PART 1

Reversing Ethiopia’s Brain
Drain: A National Imperative

Yosef Yacob

[email protected]

The article by the economic
correspondent of the Reporter Magazine in an article entitled “Turning Untapped
Diaspora Resources into Opportunities for National Development: Human Capital Flight,
a Major Problem in Ethiopia,”[1] and several follow-up articles by concerned
Ethiopians highlights a concern which requires thoughtful attention.
According to the writer, the “…repeated failure of the country in retaining its
educated and key professionals has also created an undeniable resource persons
gaps in such areas as policy formulation, strategic management, quality
leadership and severely damaged the quality of education at home.”
Unfortunately, it has become the norm for policy makers to blame the proverbial
“lack of skilled/trained human resources and capacity” for ills burdening the
government and its institutions, poor planning and outcomes, and persistent
allegations of inefficiency, corruption, ineffectiveness, misfeasance, and
malfeasance.

Prelude

Some five years ago, the
Minister of Education announced the government’s awareness of the social and
economic ramifications of the “brain drain” and the government’s determination
to urgently devise a national policy to not only mitigate but to reverse the
“brain drain”. However, in lieu of tabling the much anticipated policy, the
same Minister was quoted as stating that the “brain drain” was a reflection of
Ethiopia’s emergence as a free and democratic society by allowing it’s
intellectual resources and trained/skilled manpower to freely leave the country
to pursue better opportunities.[2]
During the same interview, the Honorable Minister also reasoned that since
Ethiopian professionals were educated at the expense of the Ethiopian taxpayers
the government could not justify demands for improved salaries, notwithstanding
salaries paid Indian and foreign professionals[3]
to provide similar services. Thus, according to the Minister, Ethiopian
professionals are at liberty to exercise their right to leave government service,
higher educational institutions, and the country itself, in view of the “… freedom
of movement enshrined in the country’s national constitution,[4]
if unwilling to work for less than the remuneration paid foreigners.[5]A
minister who has been on the firing line and incessantly criticized by
formidable adversaries (the media, students and teachers) at every opportunity
for most of her tenure may have made these remarks in the heat of the moment to
a contentious and nagging reporter.

None the less, as a consequence
of such reasoning, contempt, antagonism, and hostility, many former graduates
of Addis Ababa University who were “subsidized by the Ethiopian taxpayers” are
now among the cadre of distinguished Ethiopian scholars and professionals
serving in western countries teaching and working in western institutions.[6]
According to the Ministry of Education, the Government of Ethiopia spends over
US$5.3 million every year in hiring expatriates to supplant the endemic
shortage of qualified human resources in the country.[7]
The government has now been obliged to sign a technical assistance agreement
with Nigeria to secure Nigerian teachers to staff the existing colleges and
universities in order to fill the ever expanding void of qualified instructors.
Similar agreements have been signed with India (Indian Technical and Economic
Cooperation) to provide 130 Indian professors and lecturers and several
technical and vocational instructors.[8]

In the face of unprecedented
and aggressive western immigration policies, which encourages the emigration of
the educated, able bodied, and most productive citizens from developing
countries, and the “pull” and “push” factors underlying the massive brain
drain, the Honorable Minister’s reasoning does not reflect attentive
deliberation. The need to service the rapidly increasing aging population, the
need to fill the increasing manpower vacuum, and the declining tax/revenue base
in the west will continue to present a formidable challenge to the developing
countries in the decades ahead. Therefore, developing countries must engage in
a serious effort to remedy conditions pushing their most productive citizens
out of their homelands into the arms of the enticing west and devise new
strategies and a more thoughtful attitude to retain or ‘pull’ back their
intellectual resources.[9]

An examination of some of the
available research and publications by Ethiopian and other African experts as
well as western experts such as the former US Ambassador to Ethiopia, David
Shinn, who have studied the subject for more than a cursory understanding
provide meaningful insights to sincere policy makers.[10]
In view of the compelling socio-economic implications and the urgency, one
would expect a robust government strategy, to mitigate the flight of the
nation’s human capital and/or recover the nation’s missing intellectual resources.
It is not a good circumstance for any poor country to export its best,
brightest and most productive citizens, in consideration for remittances alone[11]
and to supplant native scholars with Nigerians and Indians.

The Ethiopian Diaspora

Like many Ethiopians I am
privileged to read the scholarly articles, analyses, and opinions on
contemporary and historical issues published on various Ethiopian web sites and
forums with much interest and admiration. The passion Ethiopia arouses in her
people is clearly evident in the volumes of creative works, music,
commentaries, research, dissertations, and books – either praising her,
advising her, defending her, or wailing and lamenting her misery. The intellect
and emotion demonstrated by the contributors is convincing.

