service" to SADC and all its sectors. The sector's responsibilities for carrying out this mandate included the determination of the region's overall manpower needs, the development of the skills needed for SADCC projects, and the mobilisation of resources for the manpower development programme.

With regard to the performance of the sector up to this point SADC's own internal review that preceded the formulation of the Long-Term Strategy for the Human Resources Development Sector 1993-2003 states:

"Although the Second Manpower Symposium provides a clearer basis for the start of the second phase period, a number of constraints were faced. The major constraints were the limited manpower input to the Secretariat from the Government of Swaziland and the weak linkages with SADCC member states and other SADCC sectors" (SADC, 1992, p.3).

The symposium recognised that for the sector to discharge its mandate successfully it needed to develop the necessary institutional linkages with all the SADCC Sectors and their staff. It needed to develop the capability to undertake the technical and professional tasks involved in maintaining such a relationship.

SADC review noted that other sectors were also experiencing similar constraints with regard to the provision, by host Governments, of the human resources needed to implement their sectoral mandates. For the manpower sector, the absence of full-time leadership for the RTC at the time "led to inadequate articulation of the role of the Sector within SADCC and beyond to the member states level, which vision, appropriate leadership often bestows to organizations" (SADC, 1992, p.26).

The lack of adequate staffing at the RTC meant that the institution ~as unable to deliver satisfactorily on the sector mandate. This led, in 1989, to a call by SADCC Ministers of Education for a separateSADCC sector for education to attend to the needs of the subsector.

This change was, however, not sanctioned by the Council of Ministers. The Council of Ministers in fact expanded the mandate of the sector to include "regional issues pertaining to education', and renamed it the 'Human Resources Development Sector". At the same time, however, the other SADCC sectors were exerting pressure "to undertake their own human resources development activities". The trend had seen the creation of such sector-specific mechanisms as the Southern African Transport and Communications Commission (SATCC) in 1981, and the Southern African Centre for Cooperation in Agricultural Research (SACCAR) in 1986.

The SADCC Secretariat was uncomfortable with these developments and sent out a circular to all sectors urging them to fully recognise the mandate of the manpower sector. The Council of Ministers however subsequently, at its 1991 meeting held in Arusha, Tanzania, acceded to the demands from the other sectors to undertake their own sector -specific human resources development activities.

The third phase (1992-1996) in the evolution of the sector was marked by three developments. The fIrst was the adoption of the Windhoek Treaty, which transformed SADCC into SADC. The second was the decision to launch a long term strategy for SADC, which followed immediately after the signing of the Treaty. The long-term strategy was a fundamental challenge to the sector coordinating units, in particular the RTC.

The third development was the appointment, in April 1992 by the Swazi government, of a full-time director to the RTC.They also appointed an administrative assistant. These staff appointments were welcome indications of commitment on the part of the sector coordinating country to provide the resources necessary for the RTC secretarial to function more effectively.

On the issue of the minimum level of staffing for the RTC secretariat the SADCC internal review had recommended to the Swazi government the establishment of the following positions:

• a director to head the Secretariat. He/she would be responsible to the Principal Secretary of the Department of Economic Planning and Statistics (later the Ministry of Economic Planning and Development);

• one Administrative and Financial Manager;

• two technical experts in manpower planning;

• one technical expert in training;

• one technical expert in management information systems; and

• support staff.

The Protocol on Education and Training
The theme document for the 1991 Consultative Conference, SADCC: Human Resources: Primary Factor in Development (SADCC 1991), eloquently presented the argument for placing human resources development at the centre of social and economic development itself. The document set the agenda for determining the future course of action in the development of the sector, and highlighted the sector's central role in the overall strategy of SADCC when it stated:

"A strong economic, political and social case can be made for a maximum effort to improve public education. Governments should, therefore, provide free universal basic education, which should be compulsory for at least nine years. At the same time, it should be realised that education, especially at higher levels, is not totally a public service; it provides a high return to individuals and their families. In recognition of this fact, and in tlIe light of existing and recurring resource constraints, against the need to improve the quality of education, individuals should be called upon to help the cost of their secondary and tertiary education. Consequently, member states need to constantly review their public expenditure priorities to ensure education and training, and health services are adequately catered for. Private funding of these services should be encouraged, where appropriate. However private schools and their beneficiaries should conform to national policies, strategies and priorities, and contribute maximally to national objectives." (pp. v-vi)

The document argued that the problem of the development of human resources and their utilization needed to be addressed urgently to improve the quality of life of the people of the region. It called for re-examination of existing policies and practices in order "to harness the full potential and capacity of the peoples of the region"(p. v). Development must be guided by consideration of the economy, efficiency and effectiveness of the strategies adopted in the implementation of programmes. With regard to human resources development within SADCC, it was stressed that programme strategies must have both national and regional dimensions. "No member state can, alone, offer the full range of world quality education and training programmes at affordable and sustainable costs." (p.v).

Thus the 1991 document provided a clear indication of the fundamental role of human resources development in the SADCC Plan of Action. It also provided a clear indication of the direction in which the HRD Sector was intended to move. It spelt out the need for a focused strategy. The following statement in the document underlines the principle of civil society participation:

"SADCC member states need to build upon existing structures and ensure that mechanisms exist for encouraging popular participation in development efforts. Voluntary associations and customary practices have much to offer, especially in the informal sector. Greater citizen involvement produces more effective development programmes. More information, public debate and exchanges are called for." (p. vii)

What was now required was a comprehensive framework that would ensure that the development of the sector moved in this direction.

