DOCUMENT RESUME

ED 074 10 AC 014 206

AUTHOR Adams, Dale W.TITLE Leadership, Education and Agricultural Developmen

Programs in Colombia.INSTITUTION Wisconsin Univ., Madison. Land Tenure Center.SPONS AGENCY Agency for International Development (Dept. of

State), Washington, E.C. Ohio Agricultural Researchand Development Center, Wooster.

REPORT NO LTC-45PUB DATE 68NOTE 12p.JOURNAL CIS' Inter-American Economic Affairs; v22 ni p87-96

1968

EDRS PRICE MF -$O.65 HC-$ .29DESCRIPTORS Adult Leaders; *Adult Vocational Education;

*Agricultural Education; *Developing Nations;Educational Development; Employment Problems;Leadership; *Leadership Training; Publications;*Rural Development

IDENTIFIERS *Colombia

ABSTRACT

The lack of qualified leadership to direct, plan, anddo research in agricultural agencies is an important restraint onrural development in countries like Colombia. An increase in thenumber of students attending institutions for agricultural educationhas been often viewed as the solution to this problem. It is arguedhere that an increase in number is only a partial solution, and thatan equally pressing problem is to enable people with ruralbackgroundS to enter these educational institutions. FaCets of thisregarding Colombia are covered in the discussion which follows.. Abrief reviewof recent agricultural development in Colombia ispresented first to point out some of the major problems. An overviewof Colombia's-educational system follows to suggest why rural peopleare isolated from employment by Colombian agricultura.agencies..Tofurther illustrate this point, information is presented from a studyof the backgrounds of Cblombian agricultural college students. Thediscussion concludes with several suggestions on ways betteragricultural leadership might be developed in countries similar toColombia. (Author /RM)

\s)

LTC Reprint No. 45

U S DEPARTMENT OF HEALTH.EDUCATION & WELFAREOFFICE OF toucATION

IRIS DOCUMENT HAS REEK REPRODUCEO EXAC1LY AS RECEIVED FNOMtHE PLRSON ORGANIi..',9N (MG1NAT!N(; ir POINTS OF: VIEW OR OPINJONS TAiLD DO NOT NECESSARILYREPRESENT OFFICIAL OFFICE Or EDUCATION positION OR POLICY

Leadership, Education and AgriculturalDevelopment Programs in Colombia

Dole W. Adorns

LAND TENURE CENTER University of WisconsinMadison, Wisconsin 53706

RE 'printed fromINTER-AMRICAN

ECONOMIC AFFAIRSVol. 22 No.1, 195

Leadership, Education and AgriculturalDevelopment Programs in Colombia

By DALE W. ADAMS

The lack of qualified leadership to mai direct, plan, and doresearch in agricultural agencies is an important restraint on ruraldevelopment in countries like Colombia. An increase in the num-ber of students attending institutions for agricultural educationhas been often viewed as the solution to this problem. In thefollowing it will be argued that an increase in number is °Lily apartial solution, and that an equally pressing aspect is to enablepeople with rural backgrounds to enter these educational institu-tions. Facets of this, with regard to Colombia, are covered in thediscussion which follows, A brief review of recent agriculturaldevelopment in Colombia is presented first to point out some ofthe major problems which exist, An over-view of Colombia'seducational system follows to suggest why rural people are iso-lated from employment by Colombian agricultural agencies. Tofurther illustrate this point, information is presented from a studyof the backgrounds of Colombian agricultural college students.The discussion concludes with several suggestions on how betteragricultural leadership might be developed in countries similar toColombia.

Recent Developments in Colombian Agriculture. As in mostless developed countries agriculture plays a vital part in Colorn-

-)bia's overall economy. Approximately two-thirds of the total"population depends directly on agricultural production for an im-

portant portion of their income. During the past 20 years exportsof agricultural conndit;es, principally coffee, have provided

* Assoc ate rofessor of agricultural economics, The Ohio State Univer-sity. This study is based on research sponsored by the Land Tenure Center,University of Wisconsin under a contract with the Agency for InternationalDevelopment. The Ohio Agricultural Research and Development Centeralso provided the author with time and. resources to complete this study.Valuable comments on an earlier version c,f this article were received fromG. Guerra, Eduardo Montero, Norman Rask, and Richard Wheeler. Theusual disclaimers apply.

SS INTER-AMERICAN E °NoMIC AFFAIRS

more than 80 percent of Colombia's export earnings. Despiterapid rural-to-urban migration the number of rural families withlittle or no land continues to increase. Although poverty is moreapparent in urban centers, over three-quarters of Colombia's poorstill reside in rural areas.