The deep seated attachment of
Ethiopians to their homeland is also manifested by the direct actions of many
loyal and dedicated Ethiopians, like Ezra Teshome from Seattle and others, who
unassumingly and tirelessly apply skill, acumen, resources, leadership, and
goodwill to measurably improve conditions in Ethiopia and for Ethiopians.
Around the world, the sense of community has produced countless Ethiopian web
sites, radio stations, churches, restaurants, markets, travel agencies, and
many other businesses, and community centers, youth, social, civic,
development, and sports, organizations. Increasing remittances sent to families
or relatives through both official and unofficial means and through visits to
the home country have also become major sources of revenue and foreign exchange
for the government and the means of financial support for many families.[12]
Numerous libraries and institutions in Ethiopia have been equipped by generous
donations of books and computer equipment and other national needs addressed by
the various Ethiopian community organizations and individuals.

In addition to the love for the
homeland, there exists an enormous reservoir of intellectual and entrepreneurial talent which has yet be
harnessed by the government to augment the efforts of the equally, dedicated
Ethiopians at home who incessantly labor to achieve good governance, peace,
development, and self-sufficiency. In the United States, Ethiopians have
excelled in academia, law, business, government, medicine, management,
information technology, industry, and scientific research as evidenced by the
positions they hold and distinguished contributions being made in their
respective fields and professions. It has been amply demonstrated that
Ethiopians in the diaspora represent a significant intellectual resource, which
can be tapped by the government to directly contribute to their homeland in
every conceivable field of endeavor.

The significant technological
and knowledge transfers and other multiplier social and economic effects and
enormous benefits that could result from delivery of their services and their
expertise in Ethiopia has been narrated by those who are more articulate.
Entrusting international bureaucracies such as the UNDP and IOM to address this
serious national predicament and complex problem constitutes not only an
abdication of governmental responsibility but is a reflection of the low regard
and priority assigned to the problem by the government. Thus far the grand
strategy has produced false hopes and promises, and lame, ineffective,
superficial, and simplistic, window dressing prescriptions by the referenced
institutions, commensurate with the low esteem held by these institutions for
developing countries.

The UNDP Initiative

The government in collaboration
with UNDP has implemented a National UNV (NUNVP) scheme to promote national
volunteerism and enhance the use of qualified Ethiopians to serve as volunteers
in Ethiopia, contributing to the development process. In addition, the program
is to complements the government’s larger capacity development efforts, a
critical instrument for decentralization and capacity strengthening for service
delivery at Regional, Woreda and Kebele level.

The scheme is currently up and
running and only 13 NUNVs (Ethiopians) have so far been recruited to work with
UN-agencies, Government Ministries and Regional Bureaus in the area of
HIV/AIDs, ICT, Gender and program planning and management.[13]

Candidates are hired as NUNVs
attached to UNDP programs, UN-agencies programs, NGOs, Government bi-lateral
programs and Private Sectors working at Regional, Wereda and Kebele level in
support of the development process.

Required Qualifications

National

UNV Specialist           

A Bachelor, Masters or
Doctorate degree from a recognized university/college;

             Skills in community development, project
planning and management;

            5-7
years of relevant working experience;

             Water and sanitation;

             Good communication, report writing and
computer skills;

National UNV Field Worker

A diploma, or
certificate from a recognized university or college;

 Skills in community development, project
planning and management;

3-5years of
relevant working experience;

Water and
sanitation;

Good
communication, report writing and computer skills.

Remuneration

NUNV Specialist

4,500 – 5,000 ETB per month (US$500-US$580)

NUNV Field Worker

2,000 – 2,500 ETB per month (US$230-US$290)

The
stated remuneration is free of tax for both assignments. In addition, selected
candidates are provided insurance and medical coverage as well as other
benefits.

The
general duration for NUNV service contract for regular development assignments
is a minimum of one year to two years and a maximum period of four years. If
the services of a NUNV Specialist are required in the same assignment for an
additional one-year, a contract will be extended, subject to the agreement of
all concerned.

The UNDP also administers the regular United Nations Volunteer program
(UNVs). The UNV program in Ethiopia started in the 1970s and presently
employs seventeen serving International UNVs, none of whom are Ethiopian
nationals. Of this total, eight are assigned to WFP, one each to
UNICEF, UNHCR, the Civil Service College and Addis University, four to the UNDP
Country Office in Ethiopia and one each to Danish and UK Save the Children. Paradoxically,
there are currently 36 Ethiopians serving as UNVs out side of Ethiopia and 61
on a waiting list.[14]

The UNVs is generally A
12-month assignment (with possibility of extension). Depending on the country
of assignment, volunteers are paid a living allowance ranging from US$ 1,200 to
2,000; a Settling-in-Grant calculated on the duration of assignment (more than
three months), which is paid at the beginning of the assignment; travel on
appointment and at the end of assignment, if different than home location;
life, health and permanent disability insurance; annual leave at a rate of two
and a half working days a month; and resettlement allowance based on the
duration of assignment (more than three months), US$ 100 per month of
satisfactory service which is paid upon satisfactory completion of the
assignment..