The Windhoek Treaty provided for SADC to conclude a series of protocols to give practical effect to the sectoral goals. The protocols were to define the objectives, scope and institutional frameworks for cooperation and for achieving the desired integration. The processes of preparing and negotiating the protocols were to be coordinated by the Sector Coordinating Units (SCUs). Each protocol would then become an integral part of the treaty after its approval by the SADC Summit.

The 1997 summit adopted a protocol on Education and Training that serves as a framework for co-operation in the improvement of education within SADC. The protocol was constructed on the basis of the review and analysis of the human resources situation contained in the 1991 document.

Its overall objective is to contribute to regional integration. This is to be achieved through the creation of conditions intended to assist member countries to move progressively towards the attainment of the equivalence, harmonization and eventual standardization of the education and training systems of the region. The protocol underlines the need for member states to seek collaboration and partnerships in efforts to raise the standard of their education and training systems. It stresses the principles of information exchange and resource sharing through the promotion of regional centres of specialization and centres of excellence. The movement and exchange of students, staff, teaching and learning materials, and the relaxation of immigration and customs procedures, are to be facilitated as basic features of the integrated regional system.

The goals of the protocol are synthesized as follows:

development of coherent, comparable and harmonized education and training policies;

provision of comparable curricula, joint production of teaching and learning materials, and harmonization of examination and accreditation systems at the basic and intermediate education levels;

in higher education, development of centres of specialization in critical areas especially at graduate level, adoption of the policy of treating SADC nationals as home students for the purpose of tuition and related fees, and reserving at least 5 percent of admissions to SADC nationals outside the home country of each institution; and

in lifelong education, the establishment of a SADC Distance Education Centre

The strategy for achieving the above goals will comprise the following features:

development of a common system of research and regular collection of information on developments, priorities and status of education and training in SADC member states;

promotion and co-ordination of capacity-building initiatives in the development of holistic policies and strategies for education and training; and

promotion of the participation of the private sector, NGOs and other stakeholders in the provision of education and training.

The protocol seeks to promote regional co-operation in the development of integrated and harmonized education policies and strategies, particularly with regard to the widening of access, equity in provision, and the improvement of relevance and quality of education programmes. Priority areas identified for cooperation include:

• improvement and harmonization of curricula at the basic, secondary and tertiary levels of education;

• eradication of illiteracy and the provision of universal basic education;

• development and production of widely available textbooks and other teaching and learning materials; and

• harmonization of entry requirements and examinations at educational institutions.

The protocol is also intended to promote regional co-operation in the development of science, technology and vocational education; in higher education reform; in adult and lifelong education; and in the development of publishing, library and resource centre services.

Workshop on implementation of the Protocol on Education and Training
At their 1998 meeting held in Pretoria, South Africa, HRDministers directed the SCU to organize a workshop for stake-holders to formulate strategies and an implementation plan for the Protocol. They assigned to the workshop the task of spelling out the approaches, strategies and financing arrangements for the implementation plan. The implementation plan was to comprise a clear identification of the areas of cooperation, objectives to be achieved, and a time frame for implementation. The SCU conducted the workshop in Lusaka, Zambia, from 1 -5 February 1999.

According to the report of the workshop its proceedings were focused on the following core areas of cooperation (SADC/HRDISCU 1999):

• basic education;

• intermediate education and training and teacher training;

• higher education and training; and

• lifelong education and training.

For each of these core areas the workshop identified key policy issues that needed to be addressed, and formulated objectives and activities for the implementation plan. For the overall objective of the protocol "to progressively achieve equivalence, harmonization and standardization of education and training systems in the region", the workshop proposed a time-frame of three phases. In the short term, the first five years of the plan, the objective will be to "achieve equivalence of the education systems." "Harmonization" is to be achieved in the medium term, within 6-15 years of the implementation plan. The long term objective, "standardization of education systems", is to be achieved by the last five years (years 16-20) of the plan.

The specific objectives of the plan relate to the reform and development of policies concerning access, quality and relevance of programmes. There are also objectives relating to comparability and equivalence of programmes across countries, a regional qualifications framework, harmonization and standardization of education systems.

The other areas covered are special needs education, gender in education, resource sharing, copyright, joint publishing and other partnerships, It also proposes arrangements regarding immigration to facilitate student and staff mobility and exchange of educational materials. Responsibility for carrying out the various activities is al-lotted to member state governments, the HRD/SCU, technical committees, institutions, associations, the private sec-tor, industry, donor agencies, nongovernmental organizations, and the SADC Secretariat.

The report of the workshop calls for the creation of the following mechanisms to promote cooperation at regional level and for country-level action in the implementation of the Protocol:

• member states should establish national structures, including task forces and national committees, to be responsible for the designated country level activities;

• member states should organize national workshops and other forms of internal consultations to sensitise stakeholders about their role in the implementation of the protocol; and

• the HRD/SCU will coordinate a number of regional technical committees. Member states are to designate their representatives on these committees.

Ministers of education of SADC member states, at a meeting held in February 2000, have agreed to strengthen this process. They have endorsed the establishment of technical committees to spearhead the development of implementation strategies at country and regional levels.