LAYING THE GROUNDWORK
In September 2000, the member states of the United Nations unanimously adopted the Millennium Declaration. That document served as the launching pad for the public declaration of eight Millennium Development Goals (MDGs) – which include everything from goal one of halving extreme poverty to goal two of providing universal primary education; all to be accomplished before the year 2015. Progress towards the first seven goals are dependent upon the success of goal eight – which emphasizes the need for rich countries to commit to assisting with the development of “an open, rule-based trading and financial system, more generous aid to countries committed to poverty reduction, and relief for the debt problems of developing countries.”1
At first glance, the recent actions of Central American countries and the United States to liberalize trade seem to support, at least partially, successful realization of MDG Eight. However, upon closer examination, the picture blurs and the outcome seems uncertain.
Following only a year of negotiations, the Central America Free Trade Agreement (CAFTA) or DR-CAFTA (as a result of its recent inclusion of the Dominican Republic), was signed by the governments of Costa Rica, the Dominican Republic, El Salvador, Guatemala, Honduras, Nicaragua and the United States in 2004. The agreement, committing each country to reduce its trade barriers with the other DR-CAFTA countries, was ratified by the United States Congress on July 28, 2005.2
Rather than attempting to analyze all of the specific economic and social intricacies associated with liberalizing trade in Central America, this brief aims solely to cast light upon the overlap between countries’ efforts to implement the Millennium Development Goal Two/Education for All and their need to implement a complementary CAFTA agenda.
Specifically, this document highlights the importance of educational priorities if economic development efforts are to be successful. The premise of the argument elaborated here is that without sufficient prioritized emphasis by Central American countries, multilateral organizations and targeted donor countries on a complementary agenda that directs resources towards education infrastructure, CAFTA will never succeed in assisting these countries in reaching an ever elusive state of “economic prosperity.” In fact, it may deter them from fully accomplishing the MDGs as well.
CURRENT STATE OF EDUCATION
With the need for collaboration between economic and educational efforts in mind, let us examine the current status of MDG Two implementation and broader educational reform in Central America:
Over the past fifteen years, most Central American countries have implemented at least basic forms of educational reform. As a result, more children are entering school and spending more days and years enrolled than ever before. On an aggregate level, the larger Latin American and Caribbean region has made considerable progress toward the goal of universal primary education enrollment and according to the most recent UN Millennium Development Goals report, “Net enrollment rates at the primary level rose from 86 percent in 1990 to 93 percent in 2001. The region’s pace of progress in this indicator has been faster than the developing world average (which rose from 80 percent to 83 percent between 1990 and 2001). Net enrollment rates in 23 countries of the region (12 in Latin America and 11 in the Caribbean) surpass 90 percent.” 3 The reality is that, large scale disaster or other unforeseen event aside, all six countries are on target to reach the MDG enrollment targets.
Unfortunately, progress towards the target of completing five years of primary education has been slower and few countries in the region can boast success in this arena. The lack of progress towards completion of this target is most directly related to inefficiencies in the education system and the socioeconomic conditions of poor children – both situations that result in high repetition and desertion rates and both situations that must be ameliorated if CAFTA is to succeed. Furthermore, while the number of children initially enrolling in school has increased, the poor quality of education throughout Central America is also certainly a factor in children’s failure to complete their primary education. Quality must therefore also be taken into account when considering educational infrastructure needs.
While not necessarily relevant to MDG Two but quite possibly relevant from the CAFTA perspective of needing a skilled workforce, Central America’s educational woes most definitely extend beyond the primary school environment. In response to the recent Millennium Development Goals Report 2005, an Inter-American Development Bank representative wrote “It is difficult to avoid the impression that the countries of Latin America and the Caribbean are falling behind with regard to secondary education. Although this is not included in the MDGs, it is the single most important educational indicator separating upper and lower income groups in the region.” 4
When less than one third of a country’s urban workforce has completed the twelve years of schooling that your or I take for granted, how can they hope to compete in today’s technology-dense free trade environment?
HISTORY LESSON -HAPPENING AGAIN?
Upon an examination of the Mexico of today as compared to pre-North American Free Trade Agreement (NAFTA) times, a rise in the Mexican poverty rate over the last decade or so is apparent. Rather than being directly due to the implementation of NAFTA, it is more likely that this increase in the poverty rate is attributable to Mexico’s failure to simultaneously implement a complementary agenda; specifically, the inability of Mexico’s poorer southern States to improve their poorly trained workforce, infrastructural deficiencies and weak institutions in order to participate meaningfully in a liberalized trade environment. Rather than gain, the southern Mexican states lost even as the northern states benefited from the liberalized trade environment created by NAFTA.
