Qatar National Development Strategy 2011–2016 Towards Qatar National Vision 2030

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Qatar National National Qatar StrategyDevelopment 2011~2016

Qatar National Development Strategy 2011~2016

Qatar General Secretariat for Development Planning Doha Towers P.O. Box 1855 Doha, Qatar www.gsdp.gov.qa

Design and editing by Communications Development Incorporated, Washington, DC.

Printed by Gulf Publishing and Printing Company, Doha.

The content of this publication may be freely reproduced for noncommercial purposes with attribution to the copyright holder. Foreword

Under the guidance of His Highness Sheikh Hamad Bin Khalifa Al-Thani, our beloved Emir, the pioneer of our advancement and the leader of our march forward, the first National Development Strategy for the State of Qatar 2011–2016 was prepared to set a path towards achieving the goals of Qatar National Vision 2030.

The National Strategy deepens our commitment to increasing the well-being of all Qatari citizens and lays out a carefully designed programme for how to continue providing the best education and healthcare as well as social protection and employment opportunities in a prosperous, stable and secure society that nurtures its members and preserves and protects family cohesion.

A product of consultations with all segments of Qatari society, including the private sector and civil society, the Strategy takes into account Qatar’s cultural and religious values, as well as the needs of future generations, covering all aspects of social, economic and environmental activity.

Qatar’s tremendous progress is clear in all fields. However, the stresses that accompany rapid progress are also visible. Our mission—balanced and sustainable growth—requires responsible use of resources and continuous modernization and development of public institutions to ensure good programme management and high-quality public services.

This Strategy also highlights our competitive position in the international economy and reminds us of the effective role we must play at both the regional and international levels.

I would like to thank all those who contributed—in particular, the National Steering Committee, the Executive Groups, Task Teams and technical support groups. I would also like to commend the General Secretariat for Development Planning and its Secretary General for their role in coordinating the preparation of the Strategy.

Everyone in Qatar, including the private sector and civil society, must fully commit to implementing the Strategy’s framework and achieving its development objectives. Doing so will bring prosperity and benefits for us today as well as for Qatar’s future generations.

May Allah guide our steps.

Tamim Bin Hamad Al-Thani Heir Apparent Head, Supreme Oversight Committee for implementing Qatar National Vision 2030

March 2011

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Contents

Foreword iii Enhancing market efficiency 88 Regulation and efficiency 90 Supreme Oversight Committee for Implementing Qatar Building a diversified economy 93 National Vision 2030 x Members of the National Development Strategy National Chapter 4 Promoting human development 103 Steering Committee x Nurturing a healthy population 106 Members of the Executive Groups xi Challenges for healthcare 108 Task team chairs xii Realizing Qatar National Vision 2030 for a General Secretariat for Development Planning healthy population 109 management support xii A comprehensive world-class healthcare system 110 National Development Strategy 2011–2016 Sector Reports xiii An integrated system of healthcare 112 A focus on preventive healthcare 113 Executive summary 1 A skilled national healthcare workforce 115 A national health policy 116 Effective and affordable services through partnerships Part 1 Agenda and resources in bearing healthcare costs 117 High-quality research directed at improving the Chapter 1 Building Qatar’s first effectiveness and quality of healthcare 119 development strategy 33 Prerequisites for implementation 120 From vision to strategy: tackling the big challenges 34 Fostering cross-sectoral links 120 Preparing the National Development Strategy 2011–2016 35 Building knowledge and skills 122 National Development Strategy 2011–2016 programmes Desired qualities of Qatar’s education and training system 124 and projects 38 Growing importance of private and independent schools Growth with balance 39 and rising enrolment of children of expatriates 127 Four interrelated pillars of development 39 Realizing Qatar National Vision 2030 for education A programme for the entire society 40 and training 128 Building on momentum 41 Addressing core education and training issues 128 Improving K–12 general education 132 Chapter 2 Achievements and economic Improving higher education 137 outlook 2011–2016 43 Enhancing scientific research 143 A solid foundation for the future 44 Fostering cross-sectoral links 144 Outlook for 2011–2016 51 Fostering a capable and motivated workforce 146 Supporting the National Development Strategy 2011–2016 61 Challenges for the labour market 147 Realizing Qatar National Vision 2030 for a capable and motivated workforce 148 Part 2 The four development pillars Expanding high-quality training opportunities for Qataris 149 Incentivizing Qatari private sector employment 151 Chapter 3 Sustaining economic prosperity 67 Boosting labour force productivity 152 Expanding the productive base 69 Attracting and retaining high-quality expatriate talent 153 Enhancing economic stability 74 Nurturing and managing human resources 154 Enhancing technical and economic efficiency 80 Improving labour market flexibility 155

v Building the capacity of key labour market stakeholders 155 Chapter 6 Sustaining the environment Strengthening evidence-based policy-making 156 for future generations 213 Enhancing employment and career counselling services 157 Managing resources and protecting opportunity for Implementation challenges 158 future generations 214 Fostering cross-sectoral links 160 Realizing Qatar National Vision 2030 for sustainability 216 Cleaner water and sustainable use 217 Chapter 5 An integrated approach to Cleaner air and effective climate change responses 221 sound social development 161 Reduced waste, more recycling and more efficient use 224 Family cohesion: the core of Qatari society 165 Nature and natural heritage conserved, protected and Reinforcing family cohesion 166 sustainably managed 226 Strengthening parental roles 168 More sustainable urbanization and a healthier living environment 228 Reducing domestic violence 169 An increasingly environmentally aware population 229 Supporting families with special circumstances 171 Improved governance and regional and international cooperation 230 Reducing economic and social vulnerability and Deepening the national commitment—creating the improving financial management 171 knowledge base 232 Adopting a holistic approach to child well-being 172 Fostering cross-sectoral links 236 Improving work-life balance for women 174 Increasing women’s empowerment 175 Fostering cross-sectoral links 177 Part 3 Institutions and implementation Social safeguards for a caring society 179 Improving and strengthening the social protection system 179 Chapter 7 Developing modern public Making the workforce and society more inclusive 183 sector institutions 241 Extending social responsibility to the business community 185 The drivers and levers of institutional development and Fostering cross-sectoral links 186 modernization 243 Public protection for a stable society 188 Mapping Qatar’s institutional development and Improving crime management 188 modernization journey 245 Improving road traffic safety 190 Possible pathways to public sector institutional development 249 Strengthening occupational health and safety 192 Programmes to develop and modernize public sector institutions 250 Enhancing building safety standards 193 Strategic policy and planning 252 Coordinating national emergency preparedness 194 Budget and financial management 253 Fostering cross-sectoral links 194 Organizational alignment 254 Sports as inspiration for an active and healthy society 196 Human resources development 256 Promoting healthy and active living through sports 197 Enabled institutional processes 257 Equipping the country with accessible sports facilities 199 Performance management 259 Propelling the country to sporting excellence 200 Project priorities and fostering cross-sectoral links 260 Fostering cross-sectoral links 202 Cultural growth for a creative and exceptional society 204 Chapter 8 Moving from strategy Increasing demand and support for diverse cultural to implementation 263 activities 205 Embracing an expanded orientation and new ways of working 264 Improving management of heritage resources 206 Strategic thrusts 264 Investing in young people 207 The building blocks of implementation 265 Developing high-quality artistic talent 208 The human resources constraint 267 Providing better information for cultural advocacy 209 Budgetary resources for the strategy 267 Strengthening Qatar’s cultural diplomacy 209 Bridging the information and knowledge gap 269 Fostering cross-sectoral links 210 Implementation through participation, communication and advocacy 269 Moving social development forward 212 Monitoring and evaluation 270

vi Qatar National Development Strategy 2011–2016 Boxes 3.1 Sustainability and the economic framework 69 2.1 Glimpsing the economy’s future 52 3.2 The government plans more than $65 billion in 3.1 Discounting the future—calculating limits on consumption 70 infrastructure spending through 2016 72 3.2 Economic Development Board of Singapore 74 3.3 Inflation accelerated sharply from 2005, hitting a high 3.3 Calibrating government involvement in industry 97 of about 15% in the first quarter of 2008 75 6.1 Major environmental interventions carry knowledge 3.4 For a hydrocarbon-exporting economy such as Qatar, demands 233 price shifts hit the fiscal revenue stream directly, creating 7.1 Best practices, by levers of public sector performance 246 ripple effects throughout society 76 8.1 The value of quick wins 265 3.5 The volatility of oil prices makes it difficult for policy- makers to judge the most constructive fiscal stance 76 Figures 3.6 Elements of efficiency interact and link to sectors and 1.1 The National Development Strategy 2011–2016 was focus areas 80 developed through a combination of top‑down and 3.7 A snapshot of Qatar’s infrastructure in capacity, quality bottom-up approaches 36 and cost 82 1.2 Preparation of the National Development Strategy 3.8 Qatar relies on water from desalination, which is subject 2011–2016 was broadly participatory and inclusive 37 to inefficiencies that may threaten water security or 1.3 The National Development Strategy 2011–2016 require large investments to ease shortages 83 organizational structure 38 3.9 Operators should be commercially motivated, disciplined by 2.1 Qatar has grown faster than any other economy, and markets as well as accountable to regulators, and protected its per capita GDP is now among the highest in the world 45 from political interference, but Qatar lacks these separations 91 2.2 Qatar is a global leader in liquefied natural gas production 46 3.10 Little diversification of output has occurred over the 2.3 Qatar’s spending on infrastructure over 2005–2009 last decade 94 has outpaced that of other countries experiencing 3.11 Only 41% of new products exported from Qatar survive accelerating growth 47 until the next year 95 2.4 Government spending is strongly correlated with oil 3.12 Labour productivity is falling across most sectors 95 prices and government revenue 48 3.13 Qatar is vulnerable to underlying pressures for real 2.5 Beyond 2011 real GDP growth is likely to shift down 51 exchange rate appreciation, making its exports more 2.6 With hydrocarbon growth decelerating, robust expansion costly and less competitive 96 elsewhere in the economy will help keep overall GDP 3.14 Economic prosperity is both a goal and an enabler to growth buoyant 54 achieve the aspirations of Qatar National Vision 2030 101 2.7 By 2016 the service sector may account for nearly 4.1 Links between the National Development Strategy 40% of total output, up from 36% in 2009 54 2011–2016 and the Supreme Council of Health 107 2.8 Qatar’s population is expected to grow steadily, at an 4.2 Current and future models of healthcare 110 annual average of about 2.1% during 2011–2016 55 4.3 Healthcare spending in Qatar has risen nearly fivefold 2.9 During 2011–2016 total gross domestic investment since 2001 117 might approach QR 820 billion 56 4.4 A healthy population is both a goal and an enabler to 2.10 The ratios of gross national saving to total GDP and achieve the aspirations of Qatar National Vision 2030 121 government saving to GDP are expected to decline but 4.5 With the growth in the number of school-going children remain substantial 57 in Qatar, demand for international and community 2.11 The overall government fiscal position is expected to schools is rising 125 remain healthy, with a surplus of 5.7% of GDP by 2016 57 4.6 Government spending on education and training is 2.12 Oil prices are projected to rise, gas prices to remain high in Qatar compared with benchmark countries 126 range bound 58 4.7 The share of Qataris in international schools at all 2.13 The current account surplus should remain sizeable, levels grew markedly between 2003/2004 and peaking at 24% of GDP in 2011, declining to 15% by 2016 58 2008/2009 127 2.14 An assumed 30% fall in the prices of Qatar’s liquefied 4.8 Most students in Qatar have ready access to natural gas basket reduces nominal GDP 60 computers at school 130

Contents vii 4.9 The number of Qatari and non-Qatari kindergarten 5.8 Qatari women with a university education are students is increasing rapidly, and most attend private employed mainly as professionals 176 schools 133 5.9 Family cohesion and women’s empowerment is both 4.10 Participation in primary schooling is high in Qatar a goal and an enabler to achieve the aspirations of compared with regional benchmarks, but there is Qatar National Vision 2030 178 scope for higher participation in secondary schooling 133 5.10 A noncontributory cash transfer system targets 4.11 Average annual expenditure on higher education vulnerable groups 180 per student is above the Organisation for Economic 5.11 Benefits must be regularly reviewed against inflation Co‑operation and Development average 138 to maintain annual purchasing power 181 4.12 Gross enrolment ratios for tertiary education are 5.12 A six-step model to guide the development of Qatar’s low for Qataris, especially for men, compared with corporate responsibility policy framework 186 benchmark countries, 2006–2008 139 5.13 Social protection is both a goal and an enabler to 4.13 Qatari students need more technical education and achieve the aspirations of Qatar National Vision 2030 187 vocational training pathways to employment 142 5.14 Road accidents involving at least one vehicle and 4.14 Qatar needs to increase the proportion of science and resulting in damage and injury have been increasing math graduates 143 since 2003 191 4.15 Education and training are both a goal and an 5.15 Fire-related accidents peaked in 2008 during the enabler to achieve the aspirations of Qatar National construction boom 193 Vision 2030 145 5.16 Public safety and security are both a goal and an 4.16 Qataris as a share of the labour force, actual and enabler to achieve the aspirations of Qatar National projected under two scenarios, 2001–2016 147 Vision 2030 195 4.17 Labour force participation rates of Qatari women 5.17 Lifestyle change through sports education and have risen rapidly but remain below those in selected awareness is key for a healthier population 197 developed countries 152 5.18 Social and community influences limit Qatari 4.18 Productivity in selected sectors in Qatar compares women’s participation in sports 198 well with that in benchmark countries, but not in 5.19 Qatar is the best performer among Gulf Cooperation construction and services, 2009 153 Council countries in the Asian Games 201 4.19 Qatar needs to shift its employment distribution 5.20 Sports is both a goal and an enabler to achieve the towards a higher share of skilled labour, 2008 154 aspirations of Qatar National Vision 2030 203 4.20 Qatari men start to retire from the labour force earlier 5.21 There are about 200 archaeological sites across Qatar than men in most other countries 156 with more than 900 varieties of petroglyphs 207 4.21 Key stakeholders in Qatar’s labour market governance 5.22 Culture is both a goal and an enabler to achieve the and links 157 aspirations of Qatar National Vision 2030 211 4.22 A capable and motivated workforce is both a goal and 6.1 Reducing network losses and household an enabler to achieve the aspirations of Qatar National consumption is key to sustainable water use 217 Vision 2030 159 6.2 Production of desalinated water has increased 5.1 Qatari households remain relatively large 166 massively but has barely kept pace with population 5.2 Qatari women are having fewer children than they did a growth 218 generation ago 167 6.3 About a third of water produced leaks into the water 5.3 The divorce rate per 1,000 married Qataris rose from table each year 220 17.4 in 1995 to 19.2 in 2009 167 6.4 Two-thirds of Qatar’s carbon dioxide emissions stem 5.4 Domestic violence cases are prevalent in Qatar 169 from heavy industry 223 5.5 More financial responsibility and less indebtedness 6.5 Waste management hierarchy 225 are needed 172 6.6 Qatar’s existing and prospective plans for waste 5.6 Qatar will adopt a policy-making approach in the best management 226 interest of children’s well-being 173 6.7 Qatar’s biodiversity management framework is 5.7 The labour force participation rate of Qatari women contingent on the availability of a comprehensive rose sharply from 2001 to 2009 174 biodiversity database 228