In several respects the performance of the agricultural sector inColombia has been quite unsatisfactory. The relative price offood, for example, has risen more rapidly than the general cost-of-living index over the past few years. Per capita consumptionof food, measured by the supply available on a daily caloric basis,has apparently declined in the last decade and a half by almost 15percent.' This decline has occurred despite sizable food importswhich have made up between 10 and 15 percent of the totalvalue of imports in the past 15 years. Moreover, the total valueof agricultural exports has been virtually stagnant since the mid-1950's. Colombia's historical dependence on coffee exports hasdecreased only slightly through agricultural export diversification.

Closely associated with this poor performance is the recurrentviolence in the countryside, a high degree of landowner absen-teeism, slow progress in land reform, a very modest rate of capitalformation in the agricultural sector, and a serious lack of local in-stitutions to assist in development. Other symptoms of the prob-lem are the plethora of agencies working on agricultural develop-ment, well over 100, and the constant need to provide outsideleadership to the agricultural sector Although it is difficult topresent conclusive evidence in this regard, I feel that in somemeasure these problems exist because of the lack of people work-ing with agricultural agencies who have an intimate knowledge ofthe rural area People with rural backgrounds are essentiallyexcluded from these positions because of the current make up ofColombia's education system.

Education in Colombia. Some headway has been made duringthe last two decades in improving education in Colombia, but evenwith the progress made Colombia still finds itself among thelower half of countries in Latin America with respect to mostmeasures of educational quantity and quality.' Many of the mostserious educational problems in Colombia are located in the agri-cultural sector.

Robert E. Adcock, "Agricultural SituationColombia: Food SupplyPast, Present and Future,' annual unpublished report to USDA by theU.S. Agricultural Attaché, July 18, 1966.

DEVELO ENT PROGRAMS IN COLOMBIA 89

Rural primary education, for example, is very deficient. Morethan half of the children in Colombia who entered the first gradein 1965 did so in rural schools. Over three-quarters of the ruralschools offer only two years of education, and only 15 percent ofthose enrolling in the rural first grades can expect to enter thethird_ grade in a rural area; merely a trickle of these enter thethird grade in urban schools. Only three percent of those enteringrural primary education later register in the fifth and final gradeof primary school in rural areas.

The quality of schooling is also restricted by the lack of quali-fied teachers in rural areas. In 1964, more than one in five of therural teachers had less than six years of formal education. Onlyone in three had completed some type of secondary_ education.Alternated schools further reduce the amount of formal trainingwhich rural youth receive. These alternated schools offer one dayfor boys and one day for girls, or a half-day for each. Abouthalf of the rural students attend these types of schools, and thenonly for two years. The lack of teaching aids, poor salaries, anda multitude of holidays further reduce the amount of effectiveeducation_

There is very little secondary education available in rural areas,since most -of the secondary schools are situated in large urbancenters_ Over 30 percent of the country's high schools are locatedin the capital city of Bogot6_, and another 50 percent in otherDepartmental capitals. To a large extent children in rural areasare unable to complete sufficient primary education to entersecondary schools_ Since much of the secondary schooling is pri-vate, many rural children are also excluded because of the costsinvolved in attending these schools.

In 1964 college preparatory schools enrolled about 60 percentof the students in secondary schools. Teacher training and com-mercial training centers each had about 13 percent, and the re-maining, secondary students were scattered among eight other types

2 The data in this section were drawn from various DANE publications,and A_ Eugene Havens, **Education in Rural Colombia: An Investment

"in Human Resources,., Ten-tre Center, University of Wisconsin,Research Paper No. 8, February, 1965.

3 Rural schools in Colombia are defined as any which are located out-side the main urban center of a municipio. Except for a few schoolsClassified as rural, but located near large cities. Colombia's rural schoolsserve farm people almost exclusively_

90 INTER-AMERICA ECONOMIC AFFAIRS

of vocational training programs. Vocational training in agricul-ture was not started in Colombia until 1941 and the number ofstudents in vocational agricultural schools made up less than onepercent of the total number of students in secondary training in1964. More than twice as many students in 1964 were attendingsecondary schools preparing for careers in religion, as were studying vocational agriculture (6,912 versus 3,108). In any meaning-ful sense there are almost no secondary educational facilities avail-able to rural youth in Colombia.