Dr. Daniel Lederman, co-author of the World Bank report entitled “NAFTA is Not Enough” (and issued ten years after NAFTA was originally enacted) explained in an National Public Radio (NPR) interview in 2003 that Mexico’s financial crisis in the 1990s was bound to deepen poverty there with or without NAFTA. Dr. Lederman said:
Mexican income dropped in one year, 1995, by six percent. Wages across the board for all Mexican workers, on average, fell by 25 percent in less than a year…Still, NAFTA helped Mexico limit the damage, lifting per capita income at least 4 percentage points above where it would have been otherwise. The bottom line is, Mexico would be poorer without NAFTA today. Clearly trade alone won’t alleviate poverty. But if Mexico makes the right investments, especially in education, the next decade should be better. 5
POTENTIAL FOR ECONOMIC SUCCESS
As was the case in Mexico, it is likely that the majority of households in Central American countries stand to ultimately gain from the price changes associated with removing trade barriers for sensitive agricultural commodities and other goods. However, in order for this to happen, as Dr. Lederman suggests above, each country must now make appropriate investments in development efforts (most especially in education) in order to guarantee an equitable distribution of the benefits of these efforts in the future.
Simultaneously, it is of critical importance that each country provides for the needs of their most at-risk citizens. In order to guarantee that the children of these families are given the opportunity to be counted among those in school, countries must identify resources, both internally and externally, to provide incentives for families “to invest in the human capital of their children.” 6Examples of such incentives have been implemented through funding from the Inter-American Development Bank and several other organizations in Costa Rica (Superemonos), the Dominican Republic (Tarjeta de Asistencia Escolar), Honduras (PRAF), and Nicaragua (Red de Protección Social). Most immediately, these incentives (often in the form of conditional cash transfers) serve to increase food consumption, school attendance and use of preventive health care among the extremely poor. In the long run they are intended to assist with poverty and malnutrition reduction and to improve schooling completion rates. As reported by the IDB, “results are proving that it is possible to increase a family’s accumulation of human capital (measured by increased educational attainment and reduced mortality and morbidity) and, as a result, also raise potential labor market returns for the beneficiaries, as well as overall productivity. The programs have had a substantial positive long-term impact on the education, nutrition and health of its beneficiaries, especially children.” 7
In the World Bank’s expansive document analyzing CAFTA’s potential impact on Central America, entitled “DR-CAFTA – Challenges and Opportunities for Central America” the authors repeatedly reference technology and emphasize the importance of a complementary educational agenda that is tied to each country’s stage of development and innovation. For example, “for those countries farthest away from the technological frontier -such as Honduras and Nicaragua– the best technology policy is likely to be simply sound education policy… in the more advanced settings of Costa Rica and El Salvador, where adaptation and creation of new technologies is more important, issues of education quality and completion of secondary schooling are more important.” 8 In fact, without ever making specific reference to the MDGs, the authors recommend that the former countries focus on the goal of achieving universal primary education while the latter countries focus their energy on expanding and improving secondary level education. Failing to do so is choosing failure in the open market.
Ultimately, rather than seeing CAFTA as a first class ticket to a better economic end – with no strings attached, countries must acknowledge the critical importance of first implementing MDG Two – target three. This target, which says “by 2015, children everywhere, boys and girls alike, will be able to complete a full course of primary schooling” 9 is a critically important step towards guaranteeing the emergence of a workforce that can respond to increased marketplace demand and evolving technologies. Without immediate investment in that future workforce via the education system, CAFTA will surely flounder and drag MDG Two along with it.
Furthermore, as mentioned above, educational infrastructure must be put into place now that will not only guarantee a higher quality education but will also be made accessible and desirable to Central America’s most at-risk citizens. After all, based on Mexico’s experience, the likelihood of a positive outcome for both CAFTA and MPG Two is slim. Yet the possibility of economic success does exist if we agree to truly choose “Education For All.”
1) Millennium Development Goals, Goal Eight, http://www.un.org
2) At the time this brief was written (Dec 2005), the agreement still hadn’t been ratified by the Parliaments of Costa Rica, Dominican Republic and Nicaragua.
3) The Millennium Development Goals Report 2005, http://unstats.un.org/unsd/mi/pdf/MDG%20Book.pdf
4) The Millennium Development Goals in Latin America and the Caribbean: Progress, Priorities, and IDB Support for their Implementation, Inter-American Development Bank, Washington, DC, Aug 05, http://idbdocs.iadb.org/wsdocs/getdocument.aspx?docnum=591088
5) National Public Radio, All Things Considered, Interview with Daniel Lederman, Monday, December 8, 2003 http://web.lexis-nexis.com/
6) The Millennium Development Goals in Latin America and the Caribbean: Progress, Priorities, and IDB Support for their Implementation, ibid
7) The Millennium Development Goals in Latin America and the Caribbean: Progress, Priorities, and IDB Support for their Implementation, Inter-American Development Bank, Washington, DC, August 2005, p. 56
8) DR-CAFTA – Challenges and Opportunities for Central America, Chapter VII: Obtaining the Pay-off From DR-CAFTA, p199.
9) Millennium Development Goals, Goal Two, http://www.un.org