viii Qatar National Development Strategy 2011–2016 6.8 Integrated water management across the value chain 235 4.2 Enrolment in technical education and vocational training 6.9 Environmental sustainability is both a goal and an at the secondary level as a share of total in Qatar is very enabler to achieve the aspirations of Qatar National low compared with most benchmark countries, 2008 150 Vision 2030 237 4.3 Benchmark marginal rates of return for Qataris are high 7.1 Current organization structure of Qatar’s public sector at the post-secondary level 158 institutions 243 5.1 Qatar’s social protection system is supported by 7.2 Performance management provides dynamic links multiple institutions and organizations 180 between drivers and levers to achieve public sector 5.2 Various civil society organizations support Qatar’s social excellence 244 protection system 181 7.3 Mapping Qatar’s public sector institutional 5.3 A threshold-relative national poverty line helps modernization journey 245 identify those in need, 2006/2007 182 7.4 Project approach leading to prioritized and sequenced 5.4 Evidence shows that low income is a particular problem modernization programmes 247 for larger households—relatively few income earners 7.5 Self-assessed public sector performance 248 support many dependents, 2006/2007 182 7.6 Constructing a public sector performance model 5.5 Crime has been relatively stable over time, but violations for Qatar 249 in immigration laws have increased markedly 189 7.7 Overview of best practices journey to modernization 250 5.6 Qatar’s crime rates are well below global average levels 189 7.8 The three phases of institutional development and 5.7 Qatar’s road traffic injury fatality rate is markedly higher modernization: a long-term journey 251 than the average for high-income countries 191 7.9 Focus areas with outcomes that will drive Qatar’s 5.8 Slightly more than a third of Qatar’s traffic fatalities public sector performance 251 involve pedestrians 191 7.10 Institutional development and modernization as an 5.9 Sports infrastructure owned by the Qatar Olympic enabler of all sectors 261 Committee and ASPIRE consists of various facilities 8.1 Assessing the impacts and feasibility of programmes around the country 199 and projects 267 5.10 The ratio of registered athletes to coaches has declined in most sports activities 202 Tables 6.1 Daily intervals reveal ozone levels that exceed safe 1 Qatar’s 20 key challenges 26 levels in Doha 222 4.1 Among employed Qataris, the highest share of unskilled 6.2 Qatar is ranked 58th in total carbon emissions but 1st are in the government sector and the highest share of in per capita carbon emissions 223 highly skilled in the private sector, 2009 150 8.1 Qatar’s 20 key challenges 266

Contents ix Supreme Oversight Committee for Implementing Qatar National Vision 2030

HH Sheikh Tamim Bin Hamad Al-Thani Heir Apparent of the State of Qatar Chair HE Sheikh Hamad bin Jassim bin Jabor Al Thani Prime Minister of the State of Qatar Deputy Chair HE Abdullah bin Hamad Al Attiyah Deputy Prime Minister and Chairman of the Emiri Diwan Member HE Dr. Ibrahim Ibrahim Secretary General, General Secretariat for Development Planning Member HE Sheikh Hamad bin Jabor bin Jassim Al Thani Director General, General Secretariat for Development Planning Rapporteur

Members of the National Development Strategy National Steering Committee

Name Agency Title HE Sheikh Abdulla bin Nasser bin Khalifa Al Thani Ministry of Interior Minister of State for Internal Affairs HE Yousef Hussein Kamal Ministry of Economy and Finance Minister of Economy and Finance HE Nasser bin Abdullah Al Humaidi Ministry of Labour Acting Minister of Labour HE Abdulla bin Mubark bin Abud Almudadi Ministry of Municipality and Urban Planning Minister of Municipality and Urban Planning HE Dr. Mohammed bin Saleh Al Sada Ministry of Energy and Industry Minister of Energy and Industry HE Sheikh Nasser bin Mohammed bin Abdul Aziz General Secretariat of Council of Ministers Minister of State for Cabinet Affairs Al Thani HE Sheikh Abd Al Rahman bin Khalifa bin Abd Al Ministry of Environment Minister of Environment Aziz Al Thani HE Nasser bin Abdullah Al Humaidi Ministry of Social Affairs Minister of Social Affairs HE Saad bin Ibrahim Al Mahmoud Supreme Education Council Minister of Education; Secretary General, Supreme Education Council HE Abdullah bin Khalid Al Qahtani Supreme Council for Health Minister of Health; Secretary General, Supreme Council for Health HE Sheikh Jassim bin Abdul Aziz Al Thani Ministry of Business and Trade Minister of Business and Trade HE Sheikh Abdullah bin Saud Al Thani Qatar Central Bank Governor, Qatar Central Bank HE Dr. Ibrahim Ibrahim General Secretariat for Development Planning Secretary General, General Secretariat for Development Planning HE Sheikh Hamad bin Jabor bin Jassim Al Thani General Secretariat for Development Planning Director General, General Secretariat for Development Planning HE Sheikha Hessa bint Hamad bin Khalifa Al Thani* Supreme Council for Family Affairs Chairperson, Supreme Council for Family Affairs

* Her Excellency Sheikha Hessa bint Hamad bin Khalifa Al Thani became a member of the NSC in December 2009.

x Qatar National Development Strategy 2011–2016 Members of the Executive Groups

Name Agency Title Economic development, sustainable economic prosperity HE Yousef Hussein Kamal Ministry of Economy and Finance Minister of Economy and Finance HE Sheikh Jassem bin Abdul Aziz Al Thani Ministry of Business and Trade Minister of Business and Trade HE Sheikh Abdul Rahman bin Khalifa bin Abdul Aziz Al Thani Ministry of Municipality and Urban Planning Minister of Municipality and Urban Planning HE Sheikh Abdullah bin Saud Al Thani Qatar Central Bank Governor, Qatar Central Bank HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani General Secretariat of Council of Ministers Minister of State for Cabinet Affairs HE Dr. Mohammed bin Saleh Al Sada Ministry of Energy and Industry Minister of Energy Affairs HE Dr. Ibrahim Ibrahim General Secretariat for Development Planning Secretary General, GSDP (GSDP) HE Sheikh Hamad bin Jabor bin Jassim Al Thani GSDP Director General, GSDP Human development, educated and capable population HE Saad bin Ibrahim Al Mahmoud Supreme Education Council Minister of Education; Secretary General, Supreme Education Council HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani General Secretariat of Council of Ministers Minister of State for Cabinet Affairs HE Dr. Ibrahim Ibrahim GSDP Secretary General, GSDP HE Sheikh Hamad bin Jabor bin Jassim Al Thani GSDP Director General, GSDP Human development, healthy population HE Dr. Mohammed Ghanem Al Ali Al Maadheed Supreme Council of Health Member, Supreme Council of Health and its Executive Committee; Vice Chairman, Qatar Red Crescent Society HE Abdullah Khalid Al-Qahtani Supreme Council of Health Minister of Health; Secretary-General, Supreme Council of Health HE Dr. Ibrahim Ibrahim GSDP Secretary General, GSDP Dr. David Kerr Sidra Medical and Research Centre Senior Advisor Human development, effective Qatari participation in a productive labour force HE Nasser bin Abdullah Al Humaidi Ministry of Labour Acting Minister of Labour HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani General Secretariat of Council of Ministers Minister of State for Cabinet Affairs HE Dr. Ibrahim Ibrahim GSDP Secretary General, GSDP HE Sheikh Hamad bin Jabor bin Jassim Al Thani GSDP Director General, GSDP Social development, caring and cohesive society HE Sheikha Hessa bint Hamad bin Kalifa Al Thani Supreme Council for Family Affairs Chairperson, Supreme Council for Family Affairs HE Sheikh Abdulla bin Nasser bin Khalifa Al Thani Ministry of Interior Minister of State for Internal Affairs HE Nasser bin Abdullah Al Humaidi Ministry of Social Affairs Minister of Social Affairs HE Dr. Hamad bin Abdulaziz Al Kuwari Ministry of Culture, Arts and Heritage Minister of Culture, Arts and Heritage HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani General Secretariat of Council of Ministers Minister of State for Cabinet Affairs HE Dr. Ibrahim Ibrahim GSDP Secretary General, GSDP HE Sheikh Hamad bin Jabor bin Jassim Al Thani GSDP Director General, GSDP Environmental development, environmental sustainability HE Sheikh Abd Al Rahman bin Khalifa bin Abd Al Aziz Al Thani Ministry of Environment Minister of Environment HE Sheikh Nasser bin Mohammed bin Abdul Aziz Al Thani Ministry of Municipality and Urban Planning Minister of Municipality and Urban Planning HE Dr. Ibrahim Ibrahim GSDP Secretary General, GSDP HE Sheikh Hamad bin Jabor bin Jassim Al Thani GSDP Director General, GSDP

National Development Strategy 2011–2016 team xi Task team chairs

Name Agency Title Task team Mr. Muftah Jassim Al Muftah Ministry of Economy and Finance Director, Revenues and Taxes Economic Management Department Eng. Ibrahim Abbas Hassan Ministry of Municipality and Former Director, Department of Economic Infrastructure Urban Planning Transportation and Infrastructure Planning Sector Mr. Mishaal bin Jabor Al Thani Qatar Petroleum Senior Economist Natural Resource Management Mr. Nasser Jarallah Al Marri Ministry of Business and Trade Director, Business Development Economic Diversification and Private Sector Department Growth HE Dr. Mohammed Ghanem Al Ali Supreme Council of Health Member, Supreme Council Healthcare Al Maadheed of Health and its Executive Committee Dr. Juliet Ibrahim Supreme Council of Health Director, Planning and Healthcare (Chair of the Planning Team) Assessment Department Dr. Hamda Al Sulaiti Supreme Education Council Director, Evaluation Institute Education and Training Mr. Hussein Yousef Al Mulla Ministry of Labour Undersecretary, Ministry of Labour Population, Labour Force and Qatari Employment HE Noor Al Malki Supreme Council for Family Affairs Secretary General Family Cohesion and Women’s Empowerment Mr. Ahmed Nasr Al Nasr Ministry of Social Affairs Assistant Undersecretary, Social Protection Ministry of Social Affairs Brigadier Abdullah Mohammed Ministry of Interior Director General, Civil Defense Security and Public Safety Al Suwaidi Mr. Khalid Al Mohannadi Qatar Olympic Committee Assistant Secretary General for Sports Technical Support Mr. Khalid Yousef Al Mulla Ministry of Culture, Arts and Director, Youth Affairs Deptartment Culture Heritage Mr. Yousef Ibrahim Al Hamar Ministry of Environment Director of Water Department Environmental Sustainability Dr. Saleh Al Nabit General Secretariat for Director, Department of Institutional Development and Development Planning Institutional Development Modernization

General Secretariat for Development Planning management support

Name Department Title HE Dr. Ibrahim Ibrahim Secretary General’s Office Secretary General HE Sheikh Hamad bin Jabor bin Jassim Al Thani Director General’s Office Director General Dr. Saleh Al Nabit Department of Institutional Development Director, Department of Institutional Development; Director, NDS Project Management Office Dr. Richard Leete Department of Social Development Director, Department of Social Development Dr. Frank Harrigan Department of Economic Development Director, Department of Economic Development Mr. Hamad Al Athba Joint Services Department Acting Director, Department of Shared Services Ms. Asma Nassrallah Mirzaei Joint Services Department Head, Information Technology Office; Head, Communications and Public Relations Unit

xii Qatar National Development Strategy 2011–2016 The National Development Strategy 2011–2016 has The data for the figures and tables in the National been distilled from 14 sector strategies and back- Development Strategy have been derived from the ground reports prepared by the Task Teams under sector strategies listed here and from their related the guidance of the Executive Groups and the background reports. supervision of the National Steering Committee.