University enrollment in Colombia has increased very rapidlyduring the last two decades. Substantial progress has also beenmade in upgrading faculty and staff, improving physical facilities,and advancing the general quality of college training. Althoughsome recent change has taken place, principal emphasis is still

laced on the classical fields_ More than 50 percent ofjhe uni-versity graduates between 1920 and 1963 studied law or medirine_4During 1951 to 1963 two-thirds of the university graduates werein law, medicine or engineering_

Formal university training in agricultural sciences began inColombia in 1914, and by 1950 there were three Colleges of Agri-culture. Between 1950 and 1965 another seven Colleges of Agri-culture were established. Over the 1920 to 1963 period, however,less than five percent of the college graduates in Colombia ma-jored in agriculture (2,077 versus a total of 45,483). This wasonly one-fifth of the total number graduated over the same periodin law. There has been some recent increase in the proportion ofuniversity students majoring in agriculture, but they still amountedto less than rime percent of the total in 1965.E The same situationexists in foreign graduate training in agriculturally related sciences_Of the 5,777 students financed by the Institut° Colombian° deEspecializacion Taentica en- el Exterior (ICETEX) to study inforeign countries during 1961 to 1964, only about five percentmajored in agriculture.

4 InStibitO Colombian° de Especializacion T6cnica en el Exterior(ICETEX), Recursos Y Requerimientos de Personal d Alto Nivel:Colombia 19644975, (Bogota: Banco de la RepCiblica, no date but about1965), p. 50.

5 Extensive surveys of Colombian higher education in agriculture aregiven in: Miguel Hernandez, Cardenas, 'Estado Actual de la Ensefianzade la. Agronornia en Colombia;'. Agricultura Tropical, 22 :613-626, Dec.1966; and CotniSion de Educarion Agricola Superior, EthicaciOn AgricolaSuperior en Colonthia, (Bogota: National University of Colombia, 1361

DEVELOPMENT PROGRAMS IN COLOMBIA 91

Even a casual view of Colombia's educational system stronglysuggests that most children of families making a living primarilyfrom agricultural production are restricted to skimpy amounts ofprimary education. Completion of at least secondary school, orin many cases college, is almost always a prerequisite for employ-ment in agricultural agencies. Moreover, a large proportifin of thepotential local leadership in rural areas of Colombia is rinto the cities. The migration process is highly selective with re-spect to a number of factors closely associated with leadershipability: formal education, youth, health, economic background,and intelligence. Migrants have too 'little formal training, never-theless, to obtain further education and enter leadership positionsin agriculture.

Has the seriousness of this leadership gap in agricultur.2 beenoverstated to this point? It might be argued, for example, thatthe trickle of capable rural people who climb the educationalladder is sufficient to fill existing positions in agricultural a gen-des. Or, it might be argued that it is not necessary to have a ruralbackground in order to be a good leader in agricultural develop-Ment program-6.

Backgrounds of Potential Leaders In Rural Development Pro-grams. In most cases -urban" people man agricultural develop-ment programs in Colombia. Lawyers, economists, and engineerswith little or no background -in agriculture often make up asizeable portion of the staffs participating in these activities. Eventhe personnel who have graduated with agricultural degrees lackclose ties with agriculture prior to their college training. Theresults from a study of 479 students in three of the largest Collegesof Agriculture in Colombia, Medellin (246), Bogota (155), andIbague (78) illustrate this paint.; After graduation many ofthese students find employment in various Colombian agencieswhich are associated with agricultural development.

The rural background of the students interviewed was deter-" An interesting sidelight on this point is the fact that a number of

Colombian college graduates in agriculture were having a difficult timefinding employment in 1965=1966. Some argued that this was due to toomany people being trained in agriculture: Guillermo Ortiz R. and others,"Estudio Sobre la Ocupacion del Personal Tecraco Agropecuario en Colom-bia y Proyeccion part. 1970," Agriculture? Tropical, 22 : 352-365, July 1966.A more plausible answer, however, is that public investments in agricul-ture are at such a low rate that even a i _o est supply of college trainedpeople cannot be employed.

92 INTER-AMERICAN ECONOMIC AFFAIRS

mined by a number of questions aimed at indicating "rural ex-posure." Information was collected on three general areas: (1)the typeof schools attended by the student, (2) the place of resi-dence, occupation, and sources of income of the students' parents,and (3) the first-hand agricultural experience of the student.

The first four indicators in Table I describe the type of primaryand secondary schobls which the students attended. Only 12percent of those interviewed attended a primary school with lessthan 100 students; most of the rural primary schools in Colombiahave smaller enrollments. About five percent of the students hadonly one or two teachers in 'their primary school, a number quitetypical in rural schools. Less than one-fifth of the students wereforced to travel more than 6 miles from their home to attendsecondary school. Most of the students apparently lived in urbanareas where secondary educational facilities were readily available.Only two percent of the students had attended vocational agricuture secondary schools. This is quite understandable since the vo-cational agricultural program is relatively small, and few studentswho graduate from this program are academically prepared forcollege training.