Under the UNDP scheme, an
Ethiopian desirous of volunteering in his/er homeland, would be paid
approximately one fourth the salary he/she would be paid as an Ethiopian
volunteer working outside of his/er homeland and entitled to significantly
reduced benefits. For example, an Ethiopian volunteering in Ethiopia would not
be entitled to receive the settlement grant, one-month vacation, roundtrip
airline tickets and a resettlement grant. However, a non-Ethiopian volunteers
in Ethiopia working along side an Ethiopian volunteer would be paid four times
the salary of the Ethiopian volunteer and receives the settlement grant, one
month vacation, roundtrip tickets and a resettlement grant – benefits for which
an Ethiopian volunteer in Ethiopia would not be eligible.

The net effect of the UNDP
scheme is a UN sanctioned brain drain as illustrated by 36 Ethiopians opting to work
outside of Ethiopia and 61 anxiously waiting for an assignment outside of
Ethiopia. More than likely, the 13 volunteers are residents of Ethiopia
or to use the UN parlance “local hires” or civil servants on assignment to the
UNDP. In summary, the scheme encourages foreigner volunteers to work in
Ethiopia and encourages Ethiopians to volunteer their expertise anywhere in the
world but their homeland and those who insist to work in their homeland will
not be equally rewarded as other UN volunteers. Such is the UNDP’s contribution
and strategy. Dear reader, you be the judge of the UNDP scheme. In passing let
me mention other international institutions like the International livestock
Research Institute and the International Water Management Institute and many
others who have a demonstrated record of hiring non-Ethiopian international
staff despite numerous applications for openings from highly qualified
Ethiopians from abroad. Most revealing
and debilitating is the fact that there are now more non-African professionals
working in Africa than there were in 1960.

The IOM Initiatives

Between 1995-99, IOM designed a
capacity-building strategy called Migration for Development in Africa (MIDA).
This program sought to contribute to the socioeconomic development through the
mobilization of skills, financial and other resources of the African diaspora
to reduce poverty and strengthen the technical and institutional capacities of
the public and the private sectors. The only measurable achievement of the
highly acclaimed program was the initiative under which 60 African
professionals were financially assisted by the organization in returning to
their home countries. In the Ethiopian context, the IOM project entitled
Mobilizing Ethiopians Living Abroad for the Development of Ethiopia was
launched in March 2004,[15]
with the usual fanfare and much publicity and promise of a massive return of
Ethiopian’s to their homeland. To facilitate an orderly return, a web site was
designed and dedicated to provide timely, relevant and accurate information, to
the Ethiopian community abroad. The information on the website, was “… to be
regularly updated to be used as an information center, a traveler’s guide and a
directory for Ethiopians and friends of Ethiopia.” The main sections of the
site are described as follows:

The “Guide To…” guides
Ethiopians abroad through the steps needed to invest, establish a business,
resettle and to find a job in Ethiopia. A directory of government offices,
non-governmental organizations (NGOs) and private sectors directly or
indirectly involved in the development issues can also be found in this
section.

The “Questionnaire” for the
purpose of establishing a national database of Ethiopians living abroad. While
safeguarding the confidentiality of the individual, the database will be used
to assess the skills, financial and human resources available and “will
eventually be used to match the needs of the country.”

The “FAQ” frequently asked
questions with their corresponding answers will be posted. The questions will
partly come from the “Feedback” section of this website where visitors will be
able to communicate their comments, suggestions and questions.

According to Chief of Mission
of IOM in Ethiopia, Mr. Charles Kwenin the mission in Ethiopia has received an
“overwhelming” response from the Diaspora community from across the world.. As
of September 2004, of 22,000 who visited the website, the Chief noted that 190
Ethiopians expressed interest in returning to their home land, on a “short term
basis”, and make contributions, 135 “others” registered to engage in investment
activities in the country and 434 Ethiopians with various knowledge,
experience, and skills “registered” in the IOM’s database.[16]
In addition to this dismal outcome, the IOM sponsored a one day workshop on
April 4, 2004 on “Mobilization and Utilization of Diaspora Skills and
Remittances for the Development of Ethiopia,”[17]
and another one day workshop on November 3, 2003 on “Working towards a National
Capacity Development Policy for Ethiopia”.[18]
To this writer’s knowledge, Ethiopians have not returned or invested in
Ethiopia as a direct consequence of the IOM’s initiative.