National Development Strategy 2011–2016 Sector Reports

Name Agency Culture Sector Strategy 2011–2016 Ministry of Culture, Arts and Heritage and General Secretariat for Development Planning (GSDP) Economic Diversification and Private Sector Development Ministry of Business and Trade and GSDP Economic Infrastructure Ministry of Municipality and Urban Planning and GSDP Economic Management Ministry of Economy and Finance and GSDP Education and Training Sector Strategy 2011–2016 Supreme Education Council and GSDP Environmental Sector Strategy 2011–2016 Ministry of Environment and GSDP Family Cohesion and Women's Empowerment Sector Strategy Supreme Council for Family Affairs and GSDP 2011–2016 National Health Strategy 2011–2016 Supreme Council of Health and GSDP Institutional Development and Modernisation Report General Secretariat for Council of Ministers and GSDP Labour Market Sector Strategy 2011–2016 Ministry of Labour and GSDP Natural Resource Management Qatar Petroleum and GSDP Public Safety and Security Sector Strategy 2011–2016 Ministry of Interior and GSDP Social Protection Sector Strategy 2011–2016 Ministry of Social Affairs and GSDP Sports Sector Strategy 2011–2016 Qatar Olympic Committee and GSDP

National Development Strategy 2011–2016 team xiii Executive summary Executive summary Executive summary

Qatar National Vision 2030 (QNV 2030), launched in October 2008, builds a bridge from the present to the future. It aims to transform Qatar into an advanced country, sustaining its development and providing a high standard of living for all its people—for generations to come. It foresees a vibrant and prosperous Qatar with economic and social justice for all. It envisages all Qataris working together in pursuing these aspirations, with strong Islamic and family values guiding their collective energies.

QNV 2030 builds on a society that promotes jus- the Qatari people. Illuminating the choices avail- tice, benevolence and equality. It embodies the able, it inspires Qatari people to develop a set of principles of the Permanent Constitution, which common goals related to their future, and it pro- protects public and personal freedoms, promotes vides the framework for Qatar’s National Develop- moral and religious values and traditions, and ment Strategy 2011–2016. guarantees security, stability and equal opportunities. In line with these principles, Qatar National Qatar’s management of its hydrocarbon resources Vision 2030 (QNV 2030) rests on four pillars: will continue to secure improvements in standards of living, but those improvements cannot be the Human development—to enable all of Qatar’s peo- only goal of society. The National Development ple to sustain a prosperous society. Strategy 2011–2016 thus aims to balance five major challenges identified inQNV 2030: Social development—to maintain a just and caring society based on high moral standards and capa- First, moulding modernization around the preser- ble of playing a prominent role in the global part- vation of Qatari culture and traditions. nership for development. Second, balancing the needs of this generation Economic development—to achieve a competitive and those of future generations. and diversified economy capable of meeting the needs of, and securing a high standard of living Third, managing growth and avoiding uncon- for, all its people for the present and for the future. trolled expansion.

Environmental development—to ensure harmony Fourth, matching the size and quality of the among economic growth, social development and expatriate labour force to the selected path of environmental protection. development.

QNV 2030 thus defines broad future trends and Fifth, aligning economic growth with social devel- reflects the aspirations, objectives and culture of opment and environmental management.

2 Executive summary

Formulating the National Development inputs, focus on the results to be achieved by 2016. Strategy 2011–2016 Both quantitative and qualitative, they will be reviewed and refined, as necessary, by key stake- This National Development Strategy 2011–2016, holders at the beginning of programme and pro- Qatar’s first, is the culmination of extensive stake- ject implementation. holder consultations, dialogues and analyses. The positive and unprecedented engagement of multi- The sector strategies provide indicative resource ple sectoral and intersectoral stakeholders reflects a requirements for each programme and project— genuine desire for reform that is in the best interest identifying the key stakeholders in the projects and of the country. The consultation process began with the risks and mitigation measures for successful ministers and key leaders from government, private implementation. Especially important, each strategy sector and civil society and moved out into society. contains a basic monitoring and evaluation frame- Reflecting the broad reach of the Strategy, cross- work, supported by selected monitorable indica- sectoral task teams comprised representatives from tors, to enable adjustments during implementation. government ministries, agencies, private companies and civil society organizations. The extensive Qatar’s National Development Strategy 2011–2016 intersectoral consultations, including interviews, is a plan of action. It presents new initiatives while discussions, debates and research, were important building on what already exists. For projects, poli- for building a strategy that would enjoy strong and cies and institutions already under way, it provides positive public ownership from the outset. added impetus and focus.

The Strategy builds on situational analyses, diag- Achievements and the outlook for nostics, regional and international benchmarking 2011–2016 and detailed strategies for each of 14 sectors. The situational analyses identified priority areas using Qatar has built a solid foundation for embark- baseline analyses of Qatar’s situation and bench- ing on the National Development Strategy 2011– marking against best practices in other countries, 2016. Rapid growth in the 2000s, the fastest in the both in the region and around the world. The 14 world, has given Qatar one of the world’s highest sector strategy reports identify the priority areas levels of per capita income (measured in purchas- and the many transformation initiatives to support ing power parity terms). High saving, both pri- each proposed programme and project, including vate and public, has been reflected in substantial core requirements, responsibilities, timelines and domestic investment and the accumulation of a key indicators. substantial pool of foreign currency assets.

Aligned to the QNV 2030 goals, the programmes To meet new demands in a more complex econ- and projects identified in the National Develop- omy and to strengthen performance, Qatar has ment Strategy 2011–2016, including outcomes and embarked on a variety of reforms. The reforms targets, are from the 14 sector strategies. Developed aim to bring together decisions of national sig- through an extensive consultative process and tak- nificance within an integrated framework for ing into account the many cross-sectoral links, the making deliberate and concerted choices about strategies provide profound and transparent anal- Qatar’s future. At an operational level the reforms ysis, benchmarking, diagnostics and priorities for emphasize improvement in public services and each of the programmes and projects at a much delivery of “value for money”, thereby enhancing more detailed level than is possible in this Strategy. opportunities and conditions for the country as a whole as well as for individual citizens. By clarify- The targets in the Strategy, a subset of those in the ing national development priorities and direction, sector strategies and developed with stakeholder the reforms provide greater predictability for the

Executive summary 3 private sector and civil society, leading to better engineering. Qatar’s financial sector has also seen alignment of interests across the country. rapid development serving the needs of a larger and more complex economy. A significant rationalization of the functions and roles of ministries and agencies is under Physical investments have fast caught up with needs. way, aimed at promoting tighter policy cohesion, Bottlenecks in infrastructure, which contributed improving service delivery, eliminating waste and to high project costs and inefficiencies, are being enhancing public sector accountability and per- tackled across a broad front. Investments in health- formance. Implementing these changes across the care have been significant, supporting workforce whole of government is now proceeding, with the productivity and fostering social cohesion. Thanks General Secretariat of the Council of Ministers to the heavy investments in high-quality health having been given the mandate for planning and services and delivery systems, mortality levels have performance monitoring across government. An declined markedly, and the prospects of survival at initiative of particular importance is the expan- vulnerable ages have improved. A diverse complex sion of the role of the former Ministry of Finance of health facilities now meets widely divergent and to include economic policy support, advice and often highly specialized needs, supported by more coordination. In recognition of this expanded than 13,000 personnel, almost all with specialist mandate, the Ministry was renamed the Ministry medical and technical skills. of Economy and Finance in 2008. Education and training investments have also been To look ahead towards the longer run development significant. Recognizing deficits in its education sys- needs of the state, the General Secretariat for Devel- tem and in broader capabilities within the country, opment Planning was created in 2006 and given Qatar has invested heavily. Government education responsibility for managing longer term develop- spending has steadily increased to about 5% of GDP ment planning. It was mandated by Emiri Decisions in 2008, making Qatar second only to Saudi Arabia 39 and 50 to coordinate the formulation of QNV among Gulf Cooperation Council countries on this 2030 and to support implementing ministries and metric. Tertiary initiatives include expanding the agencies in executing it. QNV 2030 was completed in Qatar Foundation Campus, reforming Qatar Uni- 2008, and now, this document, Qatar’s first National versity, creating a new community college and intro- Development Strategy 2011–2016, has been formu- ducing vocational and technical education streams. lated and approved by the country’s high authorities. Although these new directions are expected to be The trajectory of Qatar’s economy is tightly linked beneficial and supportQNV 2030, they have suf- to developments in the hydrocarbon sector. fered from a lack of integration and alignment. In Hydrocarbons still dominate the economic land- addition, some measures have taken place only on scape, but Qatar is branching out into new areas. paper or suffer from lags in implementation. While Qatar’s National Development Strategy 2011–2016 A supply of cheap hydrocarbon feedstock and will leverage existing initiatives, it must also pro- energy has helped prime the development of vide a framework that can fill gaps and provide downstream industries in the petrochemical and effective integration and alignment across sectors. metallurgy sectors, with some subsectors, such as fertilizers, growing at a fast clip. A foothold has Economic outlook broadly favourable also been established in new areas, including air transportation and media services. The Qatar Sci- Qatar’s economic outlook for 2011–2016 is broad- ence and Technology Park now tenants more than ly favourable, with the global recovery continu- 30 ventures in such areas as life sciences, oil and ing, thanks to robust growth in emerging mar- chemicals, environment, electronics and software kets and rebounding world trade. The growth of

4 Qatar National Development Strategy 2011–2016 Executive summary hydrocarbon income will tail off in 2012–2013 as to around 6% of GDP by 2016, still very healthy. Qatar’s highly successful 20-year investment pro- Double-digit surpluses could be maintained if rev- gramme in hydrocarbons culminates. Further sig- enue sources expand. The current account bal- nificant investment in hydrocarbons must await ance will remain firmly in surplus. expiration of the moratorium on production in the North Field, which is not expected before Modest increases in population will accompany the the end of 2015. Declines in crude oil production expected economic expansion. The total popula- can also be expected as 2016 approaches, though tion of Qatar is expected to grow steadily at an aver- efforts are under way to stem them. age of about 2.1% a year during 2011–2016, with the total population rising from 1.64 million at the end While growth in 2012–2016 will be at a lower pitch of 2010 to just less than 1.9 million in 2016. The than in the earlier years, income levels will remain rapid population growth of the recent past is not high, and robust expansion of the nonhydrocar- expected to continue. This assumption aligns with bon economy will help support aggregate GDP the conjectures on output growth (above), but sees growth. Transport and communications, along some advances in productivity, reducing employ- with business and financial services, could grow ment per unit of output. The assumed structural vigorously. Construction will grow steadily, and shift to higher valued economic activity presuppos- manufacturing performance should improve. es steady advances in the skill content of the labour With the nonhydrocarbon sector expected to pick force and further capital deepening. up the reins, aggregate GDP growth in 2012–2016 is expected to average just over 5%, but with vir- Swing factors could change the outlook tually no contribution coming from hydrocarbons. The real domestic income generated by this Predicting the future is always a hazardous activi- growth will still depend on the trajectory of hydro- ty, and some swing factors could materially change carbon prices, which have a decisive influence on the outlook. Of particular interest to Qatar is the Qatar’s terms of trade. The baseline assumes some outlook for hydrocarbon prices. For a hydrocar- modest gains over average prices in 2010. bon-based economy like Qatar, a future of low hydrocarbon prices (at least in the medium term) Qatar’s investment pattern will reflect the decline would have a considerable impact on the financial in hydrocarbon capital spending. During 2011– resources available, with implications for sustain- 2016, total gross domestic investment might be able growth paths. about QR 820 billion. Of this amount, perhaps half will come from the nonhydrocarbon sector. A view that crude oil prices will average about $74 Central government (“public”) investment is esti- per barrel during 2011–2016 alters the baseline mated at QR 347 billion. Based on current plans, outlook (which assumes an average of $86 per bar- public infrastructure spending will peak in 2012. rel). Applying the lower oil price assumptions sug- This trajectory reflects existing plans for the gests that the average nominal GDP level would launch of mega projects. shrink 2% relative to its baseline level by 2016. With expenditure more or less tracking GDP as in The government’s fiscal position is expected to the baseline, the overall fiscal balance narrows. By remain strong and will certainly be adequate to 2016 the assumption of lower oil prices cuts the support future capital investments and the ini- overall fiscal balance from just under 6% of GDP tiatives under the National Development Strat- to about 4%. egy 2011–2016. Gross national savings are likely to remain above 40% of GDP through 2014, but Gas prices could be an even more significant might edge down in the later years. The overall swing factor. In spot markets, gas and oil prices fiscal balance would narrow from current highs have uncoupled. Although Qatar is shielded from

Executive summary 5 short-term fluctuations in spot gas prices through The impacts would likely be temporary, and the gov- its long-term agreements with purchasers, pro- ernment will monitor them to prevent abuse of mar- longed weaknesses could put the price of Qatar’s ket power and protect the broader public interest. liquefied natural gas price basket under pressure. If gas prices are assumed to fall by 30% from their From the perspective of Qatar’s economic diver- baseline (a modest decline compared with what sification ambitions, the World Cup presents new has been experienced in spot markets) negative opportunities for the country. Public-private part- income and fiscal effects would follow. Because nerships may benefit some projects and should be the share of liquefied natural gas in total output considered within wider public investment deci- will rise over the period, the impact of falling pric- sions. On the business front the World Cup will cre- es on income is large. Cumulative losses over the ate opportunities for domestic enterprises to form period are QR 357 billion, a 9% reduction from strategic alliances externally and to connect to glob- the baseline level of cumulative GDP. The overall al value chains. The World Cup will also accentuate fiscal balance under these assumptions for lower some challenges. Qatar should leverage the World gas prices, with expenditure held steady, could be Cup to close gaps in its capabilities. For example, reduced to 3.4% of GDP by 2016, more than 2 per- investment agreements could include mechanisms centage points lower than the baseline. that secure knowledge and technology transfer.