The questions asked with respect to the background of thestudents' parents strongly suggested that less than half of theparents had any meaningful commitment to agriculture. Only17 percent of the students felt that their parents would declareagriculture as their main occupation. Most of their paients hadother sources of income in addition to some economic interests inagriculture. About 35 percent of the parents owned agriculturalland, about half of the parents had lived on a farm in the past,but only one-quarter of the parents. currently resided at least parttime on a farm. The students_ reported that fewer than 10 percentof their parents had received less than three years of formal edu-cation, which strongly suggests that many of their parents spentmost of their childhood in urban areas where more than two yearsof primary education were available.

The responses given by the students about their own contactwith farming outside of their ,ilege training, showed a verylimited exposure to agriculture_ ni one in ten had worked inagriculture after graduation from high school, only about one-

This was approximately all, 50 percent, and 25 percent respectivelyof the students enrolled in these .institutions: Interviews were carried outin 1964 and 1965

DEVELOPMENT PROGRAMS IN COLOMBIA

Table No IIndicators of Agricultural BackgroundFor 479 Students in Three ColombianAgricultural Colleges 1964 and 1965.

ndicators r* es NoThe student( Percent

1. Attended a primary school with less than 100 students. 12 882. Attended a primary school with only one or two teachers. 5 95

Attended high school over six miles from his home. 19 814. Received vocational agricultural training. 2 985. Parents declare agriculture as their major occupation. 17 836. Parents own agricultural land. 35 657. Parents have lived on a farm in the past. 47 538. Parents currently Jive on a farm, at least part time. 15 759. Father received less than three years of formal education. 7 93

10. Mother received less than three years of formal education. 4 9611. Worked in agriculture after graduation from high school. 10 9012. Has lived in rural area more than 4 years. 26 7413. Has lived in rural area more than 10 years. 8 9214. Expects to inherit agricultural land. 15 8515. Feels he has had extensive work experience on farms. 11 8916. Has at least occasional contact with rural people. 10_ 901.7. As an overall evaluation, has had a substantial amount of

contact with agriculture. 11 89Source: Interviews carried out during 1964 and 1965 with 479 students

attending the Colleges of Agriculture in Bogota, Medellin, andIbague4, Colombia.

quarter had lived in a rural area for more than 4 years, and lessthan 10 percent had been a rural resident for more than 10 years.Only 15 percent expecte i to inherit agricultural land, 11 percentfelt they had had extem-ive work experience in agriculture, andonly 10 percent had at least occasional contact with rural people.A subjective overall evaluation of the agricultural background ofthe students interviewed showed that only 11 percent had a sub-ctantiat amount of contact with agriculture wide from their collegeLLaining.

To reinforce these impressions, similar questions were asked ofabout 50 zmployees of the Agrarian Reform Institute (INCORA)during 1966. These individuals made up the staff of a supervisedcredit program in four areas of Colombia? Most were credit

INTER-AMERICAN ECONOMIC AFFAIRS

supervisors who worked with 10 to 30 farmers, and a few addi-tional were zone chiefs who had mainly administrative positions.Supervisors had usually completed secondary education and zonechiefs were usually graduates from agricultural colleges. Theseemployees, especially the supervisors, probably have more rum'background than any other large group of people working withagricultural development agencies in Colombia. Accordingly, theagricultural background of these INCORA employees was moreprominent than that noted among the agricultural college studentsinterviewed_ Between 20 and 30 percent of these employees hadgrown up in essentially rural areas, and almost 40 percent of themhad attended a vocational agricultural secondary school. Even inthis select group, however, except for vacations, almost half hadnever lived in a rural area prior to their present employment.Almost 80 perceric of their parents currently live in urban areas,and almost half of the parents derive little or no_income from agri-cultural production. About 40 percent of these employees feltthat they had essentially no practical experience in agriculture.except for the exposure received during their schcioling or in theircurrent employment.

Gond:Li-1aim and Suggestions What can be concluded aboutleadership, education, and agricultural development in ColombiaFirst, a number of indicators strongly suggest that Colombia'sagricultural sector is performing poorly, and that its performanceis restricting overall economic growth. second, Colombia's educa-tional system essentially isolates rural people from employmentby agricultural agencies. Few of the people employed by agri-cultural agencies have had much contact with rural Colombia.