Government Initiatives

On the other hand, the
government’s commitment to diaspora Ethiopians to participate in the
development endeavors of their country is focused purely on their investment
potential. The government’s attitude is succinctly summarized in the recent
December 22, 2004 editorial of the government daily Ethiopian Herald entitled,
“Locking Hearts with Diaspora Ethiopians,” wherein the editorial asserts:

Indeed the issue of the role
that has to be played by Ethiopians in the Diaspora is a very important one
especially when the country needs the input of every citizen whether at home or
elsewhere in the world. It is evident that especially in these days when we
have to grab at every dollar and cent coming our way our compatriots in the
Diaspora who find themselves in more secure financial situation could do a lot
investing in their country. As the nation calls for foreign entrepreneurs to
invest in the country it puts special emphasis on its sons and daughters in the
Diaspora to serve as trailblazers.

For some time there have
been calls on the government to look for ways to attract Ethiopians in the
Diaspora to look home-wards. Indeed, over the past years numerous activities
have been carried out in this respect. Various meetings have been held both at
home and abroad with Ethiopians in the Diaspora to try to bring them up to date
with the current situations in their country and also listen to their views.
Since then we have seen significant changes. As new realities take the ace of
old prejudices a better atmosphere of cooperation is created.

On the other hand, moves have been taken to make the
investment law more attractive. A lot of incentives and guarantees have been
devised for Diaspora Ethiopians wanting to invest in their motherland. The
federal and regional governments have proven their keenness to remove potential
hindrances so that Ethiopians in the Diaspora would develop confidence that
their investments will surely payoff. Investors, be they Ethiopians or others,
wouldn’t want to risk their hard got resources in an atmosphere of
unpredictability. Cognizant of this important fact the federal and regional
governments have taken it upon themselves to remove uncertainty of any sort.
Efforts are at present in full swing to attract Ethiopians in the Diaspora to
come and see things for themselves.

The initiative to allow
investment, import and land lease privileges for Ethiopians living abroad and
foreign nationals of Ethiopian origin[19]
and the directive to provide incentives for Ethiopians in diaspora to maintain
foreign currency accounts in Ethiopia[20]
are all targeted to encourage one aspect of what should ideally be part of a
comprehensive framework. While the effectiveness of the incentives have not
been fully demonstrated,[21]
and some incentives are of questionable merit,[22]
what the government initiative lacks glaringly however, is a strategy to
attract not only the financial capital but the intellectual resources of the
Ethiopian diaspora community. As observed by Prof. Shinn, “…although Ethiopia
can not control the “pull” factors that contribute to the brain drain, it can
do something about the ‘push’ factors. 
For the sake of Ethiopia’s economic development, the brain drain merits high
level attention.”[23]
[Emphasis added]

The Way Forward

I believe that the government
can not only control the push factors but the government can also counter the
pull factors and indeed arrest and even reverse the brain drain. It is not
unrealistic to expect a significant percentage of those who left their country
of origin to return many years later, given the proper incentives. As observed
by Prof. Shinn, the matter deserves attention at the highest level to initiate
a comprehensive study to devise an effective national strategy beyond
encouraging remittances and investment. The strategy should seek to mitigate
the brain drain, to provide effective mechanisms to counter the pull factors
and the incentives for return of the nation’s intellectual capital in the
diaspora, and to also provide an effective executive mechanism at the highest
level to effect government commitments. Contemporaneously, the government
should consider policies that specifically target improved relations with
professionals in the diaspora.

For example, as part of
Nigeria’s commitment to recognizing the potential contribution of the Nigerian
diaspora, the president established the office of special assistant to the
president on diaspora affairs.  When the
president of Nigeria travels to Europe, America and Asia he personally meets
with professionals, intellectuals and scholars in an effort to convince them to
return to Nigeria or serve the nation in some capacity. The president of South
Africa is promoting the creation of agencies in Europe and the United States to
establish data banks to gather information on the professional profiles of
South Africans. Cote d’Ivoire has created a special department in the Ministry
of Foreign Affairs dedicated to nationals living abroad. The government of
Ghana held in 2001 a “homecoming” meeting with the Ghanaian diaspora to
encourage its involvement in and support for Ghana’s development.

The Ethiopian government has adopted
a program similar to the one adopted by Cote d’Ivoire supplemented by annual
conferences as in Ghana. Unfortunately, the choice by he Ethiopian government is
the least effective of the strategies adopted by African and Asian countries
for reasons and the criticism recently outlined in the opinion piece by the
Addis Fortune Magazine in reference to the effectiveness of Ethiopia’s
initiative.[24] By all
accounts, the Ethiopian Embassies and the General Directorate for Diaspora
Affairs, in the Ministry of Foreign Affairs, have been dismal failures in effectively
executing their mandates and therefore the diplomats entrusted with the duty to
implement the public policy should be held to account and replaced.

Nigeria’s approach has by far
been demonstrated as the most effective and the one for the Ethiopian
government to emulate (along with the various other prescriptions applied by
Asian countries.) In the second part of this article, I shall describe the strategies,
which have been successfully employed by other countries, for consideration by
Ethiopian policy makers.