In addition to coping with uncertainty, Qatar will As mentioned, though some World Cup–related face hard constraints on human and institutional investment projects may be commissioned during resources that could affect implementation of the 2011–2016, the added impact of World Cup activ- National Development Strategy 2011–2016. Qatar ity during this period is likely to be modest. A size- needs strengthened public sector institutions to able pipeline of investments is already in place. In achieve the goals of QNV 2030. That will require general, the macro-fiscal framework suggests that concerted institutional and organizational capac- additional investment spending (whether public ity building, efficient and transparent delivery of or private) is likely to have only a moderate short- public services, fruitful public-private cooperation run demand impact on local output and income. and partnerships as well as a vibrant climate for business and a larger space for civil society. After 2012, when the current expansionary phase of hydrocarbon development ends, calculations sug- FIFA World Cup 2022 and higher government gests that the structure of Qatar’s economy will be spending? such that 5 percentage points of additional public sector investment spending would be needed to gen- Hosting the FIFA World Cup 2022 presents Qatar erate a 0.5 percentage point temporary acceleration with new opportunities. Over the early part of 2011– of growth in nonhydrocarbon output. The domes- 2016 the economic impacts of the World Cup are tic income generated by added capital spending is likely to be modest, but Qatar must prepare for the diluted because a high proportion of the spending sizeable investments in infrastructure that will fol- is likely to be on imports (capital goods and mate- low. These investments will be significant relative to rials as well as consumption) and because a large the size of the economy, and their macroeconomic share of wage income earned by expatriate workers and longer term development impacts warrant close is likely to be remitted rather than spent locally. attention. Well beyond 2022, the World Cup may present opportunities to strengthen the structure The fiscal impacts of higher public investment and performance of Qatar’s nonenergy sectors. spending could be significant because it is unlikely to generate much of a tax offset. There is also a risk In the immediate future (2011–2012) the World of inflationary pressures if the phasing of large-scale Cup could affect trade and speculative investment. projects creates or aggravates supply bottlenecks.

6 Qatar National Development Strategy 2011–2016 Executive summary

During the period covered by the National Devel- declines in production or reduced unit rents), alter- opment Strategy 2011–2016, preparations for the native sustainable sources of income must be creat- World Cup will gather momentum. Institutional ed to support public consumption and cover Qatar’s arrangements for overseeing and managing World import bill. This will require high rates of saving Cup–related activities will be established, and the and a steady flow of dividends on investments for pipeline of investments to deliver needed infra- the foreseeable future. A conjunction of far-sighted structure services will be prepared. From a plan- depletion policies, sound fiscal management and ning perspective the World Cup is best considered wise investment will support sustainability. within the broader framework of national development and not as a one-off event. Integrating plan- Qatar’s planned investments in physical and social ning and funding arrangements within broader infrastructure are an essential part of a broader frameworks for the overall fiscal and budgetary strategy to ensure continuing expansion of its pro- management of the economy will be important. ductive base, and to attract further investments A beneficial legacy will require scrutiny of large from the private sector. Qatar’s infrastructure World Cup–related capital projects for their long- needs will in general be well met through 2016. term socioeconomic and environmental impacts. Major investments are in the pipeline, and attention is being given to areas where the country must Sustaining economic prosperity catch up (as in roads, industrial land and information and communication technology). Qatar’s QNV 2030 articulates three interrelated goals for investment in foreign currency assets is also an the economy. It looks to sustain a high standard of important part of its broader strategy to diversify living, to expand innovation and entrepreneurial its future income base. capabilities and to align economic outcomes with economic and financial stability. Because Qatar’s hydrocarbon assets are property of the state, the government has a responsibility to It defines sustainability as meeting the needs of maximize the value it captures from their exploi- the current generation without compromising the tation. It may do this through fiscal measures, con- ability of future generations to meet their needs. tract arrangements or some combination of both. To embed sustainability in Qatar’s economy, pro- In principle, the state will strive to capture all gress is needed in three parallel, mutually rein- rents embodied in the mineral assets it owns and forcing directions. First, the country will enlarge to ensure an adequate return on any capital that it the value of the productive base, which is neces- invests. If hydrocarbon rents are efficiently target- sary to sustain prosperity in a growing popula- ed, the volume of private investment should not be tion and to expand potential for future genera- affected (investment neutrality) because private tions. Second, the government will guard against investors will still earn their required risk-adjusted economic instability and promote increased effi- rate of return. But while the principle of optimal ciency. Third, the government will work in part- rent capture and investment neutrality will contin- nership with the private sector to diversify the ue to serve as a useful guideline, pragmatism will economy and encourage a culture of innovation require the application of frameworks that reflect and discovery. reality and can be implemented.

Expanding the productive base In the future, as in the past, the government will ensure that the structures governing hydrocarbon- The need to grow the productive base places speed linked investments, upstream and downstream, limits on what the country can consume while pre- provide adequate flexibility to deal with project serving wealth for future generations. As Qatar’s specifics and changing cost or market conditions. hydrocarbon income tapers off (either through Equitable risk-sharing arrangements will also be

Executive summary 7 important. While the state will take all steps to planning prey to high levels of uncertainty. For a eliminate sources of risk within its control, the hydrocarbon-exporting economy such as Qatar, elimination of operational or commercial risks energy price shifts hit the fiscal revenue stream through state guarantees or other means will be directly, creating ripple effects throughout the detrimental if it dilutes incentives for the private economy. The inherent unpredictability of ener- sector to perform. In cases where hydrocarbon gy prices makes it particularly difficult for poli- rents are shared with private investors, the state cy-makers to judge the most constructive fiscal will seek to ensure that these rents are compensat- stance. There is always the risk that errors in fiscal ed by other benefits that flow to the country (such calculations accentuate volatility. Given the unpre- as the acquisition of technology, infrastructure or dictability of global oil prices, it is virtually impos- knowledge and skills). sible to know whether price changes are temporary or lasting. Recognizing the challenges, and Qatar will leverage its cheap domestic feedstock the need for high levels of saving and a broader and energy to contribute to the expansion of its fiscal base, the government will launch a budget productive base and long-run diversification. The reform programme, built around a reorganization relevant test is that associated investments provide of the Ministry of Economy and Finance. The key an acceptable risk-adjusted return on the totality goal is successfully implementing a comprehensive of the resources committed by the state. Several legal and budgetary framework for public finance, opportunities exist. Industries that gain advan- consistent with the Permanent Constitution. tage by eliminating transport and distribution costs and relocating closer to sources of energy A fiscal transformation programme with five core and feedstock provide one avenue for investment. elements will support this goal: Another long-term opportunity would be to inte- • A new budgetary law embodying the principles grate along the energy supply chain. For example, of efficient public finance. Qatar might export surplus power generated from • A functional classification for all spending gas to the region and beyond. Potentially Qatar using the United Nations Classification of enjoys advantages in areas that would be viable Functions of Government to support sector even if the country had no domestic hydrocarbon wide and programmatic budgeting. production. Qatar has an established advantage • A macro-fiscal framework that helps deci- in production and transportation and a poten- sion-makers analyse the fiscal and macroeco- tial advantage in vertical integration of connected nomic implications of commitments they are activity in distribution and storage. considering. • A public investment programme to ensure that Qatar Petroleum Industries and other entities in capital projects deliver the highest social worth the energy sector have performed well in spear- and are well coordinated. heading investments, but as Qatar works to diver- • A monitoring and evaluation function. sify its economy beyond carbon, a strengthened policy and coordination function may be useful. Meeting these commitments over the next six years In some other countries high-level independent will require institutional adjustments and concerted agencies have played central roles in advising gov- capacity strengthening, as well as the recruitment of ernment and in implementing investment and technical experts in the Ministry of Economy and industry development policies. Finance and in line ministries and agencies. Partly because of limited expertise in Qatar in macro-fis- Enhancing economic stability cal policy and strategic and operational planning, the five-step programme will be rolled out gradu- Hydrocarbon dependency exposes Qatar to gyra- ally, at a pace the Ministry of Economy and Finance tions in global energy markets, leaving economic and other arms of government can manage.

8 Qatar National Development Strategy 2011–2016 Executive summary

A coordinated public investment programme develop deeper and more liquid money and bond will strengthen the government capital budget by markets. The monetary and liquidity implications ensuring that project objectives are aligned with of fiscal and state-linked spending and investment the National Development Strategy 2011–2016. It decisions need to be better coordinated. The pos- will preserve and expand national wealth through sibility of establishing a new financial mechanism the prioritization and selection of capital projects to support fiscal stabilization objectives will also that create lasting value. It will address trade-offs be considered but cannot substitute for sound fis- among potential investments, committing resourc- cal policy. es where the benefit is greatest. Enhancing efficiency There are five basic requirements in establishing the public investment programme: Opportunities for efficiency gains proliferate, cut- • Formalize the programme through relevant ting across sector boundaries. By attacking ineffi- laws and instruments. ciency in technology, physical infrastructure, insti- • Create public investment units within suitable tutions and processes, the government can make a agencies, with capable staff. lasting contribution to improve the use of resourc- • Establish supporting processes and systems, es over time. With an abundance of hydrocarbon including technically sound appraisal and eval- resources but a scarcity of other vital resources uation techniques. such as water and arable land, a drive for efficien- • Implement capacity-building initiatives to cy is central to creating and capturing value, pre- strengthen project preparation, implementa- serving and expanding the productive base and tion and evaluation skills. encouraging the private sector to develop through • Pilot projects to test and refine key features of discovery and economic diversification. the public investment programme system. Improved efficiency has other benefits, too. By On a case by case basis, private sector participa- improving the use of capital assets, efficiency tion in public projects may prove beneficial. An measures save fiscal resources by deferring or increased private sector role can improve project eliminating the need for replacement investments and investment planning, management and opera- or capital expansion. Some efficiency gains reduce tions. The government will ensure that public-pri- waste and unwanted by-products such as carbon vate partnerships fit within the larger investment dioxide emissions and waste water, contributing to plan and provide a pathway for the transfer of environment goals. skills to the country. Few tangible aspects of Qatar’s life and economy The requirements to establish an effective pub- are as in need of efficiency reforms as water— lic investment programme process are similar to crucial to all human activity but in scarce sup- those to support budgetary reform. New systems ply. Large volumes of desalinated water (which is and processes will be required in the central func- expensive to produce in terms of power) are lost tions of government and in the line ministries and in distribution. Precious aquifer water is largely agencies making major capital spending decisions. wasted through open field irrigation methods for New legal and regulatory infrastructure may be crops of low value. Large volumes of wastewater go needed to support new roles, decision processes uncollected, untreated and unused. and institutional relationships. Qatar’s National Development Strategy 2011–2016 Other avenues for enhancing stability will receive identifies a range of initiatives to tackle technical attention. The Ministry of Economy and Finance and economic inefficiencies in the production, and Qatar Central Bank will work together to distribution and use of water. The implementation

Executive summary 9 challenges of water-saving initiatives vary. Stem- expected to last well into the future, improved effi- ming losses in the distribution system involves ciency creates both environmental and economic essentially technological fixes. Introducing water- gains. By burning less natural gas, Qatar would sup- saving devices to households is fairly straight- port the national goal of lowering carbon dioxide forward, as Abu Dhabi and Canada have shown. emissions, thereby reducing the country’s contribu- Encouraging the use of water-saving appliances tion to global climate change. Gas saved at home will require effective communication, but might can be sold overseas, increasing national income. also need supporting incentives. Water subsidies eclipse the scarcity and true value of the resource Infrastructure projects that commit significant and contribute to overconsumption and waste. financial resources will be reviewed within the User charges that more accurately reflect full eco- framework of Qatar’s new Public Investment Plan- nomic costs could make a significant contribution ning process. From a national development per- to redirecting Qatar’s precious natural resources spective an integrated portfolio view of proposed to higher value uses. Such efforts might be initially capital projects will consider their engineering, targeted at the non-Qatari population and indus- financial, economic, social and environmental trial and commercial users. dimensions within the wider context of development needs and priorities. As noted earlier, Qatar’s Changing water consumption patterns in agricul- infrastructure needs through 2016 will generally ture is vital to an integrated approach to water man- be well served by high-quality infrastructure. But agement, but it will require a fundamental and pro- some projects in the national infrastructure pipe- longed reorientation of farming, involving a range line appear to risk capital commitments that could of factors including government subsidies. Recharg- be substantially in excess of what is required to ing the aquifers with treated sewage effluent (if meet needs (including allowances for uncertainty shown to be technically feasible) would ease the and adequate safety buffers) well into the future. looming water scarcity. But without changes in irri- A review to identify and eliminate these inefficien- gation methods and crop mixes, farming would con- cies presents an opportunity for early wins for the tinue to make heavy demands on Qatar’s precious National Development Strategy. water resources. The government is committed to addressing this challenge and finding solutions Ongoing initiatives to improve regulatory and pro- within a wider programme of agricultural reform cedural efficiency will be strengthened, including and the development of an agro-food industry. those in the areas of foreign investment, implementation of competition legislation and customs A fully integrated approach to water management regulation. Efforts will also continue to enhance and a rethink of regulatory approaches are nec- the quality of regulation in other areas, such as essary to address these challenges. By 2014 Qatar industrial land. will have established an independent regulator to help accelerate reforms of the water sector. As Building a diversified economy desalinated water is coproduced with power, these new regulatory arrangements will be integrated Having achieved enormous gains by developing the with those for power. hydrocarbon sector, the government is poised to take on another significant challenge—diversifica- Although the country’s power needs are fully tion. A more diversified economy is inherently more served by a high-quality and reliable service, stable, more capable of creating jobs and opportu- Qatar could achieve greater efficiencies through nities for the next generation and less vulnerable technical enhancements. Together, the chang- to the boom and bust cycles of oil and natural gas es could substantially cut domestic gas consump- prices. Qatar, like other countries seeking diversifi- tion. Although Qatar’s abundant gas supplies are cation, will build on areas of strength and potential.