Without lapsing into 'agricultural fundamentalism," do ruralpeople make better employees in agricultural agencies than thosevvith urban backgrounds? Or, is the relatively poor performanceof the agricultural sector in Colombia due principally to the com-plexity and difficulty of the problems faced rather than the lackof leadership with rural backgrounds? Unfortunately, these key_questions cannot be resolved on the basis of conclusive factualevidence. Granting that Colombia has a number of very difficultagricultural problems .to wrestle with, I feel that leadership with

8 My impression of 1NCORA's recruiting procedure is very favorable.With few exceptions they are hiring the best qualified people available for-the positions specified.

DEVELOPMENT PROGRAMS IN COLOMBIA 9

rural backgrounds could substantially assist in seeking solutionsto these problems.Practical experience in agriculture can be useful in a number of

ways. The complexities of agricultural life and production, forexample, are difficult to understand where one lacks an intimatecontact with rural areas. Entangled land tenure arrangements,complex farm unit organization, diversified agricultural enter-prises within farm units, multiple occupational structures,- andcomplicated criteria used for making production decisions areall difficult to giasp with only a superficial knowledge of ccm-ditions in rural areas. Without this kind of information it isdifficult for decision makers to identify major problems whichexist in the agricultural sector.' Likewise, it sharply limits aleader's ability to propose and carry out policies which have areasonable chance of solving the problems identified. A lack ofbasic data and research on the structure of the agricultural sectormakes it difficult for non-rural people to educate themselves on

agricultural conditions in a country like Colombia.Another important consideration is that leaders from rural areasfind it much easier to identify with rural people. It is less diffi-cult for them- to overcome class considerations and communicatein rural areas on an equal basis. Moreover, they are more likelyto attach logical reasons to rural pioples' actions, rather thanwriting actions off as due to ignorance, tradition, and lack ofculture. An appreciation of rural inhabitants as individuals is animportant element in designing workable agricultural programs.People with rural backgrounds also find it less uncomfortable

living and working in rural areas than do urbanites. Findingpeople who will work with agricultural agencies and live in ruralareas is no small problem.If individuals with rural backgrounds could provide betterleadership for agricultural programs, how can these types of

people be developed? One alternative is to provide much morepractical training for those who are, or might in the future beleaders in agricultural development agencies. An internship inrural areas for students from agricultural colleges, for example,might be one way of introducing them to rural life. Such a pro=_

9.. A lack of: knowledge regarding the basic make up of the agriculturalsector can lead to very serious policy mistakes. An example of this is givenin: Dale W. Adams, "Landownership Patterns in Colombia," Inter-American, Economic airs, 18:77-94, Writer 7 965.

96 INTER-AMERICAN ECONOMIC AFFAIRS

gram has met some success in Thailand. Much more opportunityfor agricultural college students to work, study and do research inrural areas would also be helpful_ These activities should, never-theless, be considered as only short term substitutes for assistingsome rural people to enter leadership positions. To do this morerural education is needed.

Realistically, it is doubtful that even 3 or 4 decades will sufficeto provide abundant high quality education in most rural areas ofcountries such as Colombia. It should be, possible, however, todevelop adequate primary and secondary schools in a few ruralareas so that some of the most highly qualified rural youth canhave access to higher education." In at least one rural area ofColombia this type of program has been developed; complete pri-mary and secondary educatior.al facilities have been established,dormitories erected, and small scholarships provided for brightstudents whose familie:t live in outlying areas. Rural studentsare receiving sufficient education in these facilities to have reason-ably good chances of quality!ng for higher education. If a hand-ful of these types of facilities co;.-Irl be developed and associatedwith the colleges of agriculture in Colombia. a substantially largerflow of young people from rural areas could attend agriculturalcolleges and later enter leadership positions in agricultural de-velopment agencies." This would not only provide agriculturalagencies with better employees, but it would also tap a supply ofheretofore unutilized rural brain power. .

The strength of the US. agricultural sector is closely related tothe fact that many of the employees of the agricultural develop-ment agencies have a good deal of practical experience in agri-culture. Although improvements will likely be. made in Colom-bia's agriculture with existing leadership, I feel that the processcould be accelerated if, as in the U.S., more rural people were indecision making positions.

1° An interesting sidelight to this is pointed out by John Buttrick,Approach to Planning Higher Education in Colombia,- unpublishedmanuscript, Economics Department, University of Minnesota, May 1966.He argues that about three-quarters of the olost- intelligent people (top"' percent of the population) in colombiaw-rsittes. A large majority of these live in

This type of proposal has been suggeste-ecto de Desarrollo Rural Mediante la Educamanuscript, Facultad de Agronomla, Medelll

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MI:WT I'I.ANNI:it, 10118,

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iii: UUATI:MAIA, 1908,

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