10 Qatar National Development Strategy 2011–2016 Executive summary

Investing hydrocarbon income in foreign currency economic discovery and the birth of new econom- assets presents one important avenue for diversify- ic activities. The government fully recognizes that ing Qatar’s income. But exclusive reliance on for- it must ensure macroeconomic stability, regulatory eign currency asset income will not constitute a via- coherence and the effective delivery of infrastruc- ble, long-term development strategy. It would create ture services (all examined above) to stimulate new types of risk, leaving Qatar prey to the vicissi- investment. In addition, the push to build a more tudes of international capital markets. And it would diverse economy will require that special attention not address Qatar’s ambition to become an inquir- be directed to four areas that frustrate innovation ing, innovative and creative society. The develop- and enterprise start-ups: low demand for skills ment of a more diversified domestic economic base, amid surplus labour; a weak private sector and low with knowledge activities in generating productive levels of entrepreneurship; limited capabilities of and remunerative jobs, is necessary to expand capa- discovery and innovation; and weak regional inte- bilities and support wider societal objectives. gration and connectivity.

Diversifying the domestic output base is not a stroke- A variety of institutions will contribute to Qatar’s of-the-pen shift. Entrepreneurship and innovation diversification drive. These include Enterprise need to be learned, embedded in the education sys- Qatar, the Qatar Foundation, in which the Qatar tem and in the surrounding culture and supported Science and Technology Park is housed, the through business friendly policies and regulations. Supreme Council of Information and Communi- Qatar’s private sector will need strengthening, with cation Technology (ictQATAR), the Qatar Finan- support and incentives that encourage the acquisi- cial Centre and Qatar Development Bank. The tion of relevant capabilities and active participation strategies and programmes of these institutions in a wider range of economic activities. and the National Development Strategy 2011–2016 must be mutually supporting. Qatar is not alone in seeking a broader economic base. Other natural resource-based economies Among other initiatives to stimulate diversifica- around the world are trying to do the same. With- tion, a national plan will be prepared to accelerate in the Gulf Cooperation Council, Bahrain and the achievement of Qatar’s research and develop- Saudi Arabia are working on strategies to encour- ment target of 2.8% of government revenues. To age more diverse economies. Abu Dhabi also has a promote the development of the knowledge econ- comprehensive plan. omy and knowledge businesses, new forms of public-private partnerships will be trialled through a The fact that other countries are pursuing diversi- portfolio of pilot projects led by the Qatar Science fication strategies creates opportunities for cross- and Technology Park. Efforts to support private country learning. But there are also risks. Many sector development will be redoubled through the Gulf Cooperation Council countries are focus- new services provided by Enterprise Qatar and ing on diversification in the same areas, including Qatar Development Bank, that will target small petrochemicals, air transport, logistics, real estate, and medium-size businesses. ictQATAR will ini- knowledge services, finance, life science and tel- tiate projects that will ensure that Qatar is ready ecommunications. Depending on how these strat- for the digital age. To address the constraints egies evolve, the Gulf countries face the risk of imposed by geography and scale, the government channelling resources into the same sectors, with will leverage opportunities to strengthen regional each country falling short of achieving an efficient integration and connectivity. scale of production. But ultimately, the success of Qatar’s efforts to To accelerate the diversification agenda, the gov- graduate from an economy based on non-renew- ernment will address the constraints that impede able resource inputs to one in which productivity

Executive summary 11 growth and eventually innovation underpin pros- establishing a modern and comprehensive health- perity will require fundamental policy shifts that care system with effective and affordable services alter the incentives facing its citizens. To expand for the whole population. opportunities for citizens and to build local capabilities, Qatar must start the process of transform- The system will span physical and mental preven- ing itself into a high-wage private sector economy. tive and curative healthcare, taking into account the specific needs of men, women and children. Promoting human development High-quality services will be offered through public and private institutions operating under the The human development pillar of QNV 2030 calls direction of a national health policy that sets and for the “development of all its people to enable monitors standards for social, economic, adminis- them to sustain a prosperous society” and “to meet trative and technical aspects of healthcare. High- the needs of this generation without compromis- calibre research will be directed at improving the ing the needs of future generations”. Qatar will effectiveness and quality of healthcare. continue to invest in its people so that all can participate fully in the country’s social, economic and To deliver integrated services, Qatar’s national political life and function effectively within a com- health sector will shift the balance towards a pre- petitive knowledge-based international order. It is ventive, community-based model of care, focus- putting in place advanced health and education ing on the patient and ensuring access to the right systems that meet the highest global standards. It care, at the right time, in the right setting, by the is also supporting the productive participation of right team. The model will provide a full continu- Qatari men and women in the labour force, while um of care anchored on capable and trusted pri- attracting qualified expatriate workers in all fields, mary care providers in a healthcare system offer- with a growing emphasis on the higher skilled. ing the highest quality diagnostics and treatment.

This National Development Strategy 2011–2016 The primary care provider will be the patient’s first identifies the challenges in health, education and point of contact, overseeing referrals within the productive work. It also presents plans for meet- healthcare system, and considerable care will be ing those challenges by nurturing a healthy, long- delivered in the community. Coordination will be lived population, building world-class knowledge the norm in an integrated system, with healthcare and skills and fostering a capable and motivated providers working together to meet patient needs. workforce. The national health strategy defines key outcomes Nurturing a healthy population and activities for achieving the ultimate goals for the sector: Qatar is committed to building a world-standard • Build a comprehensive world-class healthcare sys- people-centred integrated healthcare system with tem by shifting the balance of care towards a pre- policies and care designed to meet the needs of its ventive and community-based model focusing on population. the patient and providing a full continuum of care anchored around a capable primary care system. The national health sector strategy—which builds • Establish an integrated system of high- on the Supreme Council of Health’s Qatar National quality healthcare through effective use of Health Vision 2020: Caring for the Future—Establishing information, communication and process a Healthy, Vibrant Society—provides a practical improvements. guide for reforms, with far-reaching and funda- • Embed prevention and early detection into all mental changes envisioned across the healthcare facets of the system and empower people to be system. It seeks to improve health outcomes by active participants in wellness, care and disease

12 Qatar National Development Strategy 2011–2016 Executive summary

prevention to shift the system from a focus on Education provides a solid grounding in Qatari treating the acutely ill to addressing chronic religious, moral and ethical values, in national diseases and their underlying risk factors. identity and in traditions and cultural heritage. • Recruit, retain and educate a high-quality Schools produce well-rounded and engaged citi- workforce—a modern, learning and support- zens and build more cohesive and participatory ed workforce—and overcome the constraints societies. Education also helps people make better posed by a shortage of healthcare profession- decisions about health, marriage, parenting and als in order to realize the goals of a world-class social responsibility. Finally, a successful educa- healthcare system. tion strategy supports innovation in science, medi- • Establish a robust policy and regulatory frame- cine and industry. work to guide the health sector and ensure quality and accountability. Qatar has made great strides towards creating a • Coordinate the planning and control of health- world-class education system, through the Edu- care infrastructure and finance to ensure effec- cation for a New Era reforms, begun after the tive and affordable services based on the prin- Supreme Education Council was established in ciple of partnership in cost sharing. 2002, and the reforms of Qatar University, begun • Ensure coordination and a regulatory frame- in 2003. In addition, Qatar Foundation’s Educa- work to support high-quality research for tion City has continued to expand and progress improving the effectiveness and quality of over the past decade, with the establishment of a healthcare through continuous knowledge-led cluster of top-class international universities that improvement, innovation and research. are helping to make Qatar a regional leader in innovative education and research. This strategy’s success will be determined by its implementation. It will also depend on collabo- Qatar’s education and training system will become ration with other sectors, with health as both a more integrated, stretching from early childhood goal and an enabler. The most critical cross-sec- education through to higher education and addi- toral link is in public health. Governments across tional training. Engrained in this system is the con- the world have recognized that public health is cept of lifelong learning, with individuals encour- the responsibility of all stakeholders, not just the aged to acquire education and update their skills healthcare sector. For Qatar this implies a preven- throughout their lives. This continuum spans three tive effort in which the Supreme Council of Health education sectors: general education (kindergarten cooperates with stakeholders across government. through grade 12), higher education, and technical These cross-sectoral links will be reflected as the education and vocational training. While each sec- Strategy moves into the next phase of validation tor has a distinct identity, mission and function, the and sector alignment. three sectors need to operate within an overarching framework that embodies policy-related princi- Building knowledge and skills ples. And both education and training must establish stronger links with Qatar’s labour market. As the Qatar economy diversifies from its reliance on gas and oil, success will depend increasingly on Further reform of Qatar’s education and training the ability to compete in a global knowledge econ- system will address quality, equity and inclusive- omy. Continuing substantial investments in edu- ness, and portability and mobility. These themes cating and training of Qataris will be critical to will guide policy decisions, along with variety and achieving the goals of the National Development choice. Strengthened reforms will tackle a num- Strategy 2011–2016. Beyond preparing citizens to ber of critical challenges and opportunities affect- be part of the country’s economic engine, educa- ing both supply and demand for education and tion and training offer multiple benefits to society. training. These include the underachievement in

Executive summary 13 math, science and English language at all levels, Supreme Education Council and improved quality and the need to strengthen education administra- standards. The ultimate goal is to allow all Qatari tion and the teaching profession. The educational students to participate, with school fees no longer curriculum needs to be more aligned to the needs a driving factor in school choice. Competition is of the labour market while being supportive of expected to emerge not only between independ- Qatari values. The system needs to offer multiple ent schools, but also between public and private pathways beyond secondary level to encourage a schools, thus promoting variety and choice. higher continuation rates. Portability and mobility, another key policy theme, Quality is critical in ensuring outcomes that also promotes variety and choice. Students and address the needs of current and future labour other stakeholders expect to have their qualifi- markets. The challenge arises in achieving consist- cations recognized by education and training ent and sustained quality across sectors. High-qual- institutes and employers to receive credit for pre- ity teachers, trainers and lecturers are a prerequi- vious studies. In addition, students and stakehold- site, making it mandatory that all sectors monitor ers expect flexible career and study pathways for teacher training, qualifications and professional entering and re-entering the education and train- development. The current high turnover of Qatari ing system without penalty. This approach maxi- and expatriate teaching staff must be reduced. mizes citizens’ flexibility in planning careers, unconstrained by life stage or location. Attention to quality will be part of establishing curricula, resourcing schools and training centres, To realize Qatar’s vision of providing opportunities improving information and communication tech- for citizens to achieve their full potential, Qataris nology and managing governance arrangements. It must be able to move easily among education and will contribute to improving attainment by students training options and between those options and the at all levels, particularly in science, mathematics workplace. No longer can education pathways be and languages. And it will support increased transi- considered a linear progression through a vertical tions to post-secondary studies. A major priority is to hierarchy of qualifications. Both vertical and hor- increase the share of students, especially males, who izontal pathways are needed, within and between pursue a tertiary education, which has high returns. sectors and institutions. A National Qualifications Framework will strengthen coordination and inte- Equity and inclusiveness also cut across the educa- gration of the education and training systems. tion and training sector. Related to lifelong learning, this principle should enable all people to acquire, Qatar has invested heavily in the best models of develop and update their skills throughout their education pratice and will continue to strive for lives. Appropriate training and education should optimum adaptation and consistency between basic be available and accessible to all. Meeting the stat- and higher education. This will ensure that a more ed aim of “accessible educational programmes for diversified economy has access to workers with lifelong learning”, in a context of participation and the required skills, while maintaining respect for inclusion, will require policies that overcome socio- Qatari cultural values and national heritage. economic barriers of gender, geography and age. The strategy for the education and training sector Important for inclusiveness is further expanding identifies 20 key outcomes, with 29 related projects: private schools. The popularity of private schools is rising among Qataris, who are increasingly paying For addressing core education and training issues: from their own resources to send their children to • Formulate a comprehensive, integrated 10-year international schools. Private schools saw increased strategic plan for all stakeholders, incorporat- enrolment after they became a responsibility of the ing quality, efficiency and inclusiveness.

14 Qatar National Development Strategy 2011–2016 Executive summary

• Strengthen Qatari values throughout educa- Fostering a capable and motivated workforce tion and training. • Support development of high-quality profes- Qatar’s transformation into a diversified knowl- sionals and institutions. edge economy with increased private sector partic- • Integrate information and communication tech- ipation depends on upgrading and deepening the nology in education and administrative processes. education, knowledge and skills of Qataris. Align- • Increase motivation and awareness of the ben- ing these economic objectives requires a transition efits of education. from the current low-skill, low-productivity and • Support evidence-based monitoring and low-wage economy to a high-skill, high-productivi- policy-making by key stakeholders. ty and high-wage economy.

For improving general education: Creating a more productive, skilled and moti- • Ensure universal access to high-quality K–12 vated labour force requires major labour market education. reforms, especially in ways that encourage Qataris • Consistently provide high-quality K–12 to participate in the private sector. Qatar’s private education. sector constitutes a small share of the economy • Support K–12 students to fulfil their potential. but has a big profile in employment— employing • Provide appropriate education options for chil- almost 80% of the workforce in 2009. dren with special needs. • Increase awareness of skills required in future With heavy concentrations of Qataris in the public work environments. sector and expatriates in the private sector, espe- • Improve parental, community and sectoral par- cially in construction and services, the labour mar- ticipation in K–12 education. ket is highly segmented. • Offer a broad range of basic education programmes for adults. Current employment sponsorship rules are affecting Qatar’s labour market. They provide an incen- For improving higher education: tive to recruit low-cost expatriate workers and a • Prepare Qataris for employment in the knowl- disincentive to Qatari employment and to auto- edge economy. mation. High levels of immigration support a low- • Offer alternative pathways to tertiary education. wage, labour-intensive, low-productivity economy. The cost of importing low-skilled expatriate work- For improving technical education and vocational ers is heavily subsidized. Further, sponsorship training: constrains the mobility of expatriates and thus • Develop an organizational model for technical their ability to respond to labour market signals. education and vocational training and build- A rigid labour market hampers the development ing capabilities. of a workforce commensurate with aspirations • Develop a regulatory framework to align tech- for a knowledge economy. Although unemploy- nical education and vocational training with ment rates have been low in recent years, there education sector and labour market needs. are concerns about under-employment and fall- • Align technical education and vocational training labour productivity, especially in construction ing programmes and outputs with the needs of and services. society and the labour market. • Increase the prominence of technical educa- To realize the QNV 2030 goal of a capable and tion and vocational training programmes. engaged workforce, young Qataris need to be motivated to take advantage of the many oppor- For improving scientific research: tunities for post-secondary education and train- • Achieve a higher level of scientific innovation. ing. Qatar will move from establishing numerical

Executive summary 15 targets for the employment of Qataris to empha- economy, so that expatriates can effectively men- sizing price and market-based mechanisms that tor and train young Qataris in all sectors. link wages with productivity. The 2009 Law on Human Resources Administra- Entrepreneurial development of Qataris, espe- tion will be reviewed and revised to reduce the dis- cially of youth and women, will be encouraged to couraging effect of labour force participation and increase their involvement in the private sector. the recruitment and retention of the expatriate Barriers to entrepreneurship will be studied and labour force. initiatives launched, including incentives, business training and capacity-building at home and To help realize labour market goals, the gov- abroad in areas relevant to labour market needs. ernment proposes major reforms over 2011– Increasing the participation of Qataris in the pri- 2016 to promote human capital development vate sector and reducing their dependence on for sustainable economic growth and to ena- public sector employment will entail narrowing ble the transition to a knowledge economy. the gaps in social allowances and conditions of The government also aims to increase labour work. market efficiency in matching labour supply and demand in the public and private sectors. A critical question is how much the wage gaps should narrow between Qataris and expatriates The reform measures will contribute towards eight and between public sector and private sector work- labour market sector outcomes. ers. So, wage, salary and social allowance packag- • Expanding high-quality training opportunities es, including pension schemes, in the public sector for Qataris. (public administration, government companies • Providing incentives for Qatari private sector and the mixed sectors) will be reviewed. employment. • Boosting labour force productivity. Training programmes will be demand-oriented • Attracting and retaining high-quality expatri- and revised to meet priority needs with attention ate talent. to content, quality and accreditation. Expanding • Nurturing and managing human resources. the role of employment and intermediary servic- • Improving labour market flexibility. es will reduce mismatches between labour supply • Building the evidence base for policy-making. and demand. Similarly, to cope with the needs of • Enhancing employment and career counselling changing labour markets, the government will services. offer incentives to employers and employees for lifelong learning through retraining. The ambitious targets for each of these outcomes require early, effective and sustained implemen- Policies on immigration, regulations, sponsor- tation of the reforms and associated measures if ship and licensing will be reviewed and revised, they are to be met by 2016. as appropriate, to create more strategic demand for expatriate workers in line with the aim of Integrating sound social development recruiting and retaining the right mix of expatriate labour. Qatar’s labour laws will be revised, as Qatar’s social development policy requires coor- necessary, to protect further the rights and safety dinated integration of five interrelated policy sec- standards of all expatriate workers within a com- tors: family cohesion and women’s empowerment, prehensive social protection framework and in social protection, public safety and security, and accord with international norms and standards. sports and culture. The aim is to bring different Career planning and professional programmes programmes, target groups and societal interests for targeted expatriates are critical in a knowledge under a single framework to support the QNV 2030

16 Qatar National Development Strategy 2011–2016 Executive summary social development pillar—to make Qatar a more of strong cohesive families, effective social care caring and cohesive society built on sound social and protection, sound social structure and inter- principles, for current and future generations. national cooperation. The National Develop- ment Strategy 2011–2016 lays the foundation for Integrating the policies of multiple interrelated these goals with a social development strategy to sectors within one strategy will benefit Qatar in enhance individual well-being without compromis- many ways as it pursues a progressive and mod- ing Qatar’s traditional cultural, Arab and Islamic ern social agenda while upholding traditional identity. family and cultural values. This approach will ensure careful consideration and proper respect Strengthening family cohesion of traditional Qatari culture and Arab identity, even as necessary advances are made in social The family is the basis of Qatari society, the foun- equality, protection and justice. Qatar’s fami- dation for all aspects of Qatar’s social structure. A lies must remain strong and cohesive and pro- dedicated commitment to marriage, a keen under- vide a supportive environment for all. At the standing of personal responsibility, an apprecia- same time, women must be given more opportu- tion of traditional values, a strong bond between nity to contribute to the economic and cultural parent and child, a sense of mutual respect among world without diminishing their role in the fam- all men, women and children—these are the char- ily structure. acteristics of healthy, cohesive families.

Just as all elements of a family must work together Qatar’s strong Arab and Islamic identity pervades to build a solid and stable household, all elements all aspects of family life and continues to inform of a social structure must work together to build the family structure, but changes brought on by a solid and stable society. The objectives for a for- external pressures and internal evolution are ward-looking integrated social development policy changing family dynamics. The changes point to will be achieved through cross-sectoral strategies a society that is expanding its cultural imprint and with the human, economic and environmental progressing in positive ways while staying true to development pillars. its Arab identity. Women are central to this positive, evolving nature of the Qatari family. Even as As Qatar continues to experience economic devel- they maintain an adherence to valuable traditions, opment and progress, and becomes more inte- women are adapting to the impacts of moderniza- grated into globalisation processes, the integrated tion. They exemplify the new opportunities avail- social policy of the National Development Strategy able to all Qataris as a result of the country’s rapid 2011–2016 will lead to stronger and more sustain- economic growth and social transition. able outcomes, including: • Strengthening family cohesion and women’s Traditional methods of family support, care and empowerment. unity will not be lost, even as Qatari society adjusts • Safeguarding social protection and promoting to new global realities. The government will work inclusive development. to assist families in caring for their members and • Enhancing public safety and security. maintaining moral and religious values and human- • Promoting an active and sporting society. itarian ideals. The government will also show an • Preserving and leveraging Qatar’s heritage and increased dedication to enhancing women’s capa- culture. bilities and empowering them to participate more fully in the political and economic spheres. By building a safe, secure and stable society through strong government and family institu- The National Development Strategy 2011–2016 tions, Qatar will achieve the QNV 2030 outcomes advocates for the adoption of a holistic approach

Executive summary 17 to child well-being. This approach will enable Through the National Development Strategy Qatar to interweave important policies to create a 2011–2016, the government will make a firm com- coherent spectrum of programmes for children of mitment to establishing a social protection system different ages to increase child well-being, leading that preserves the civil rights of all citizens, values to better human capital outcomes. their contribution to society and ensures an adequate income for them to maintain a healthy and Under this National Development Strategy 2011– dignified life. The current system provides gen- 2016, the government will support programmes erous support to citizens through various means, that: but it will be strengthened to ensure that all mem- • Strengthen the Qatari family as a pillar of bers of society, including the vulnerable and society. needy, have the opportunities to succeed through • Strengthen parental roles and reduce depend- expanded employment opportunities in an inclu- ence on domestic workers. sive society. • Reduce the incidence of domestic violence and protect and support families affected by it. In promoting moves from welfare to work, the gov- • Provide support systems for families with spe- ernment aims to create an enabling environment cial circumstances. to protect the disadvantaged and vulnerable and • Reduce economic and social vulnerability and to give them an opportunity to support themselves improve the financial management of Qatari and their families. families. • Increase child well-being, child welfare and Efforts will also be made to broaden partnerships, child protection. involving the private sector in the social protec- • Improve support for working families, particu- tion system. Common strategic directions and larly for women. sustainable solutions will be identified through • Increase the number of women in leadership Qatar’s corporate responsibility framework, seal- and decision-making positions while reducing partnerships between the private sector and ing the stereotyping of women’s roles and government and stakeholders of the social protec- responsibilities. tion system.

Safeguarding social protection and promoting During the period of the National Development inclusive development Strategy 2011–2016, the government will: • Put in place an integrated, progressive and The social capital of Qatari society includes the effective system of social protection. institutions, relationships, attitudes and values • Mainstream disadvantaged and vulnerable that govern interactions among people and con- groups into society and the workforce, ensur- tribute to economic and social development. In ing inclusive growth and development. these interactions, families are important and crit- • Leverage broad partnerships leading towards a ical, but they are complemented by the wider com- sustainable social protection system to ensure munity, including public and private institutions. that the business community supports and During times of rapid modernization and develop- contributes to the country’s social protection ment, social capital can change, potentially affect- system. ing those vulnerable to diminished income. Pro- tecting individuals from risks that may affect their Enhancing public safety and security abilities to contribute to society and offering assistance to individuals in need are the central com- Just as Qatar has a duty to provide its citizens with ponents of Qatar’s commitment to community a secure and stable society based on strong fam- care and career support. ilies and an inclusive social protection system, it

18 Qatar National Development Strategy 2011–2016 Executive summary has a duty to provide its citizens with a secure and • Improve building safety, including regular stable society based on effective public institutions monitoring of regulations. that guarantee public safety. A society that cares • Establish a high-level coordinated approach to for its citizens in a respectful and dignified way is national disaster management. a society that operates on the principles of justice, equality and the rule of law. Qatar is committed to Promoting an active and sporting society being such a society. QNV 2030 aspires to build a safe, secure and stable Qatar’s recorded crime rates are among the society and firmly commits to creating a vibrant world’s lowest, despite a massive increase in the and prosperous future for the country. From a country’s expatriate population. In 2010 Qatar social development perspective, fulfilling that ranked first within the Arab region, and 15th of vision begins with strengthening families and 149 countries globally, on the Institute for Eco- ensuring that all citizens are protected in their nomic and Peace’s Global Peace Index (GPI), homes, jobs and communities. The next step is to which takes into account public safety and security ensure long-term excellence beyond the essentials and the country’s external relations. of family and finances by enhancing the physical, emotional and intellectual well-being of individu- Qatar’s National Development Strategy 2011–2016 als, especially youth, through sports and culture. for enhanced public safety moves beyond the traditional security concept to embrace the con- Physical activity not only is a source of health and cept of human security and expands the scope of enjoyment for those who participate in sports, it protection. also is often a binding element in the social and cultural fabric of society, in communities and on The public safety and security sector’s efforts and the international stage. Qatar has enjoyed unprec- performance will be enhanced through a pro- edented global recognition in sports in recent gramme to improve the management of crime years. It invests heavily through the Qatar Olym- data. It will strengthen the evidence base for pic Committee and its partner clubs, sports feder- improved policy-making in support of Qatar’s ations and other strategic allies to provide sports criminal justice system. and recreation facilities, develop athletes, host international competitions and raise awareness of Road safety will continue to be a priority, and the the benefits of sports and physical activity. National Development Strategy 2011–2016 will build on current initiatives that have helped to Sports and physical activities will be incorporat- reduce road accident fatalities. Recognising that ed within a broader preventive health agenda. The more can be done to reduce road accidents, a National Development Strategy 2011–2016 will holistic safe-system approach towards road safety increase the opportunities and make available ade- will be undertaken, supported by cross-sectoral quate information for everyone, especially young partnerships. people, to be physically active, and create an enabling environment that supports and encourages In fulfilling its commitment to public safety and healthy and active lifestyles. The progression towards security, the government will: healthy and active lifestyles will further support and • Improve knowledge management of criminal promote local sports participation and development. information and data. • Reduce the number of road traffic accidents By developing an array of first-class sports facilities, resulting in deaths and major injuries. providing a structured and progressive develop- • Strengthen the national approach to occupa- ment pathway for national athletes and continuing tional health and safety. to host regional and international competitions

Executive summary 19 and events, Qatar will be well positioned to meet exceptional society. The National Development QNV 2030’s goal of tolerance, constructive dia- Strategy 2011–2016 will enable the cultural growth logue and openness through the common sporting of Qatar’s people and forge new international rela- principles of teamwork, fairness and excellence. tionships, while solidifying Qatar’s standing as a centre of Arab culture through its own distinctive Under the National Development Strategy 2011– national identity. 2016, the government will: • Educate and engage the public on the impor- The National Development Strategy 2011–2016 tance of healthy and active living and increase will also guide the development of a strong cultur- the opportunities for people of all ages and al evidence-base to support future cultural policy ability to take part in physical activity. development and improve decision-making in the • Ensure adequate, appropriate and accessible cultural sector. facilities for recreational and competitive sports. • Enhance talent development programmes for Under the National Development Strategy 2011– generating sporting success. 2016 the government will: • Increase demand and support for diverse cul- Preserving and leveraging Qatar’s heritage and tural activities. culture • Increase youth appreciation for and participation in culture. Despite rapid socioeconomic change over a rela- • Improve the management of cultural resources. tively short period, Qatari society has maintained • Attract and nurture high-quality talent to stim- the essence of its culture and continuity with the ulate the growth of the culture sector. past. This continuity includes observing the fun- • Conduct research and provide information on damental principles of Islam, maintaining the the growth and potential of the culture sector. inherited status and prestige of the leading fami- • Raise Qatar’s profile and standing as a cultural lies and preserving the family unit as the core of destination and centre for cultural exchange. society. A primary and persistent challenge is to maintain a proper balance between modern life Managing environmental development and the country’s cultural and traditional values. Qatar’s National Development Strategy 2011–2016 Qatar is meeting this challenge in many ways, for the first time explicitly aligns the growth of through cultural exchanges, athletic competi- national prosperity to the realities of environmen- tions, enriched academic curricula targeting artis- tal constraints. By establishing a programme of tic development and more. The Doha Capital of strengthened environmental management across Arab Culture 2010, for instance, was a successful, economic and natural resource sectors, the Strat- year-long event celebrating the arts, music and egy sets out a framework for continuing economic film through conferences, cultural summits and growth that avoids penalizing future generations. mutual knowledge sharing. Qatar is also increas- Advancing specific actions to conserve water, ing attention to its own history through enhanced improve air quality, manage waste and protect bio- preservation of heritage sites and an ongoing com- diversity, the Strategy adheres to the foundational mitment of resources to new museums and educa- concept of intergenerational justice. tion programmes. The strategy for environmental management calls By thoroughly embracing its cultural identity in for interrelated actions that cut across all areas of the context of its diverse population, Qatar will environmental management. Setting specific tar- be well positioned to protect its unique char- gets, it establishes a comprehensive programme to acter while continuing to foster a creative and preserve the quality of life for future generations.

20 Qatar National Development Strategy 2011–2016 Executive summary

Water will be better conserved and protected from Improved waste management degradation. Gas flaring will be reduced. Expand- ed recycling will greatly improve solid waste man- Affluent societies tend to produce large quanti- agement. Careful monitoring and regulation will ties of waste, and Qatar is no exception. With an protect vulnerable species and broadly preserve active construction business, extensive hydrocar- Qatar’s natural heritage. Urban spaces, subject to bon sector and growing number of high-income intense construction over the past decade, will be households, Qatar creates more than 7,000 tonnes healthier and more liveable as green spaces are of solid waste each day. added. Qatar will adopt a multifaceted strategy to con- Cleaner water and sustainable use tain the levels of waste generated by households, commercial sites and industry and to recycle Among the various environmental concerns fac- much more waste. In approaching the challenge ing Qatar, the most pressing is linked to the coun- of improved waste management, the government try’s most acute scarcity—that of water. With one recognizes a hierarchy of actions to alleviate pres- of the world’s lowest levels of rainfall, Qatar relies sures on the environment, with the most prefer- on water from desalination, groundwater and able goal being the avoidance of waste. Where recycled water, and all three face stresses. Notwith- waste cannot be avoided, the goals would be to standing the pressures, Qatar’s consumption and reduce it, reuse it and recycle it. network leakage rates are high. Per capita water use is one of the world’s highest. Nature and natural heritage sustainably managed

Qatar will enact a comprehensive National Water In Qatar, as in many countries, biodiversity is facing Act establishing an integrated system of quality threats from a range of human activities. Population requirements, discharge controls and incentives growth and rapid urbanization have put pressure on for conservation—in place of today’s fragmented the delicate balance of natural endowments, crowd- system of laws and regulations. The goal is a set ing out some elements in the biodiversity mix. Con- of policies and regulations for the government struction and industrialization are impinging on to align consumption and supply over time while fragile coastal habitats and disrupting marine life. protecting water quality. International shipping and trade have introduced invasive species that pose threats for indigenous spe- Cleaner air cies. Overfishing has emerged as both an ecological concern and a threat to future food supply. Qatar has two categories of air quality challenges. First, various local pollutants mix with particu- To support needed analysis and eventual protec- lates in the air—including chronically high levels tion of the country’s biodiversity, the government of dust—to cause air quality problems that con- will back detailed surveys that establish biodiversi- tribute to respiratory illnesses. Second, carbon ty baselines to enable decisionmakers to build new dioxide emissions, mostly from energy produc- protections based on solid evidence. The Nation- tion, add to greenhouse gases and contribute to al Development Strategy 2011–2016 envisions a global climate change. series of practical steps, beginning with establishment of a central database by 2016 to inform deci- Qatar will develop a national policy to manage sion-making, improve management plans and sup- air pollution, greenhouse gas emissions and the port regional activities. The database will draw on broader challenges of climate change. All sectors international best practice in design and could of society—especially the private sector—will have eventually be extended to cover all Gulf Coopera- a role. tion Council countries.

Executive summary 21 A healthier urban living environment Strategic partnerships

Doha has grown exponentially, supported by a Addressing environmental concerns is a cross construction boom of striking contemporary generational, crossborder exercise. One key func- buildings. But the capital lacks the benefits that tion of government in the environment sector is urban green spaces provide. To continue Doha’s to forge strategic partnerships with neighbouring expansion without incorporating greenery and countries as well as private firms and international open spaces would increase Qatar’s sustainability organizations such as such as the United Nations challenges. Urban conditions would become more Educational, Scientific and Cultural Organization, crowded over time, and more subject to noise and the United Nations Environment Programme and pollution. Bringing a green dimension to urban the World Health Organization, which can provide planning could strengthen sustainability and key knowledge, human resources and technology. make cities more liveable. Qatar’s environmental challenges are shared to Significant shifts in the makeup of Doha are envi- some degree by countries in every region of the sioned. The government is devoting special atten- world. Qatar will adopt an outward-looking, inter- tion to the urban environment. Although Doha’s nationalist view to build partnerships that maxi- initial design did not incorporate green spaces, mize the chance of successfully adapting both pol- the government’s strategy for improved environ- icies and technologies. mental management calls for the city to be retrofitted in ways that more effectively balance the Within the Gulf region countries share the chal- natural and built environments. To make Doha a lenges of hydrocarbon-driven growth and desert greener city, the government plans a network of conditions, including water scarcity. Moreover, green spaces as ribbons of tree-lined areas rather because pollutants do not stop at national bor- than large, open parks. ders, environmental problems spill over, requiring regional rather than national solutions. Strong An increasingly environmentally aware regional cooperation will require continuous population diplomacy and cooperation at all levels. Just as the national government will require national data- Successful environmental management will bases to support environmental regulation and require active engagement through society. Large policies, the Gulf region will need regional data- commercial corporations and policymakers have bases to support regional initiatives. important roles, and so does every individual. There is also evidence that a deeper environmen- The private sector’s critical role in environmental awareness is growing. For example, schools tal conservation and preservation is understood have added environmental studies programmes to in the context of corporate citizenship. Compa- the curriculum. nies can be a source of pollution as well as incubators of innovations that restore the ecological bal- The government will enlist the population in sup- ance. As Qatar diversifies beyond hydrocarbons, porting and sustaining improved environmental there is clear potential for the country to become management. The campaign to protect Qatar’s a global leader in the environmental sector. Fron- environmental endowment will draw on values tier research and development initiatives current- embedded in the country’s religious and cultural ly under way at the Qatar Foundation’s Qatar Sci- heritage. The notion of protecting the environ- ence and Technology Park can help realize this ment for the benefit of future generations has potential. Doha may emerge as a global labora- broad appeal. tory for addressing urban water tables, creating a

22 Qatar National Development Strategy 2011–2016 Executive summary biodiversity database and launching a regional air • More sustainable urbanization and a healthier quality monitoring programme. living environment. • An increasingly environmentally aware Improved governance and outcomes population. • Improved governance and regional and inter- A culture of evidence-based policy-making will national cooperation. be needed, backed by information systems that ensure both informed decisions at the outset and Developing and modernizing public continuous monitoring to guarantee compliance institutions and, over time, measure impact. To make concrete the principles of gathering and sharing bet- Many of the challenges and opportunities in the ter information, the Ministry of Environment will National Development Strategy 2011–2016 tran- mandate new reporting requirements, with all scend the traditional boundaries of individual major industrial companies submitting quarter- public agencies, and thus require a higher level ly environmental performance reports covering of interagency collaboration and cooperation. A their emissions, water discharge and hazardous whole-government approach will be adopted to waste treatment. It will also provide a template address cross-cutting issues. Agencies will work for all companies to use for these reports. across portfolio boundaries as an integrated government. This approach will be applied to policy The government’s agenda will require organi- formulation, to programme development and to zational changes and substantial capacity— the delivery of outcomes. strengthening institutions responsible for the environment. Although many parts of govern- Public sector reforms will be customer-oriented, ment and the private sector will be involved, with delivery systems and interfaces improved the Ministry of Environment will take the lead. and centred around people and businesses. To Expertise from around the world will be tapped speed decision-making and execution, greater to ensure that the government has access to the authority will be provided to selected agencies— most promising ideas and innovations. In time, tied to increased capability and accountability. To Qatar will emerge a regional or internation- enhance delivery, competition and market mecha- al leader in environmental technologies and nisms will increasingly be introduced. applications. Institutional development and modernization of Interventions to be initiated over 2011–2016 will Qatar’s public sector will require a phased, pro- put Qatar on a path of environmentally sustain- longed effort to achieve well planned structural able development. change. Initially, in a foundation building phase, change will be focused on achieving ownership The environmental management strategy envi- by all ministries and agencies, including that of sions a broad shift in laws, regulations, manage- public sector employees. Change management ment systems, technologies and attitudes, working will balance the pace of reform with the ability to towards seven outcomes: incorporate and sustain it. • Cleaner water and sustainable use. • Cleaner air and effective climate change Two linked concepts—based on benchmarking responses. best practices in other countries that have suc- • Reduced waste, more recycling and more effi- cessfully modernized their public sectors—under- cient use. lie institutional development and modernization. • Nature and natural heritage conserved, pro- One is the set of drivers of modernization, fac- tected and sustainably managed. tors that influence performance and the need to

Executive summary 23 modernize and that serve as measures of institu- for measuring countrywide outcomes. As the per- tional success: the public sector’s efficiency, effec- formance management system becomes more tiveness, value creation, transparency, account- embedded in the reporting structures of govern- ability, relevance and customer engagement. The ment, the number of indicators will be expanded. other is the set of levers that institutions must apply to modernize: policy and planning, budg- Careful sequencing of projects will accommodate et and financial management, human resources links across the levers for public sector moderni- development, organizational alignment, procure- zation: for example, capacity building in finance ment, institutional processes, information tech- to reform budgeting processes and in information nology and performance management. and communication technology to develop citizen- centric platforms and a central database. Interme- As part of the situational analysis and diagnos- diate steps for modernization have been bench- tics for the institutional development and mod- marked, and short- and medium-term targets set. ernization strategy, government central functions, Building on this information, targeted projects ministries and agencies responded to a question- have been developed, prioritized and sequenced naire intended to assess the levers that institutions over 2011–2016, for government as a whole and for need to apply to enhance public sector perfor- individual institutions. mance. From the whole-government response, the policy and planning and performance manage- A three-phase building block approach to mod- ment levers stand out as requiring greatest capac- ernization has been developed. The first and long- ity improvement. At the institutional level there est phase is laying the foundation for capabilities is considerable variation among ministries and at the whole-government level. The second phase agencies in the ranking of the levers, with perfor- is embedding institutional capabilities. The third mance management, human resources and policy phase is developing cross-institutional excellence and planning offering opportunities for capacity in delivering services. development. During much of the National Development Strat- To build a strong foundation, two programmes egy 2011–2016 period, institutional development must start during the planning phase: expanding and modernization will be devoted to the founda- the support of central government functions and tion stage and to six focus areas: developing a public sector performance manage- • Strategic policy and planning. ment framework. Because many line ministries • Budget and financial management. and agencies lack the capabilities needed to imple- • Organizational alignment. ment all the National Development Strategy 2011– • Human resources development. 2016 projects, the central functions in government • Enabled institutional processes. will provide coordination among ministries, offer- • Performance management. ing objective advice and defining challenges that cannot be addressed by a single ministry. The per- Each focus area derives from the levers of public formance management system will focus efforts sector performance, but all have outcomes that and resources on ensuring that the National directly affect the seven drivers of public sector Development Strategy 2011–2016 is implemented performance: efficiency, effectiveness, value crea- successfully. tion, accountability, transparency, engagement and relevance. Key performance indicators will inform ministries and government agencies about gaps in per- For these six focus areas, 16 targeted projects on formance and ways to bridge them in moving for- the whole-government have been designed to bring ward, as will a set of whole-government indicators Qatar’s public sector up to best practice. These

24 Qatar National Development Strategy 2011–2016 Executive summary projects are part of the first foundation-laying step Moving from the identification of strategic in the long-term modernization journey. Each responses (see table 1) to the implementation of project addresses a major gap, with its timing and specific interventions requires careful planning by implementation depending on the capacity and implementing agencies, supported by the central- readiness of each institution. The proposed pro- ized functions of government. The concepts and jects allow setting clear targets and refining them targets identified in the Strategy and background as the projects are planned and implemented. sector reports will need to evolve into detailed They will be reviewed and adapted, as needed, in project blueprints driven by a focus on achievable a collaborative process with the lead stakeholders. results that support the key strategic goals.

The national institutional development and mod- These blueprints must include logical assessments ernization programme will promote an outcome- anchored in sound diagnostics, proven approach- based approach to strategic planning as an effec- es and learning; the identification of measurable tive means of managing resources and advancing outputs, outcomes and impacts against which pro- transparency and accountability. It will foster a gress can be measured and evaluated; clear identi- culture based on performance and cultivate the fication of accountabilities; and built-in mitigation development of public service delivery−oriented measures that address identifiable risks. Of course, mind-sets. the financial and human resources needed to manage and implement the project and then to sustain Advancing from strategy to its benefits must be in place. And project risks and implementation success will be critically influenced by stakeholder awareness, understanding and ownership. Qatar’s National Development Strategy 2011–2016, comprehensive and multidimensional, presents Under the National Development Strategy 2011– different implementation challenges in its differ- 2016 a portfolio view of projects is needed to ensure ent parts (table 1). While the process of building proper integration and sequencing of activities, to the machinery for implementation has already direct resources to priorities and to provide “value started, it needs to be accelerated and the achieve- for money”. At the level of the implementing agen- ments need strengthened. cy, this portfolio perspective will emerge through the development of strategic and operational plans Successful implementation will depend first and within a broader sector focus. At the national level, foremost on the demand by the country’s lead- funding priorities will be articulated through ership for regular information on progress and reformed budget processes and a programmatic results. It will also depend on mainstreaming the approach to public investment planning. strategy across the whole government. Ministries and agencies will need to take ownership of the To implement the National Development Strategy, strategy within their own operational plans and ministries and agencies will need competent pro- accept accountability for delivery. At the centre, ject management functions. Where these do not the strategy will have to influence processes that exist, they will need to be established as a priority. drive crucial decisions on how resources get used In other parts of government, existing functions and provide operational tools that allow specific may need to be strengthened. Over what could projects and policy proposals to be assessed in an be an extended transition period, some agencies integrated way. Significant challenges lie ahead, may have to “buy-in” such services, but this must particularly in building the human and institu- be under arrangements that successfully trans- tional capabilities for effective planning and pro- fers knowledge and builds national capabilities. ject execution, but also in providing the legal basis Human resources constraints will also need to be for some of the proposed changes. addressed across a much broader front.

Executive summary 25 Table 1 Qatar’s 20 key challenges

Qatar National Vision 2030 pillar Major challenges Strategic responses Ensuring sustainability in a setting where hydrocarbon Establishing a hydrocarbon depletion policy; sustaining high resource depletion is still the dominant source of income rates of saving and making sound investments in human, capital and financial assets for the future Promoting stability in an environment where hydrocarbon price Reforming budgetary and fiscal processes, public investment volatility creates risk and presents challenges for calibration programming, liquidity management and domestic capital Promoting of economic policy market development sustainable prosperity Enhancing efficiency in the use of all resources to support Promoting competition, trade and investment; improving high standards of living for current and future generations regulation; strengthening demand management for water, power and fuel; reforming agriculture Diversifying the economy to create durable wealth and support Bolstering enterprise creation and private sector development; wider societal viability improving the business climate, strengthening regional integration; reforming the labour market Rebalancing the healthcare system to reduce the emphasis on Establishing an integrated healthcare system to shift the hospital-based care and increase integration between levels balance of care towards a patient-focused, preventive and of care community-based model Meeting critical needs for a high-quality workforce across the Developing and implementing a national workforce plan that health sector (and affecting other sectors) takes a multifaceted approach and optimizes the skills mix Raising the achievement of Qatari students at all levels, Strengthening reforms in K–12 and higher education to ease Promoting human especially in math, science and English and, through that, demand and supply constraints development increasing educational attainment Coordinating education and training providers and aligning Addressing quality, efficiency, inclusiveness and portability with labour force needs across the entire education and training systems Aligning labour market composition of Qataris with the Realigning demand and supply in the Qatari workforce, with an objectives of a diversified knowledge economy emphasis on continuously upgrading skills Reducing reliance on low-cost, low-skilled foreign labour Reviewing the sponsorship law and identifying ways of attracting and retaining higher skilled expatriate workers Balancing the forces of modernization and globalization with Implementing cross-cutting measures to strengthen family the support of traditional Qatari family values and patterns of ties, values and relationships family formation Strengthening social inclusiveness Launching a multistakeholder programme that strengthens an Taking an integrated inclusive social protection system approach to sound Improving road safety and ending the growing epidemic of Introducing a holistic approach to road safety, with cross- social development traffic accidents, particularly among youth sectoral partnerships Preserving traditional Qatari culture and Arab identity Using culture as a platform to safeguard and develop Qatar’s national heritage Encouraging a more active lifestyle for young people, to Promoting local sports participation and development as part reduce the health-related risks of inactivity of a comprehensive, active lifestyle programme Reforming unsustainable water consumption patterns Establishing an integrated water management plan across the Sustaining the value chain environment for future generations Encouraging sustainable urbanization and consumption Promoting more sustainable urbanization and a healthier living patterns that reduce environmental stresses environment Strengthening weak institutional capacities Strengthening the role of central functions to support institutional development and modernization Developing modern Expanding human resources capacities across the public Applying policies to attract talent, including staff development public sector sector programmes institutions Establishing a centralized system for managing for results and Launching a public sector performance management for linking resource allocation to strategic plans framework linking institutional performance to strategic plans and budgets

26 Qatar National Development Strategy 2011–2016 Executive summary

Human resources shortages in key sectors could capital expenditures. The Ministry of Economy undercut delivery of key outcomes. For example, and Finance’s Budget Call Circular will set the the Strategy calls for a large expansion of prima- policy and provide technical and fiscal parameters ry and preventive healthcare. But Qatar has only to guide budget preparation. The central func- 1.9 primary care physicians for every 10,000 peo- tions of government will provide targeted support ple, far below the World Health Organization rec- for implementing agencies as they adjust to new ommended level of 5.6. This picture of acute skill arrangements. gaps permeates the public sector. The FY2011 budget will be prepared under the To respond to constraints on human capabilities Budget Law of 1989. However, a functional clas- in the public sector, the Cabinet’s Central Human sification of expenditure (based on the United Resources Department will lead efforts to create Nations definition of government functions and a central recruitment plan. Ministries assigned sectors) will be piloted to support sectorwide responsibility for managing particular pro- approaches to budget preparation and to pave grammes will as a priority carry out skills assess- the way for programmatic budgeting focussed on ments and identify gaps that need to be filled. results. Concerned agencies will work collabora- Partnerships with universities, the private sector tively to prepare budgets for projects that serve and others will be explored as a means of bridg- common (programme) goals. In this context, the ing capacity shortfalls. But to ease human resourc- Ministry of Economy and Finance will consider es constraints, it may be necessary to modify the agency budgets together and consult with agencies 2009 Law on Human Resources Administration so as a group rather than bilaterally. that it does not inhibit efforts to retain Qatar’s best talent in the public sector. Given the small num- Beyond FY2011 momentum will build towards ber of citizens, the increasing demands on govern- programmatic budgeting, anchored in a new ment and the complexity of Qatar’s economy and functional classification of expenditures and society, a strategic and flexible approach to the based on strategic and operational plans devel- recruitment of high-level experts and specialists in oped and owned by ministries and agencies. New the global market place will be considered. templates and technical guidelines for the preparation of projects and budgets will be prepared Building local capabilities in the public sector to support budget modernization processes, and is an imperative. A concerted capacity-building relevant training will be provided. By FY2013 or effort across all sectors of government will be FY2014, it is anticipated that significant capital spearheaded by the Institute of Administrative projects will be considered within a public invest- Development, supported by the Cabinet’s Central ment programming framework that would sup- Human Resources Department. The Institute will port a portfolio based assessment. By that time, build and operate a world-class training centre to too, fiscal planning parameters will be firm- help agencies develop the capabilities they need to ly anchored in a forward looking macro-fiscal realize their strategic goals and to assist Qataris in framework. developing their career potential. Successful implementation will require closing Budget resources will be made available to sup- information gaps. In the process of preparing the port identified National Development Strategy National Development Strategy, much new infor- priorities. Funds will be allocated for recruiting mation has been unearthed, but a strategic, sys- new personnel in areas where skill gaps need to tematic and sustainable approach is needed for be filled or for procuring professional technical collecting and disseminating statistical informa- and advisory services. Initially, limited resourc- tion. The Qatar Statistics Authority is mindful of es may also be made available to support needed these needs and working to meet them.

Executive summary 27 The participation of stakeholders and target At the national level, evaluation will be an impor- groups in project design and implementation can tant source of knowledge about what has worked raise awareness, increase trust and ownership, lead or not worked—and about why and how social, to better project design, reduce risks and heighten human, economic and environmental dimensions the chances of beneficial results. But robust par- of the Strategy have interacted. ticipatory processes may not always be sufficient. Some goals will be achieved only if the govern- A mid-term assessment of the National Develop- ment persuades other actors to alter their atti- ment Strategy at project, sector and national lev- tudes and behaviours. To support some elements els in the second half of 2013 will inform future of the National Development Strategy 2011–2016 refinements of strategic directions. strong advocacy campaigns will need to communicate clear messages. * * *

The final ingredient of successful implementation In the pages that follow, Part 1 of the National is monitoring and evaluation to support learning Development Strategy 2011–2016 describes how and better decisions. the Strategy was prepared and how it addresses the major challenges identified inQNV 2030. It At the project level, successful implementation also presents the broadly favourable economic requires built-in systems to monitor outputs and outlook for 2011–2016 and the resources likely to results. Through active and continuous tracking be available to support the Strategy. Part 2 goes of milestones at the ministry and agency level, into considerable detail on the goals, outcomes the government can gather critical information and targets for each of QNV 2030’s four devel- on performance and strengthen accountability opment pillars: sustaining economic prosperity, for delivering agreed outcomes. Active monitor- promoting human development, taking an inte- ing of project performance will enable implement- grated approach to social development and sus- ing agencies to identify obstacles and tackle them taining the environment for future generations. before they derail projects or jeopardize outcomes. Part 3 identifies the programmes and priorities for developing and modernizing public sec- At the sector level, systems will aggregate informa- tor institutions in support of the Strategy. It also tion and distil lessons that have broader applica- charts the pathways for implementing the Strat- bility. In due course, sector spending reviews could egy’s many programmes and projects, stressing be considered, as might sustainable development the imperatives of monitoring and evaluation to audits. Consideration will be given to where with- gather critical information on performance to in government the new review functions would be the strengthen accountability for delivering the located. agreed outcomes.

28 Qatar National Development Strategy 2011–2016

Part 1 Agenda and resources Part 1 Agenda and resources Chapter 1 Building Qatar’s rst development strategy Chapter 1 Building Qatar’s rst development strategy 1 Building Qatar’s first development strategy

Qatar stands at a defining juncture. After unparalleled economic expansion that has created widespread prosperity, the government has produced Qatar’s National Development Strategy 2011–2016, in line with Qatar National Vision 2030 (QNV 2030) and guided by Qatar’s Permanent Constitution, to take this prosperity into the future.

QNV 2030 established a framework of aspiration, development consistent with QNV 2030’s chosen calling for programmes and projects that ensure path for the future. sustainable prosperity for future generations. After launching QNV 2030 in October 2008, the QNV 2030 re-establishes core values while embrac- government led an extensive process of stakehold- ing future goals endorsed by all sectors of soci- er consultations, studies and analyses that culmi- ety. It reflects national aspirations, objectives nated in this National Development Strategy 2011– and values. However, a national vision—even 2016. The Strategy identifies specific actions and one that calls for long-term transformation—is outcomes to overcome challenges and advance not a blueprint for action. Reaching the action QNV 2030 goals. stage requires following through on the vision by designing a development strategy that sets The Strategy recognizes that in less than a gener- out specific programmes and projects for politi- ation, through development of substantial hydro- cal leadership to initiate over a given timeframe. carbon resources, Qatar has supported a phe- While QNV 2030 lays a foundation, it is the imple- nomenal economic and social transformation. Per mentation of the strategy that drives the long- capita income is the highest in the world, basic term transformation of society through economic and secondary education are universal and child and social development. mortality has been substantially reduced. From vision to strategy: tackling the But Qatar’s surging economy has relied on the big challenges influx of a large expatriate workforce, generating a rapid increase in population, especially over Qatar’s sound management of its hydrocarbon 2006–2009. Accelerated urbanization, mega-devel- resources will continue to improve standards of opment projects and a rising demand for scarce living. But economic growth cannot be the only resources—particularly water—have generated goal; other values are also vital. Qatar’s National stresses. Modernization is challenging the tradi- Development Strategy 2011–2016 aims to balance tional Qatari family, national identity and cultural the five major challenges identified byQNV 2030: values and straining health and education services. • Moulding modernization around the preservation of Qatari culture and traditions. Qatar’s rapid change necessitates taking stock of • Balancing the needs of this generation and needs and finding new approaches to sustainable those of future generations.

34 a h c pter 1 • Managing growth and avoiding uncontrolled will weigh the consequences of recruiting work- expansion. ers from overseas—compromised cultural rights, • Matching the size and quality of the expa- increased housing and public service needs, dilut- triate labour force to the selected path of ed national identity—against the anticipated eco- development. nomic benefits. • Aligning economic growth with social development and environmental management. Development can have negative effects on the natural environment. Environmental degrada- Preserving cultural traditions in a global, inter- tion can, however, be reduced through advanced connected world is difficult. The wider choices technologies. But a development pattern based on accompanying economic and social progress can the energy industry means that some environmen- challenge some deep-rooted social values. Yet it is tal impacts are inevitable. Qatar is committed to possible to balance modernity and tradition, reap- enforcing international standards for environmen- ing the benefits of economic and social develop- tal protection when designing and implementing ment without sacrificing the stabilizing effects of industrial projects and to making its future devel- cultural continuity. opment path compatible with protecting and conserving the environment. In following a path of sustainable development, Qatar will strive to meet the needs of this gener- Preparing the National Development ation without compromising those of future gen- Strategy 2011–2016 erations, ensuring what is often called intergenerational justice. Adhering to this framework, National development is a long-term process that the government will efficiently invest the finan- requires policies and investments at every level of cial returns from hydrocarbon wealth, delivering government. To manage multiple changes effec- high returns. Because overly aggressive economic tively, governments mobilize commitment to an development could tip the environmental scales expanded set of goals and develop capacities to irreversibly, Qatar is choosing a development path respond to new challenges. Development, which is that ensures continuing economic growth without a continuous process, brings about a broad soci- unduly harming the environment or disadvantag- etal transformation that better prepares people to ing future generations. realize their potential and to pursue the life they have reason to value. Qatar is setting a development pace consistent with sustainable improvements in livelihoods and Thus a development strategy sets out specific quality of life. An unrestrained and imbalanced actions to help the country realize its goals, along economic growth pattern depletes resources, over- with the necessary mechanisms for monitoring strains the economy and derails the overriding progress and making mid-course corrections when objective of sustainability. Stresses from economic needed. Qatar will be alert to feedback from the overheating or financial imbalances can manifest economy, ready to adjust the programme where themselves in rapidly rising prices which, if per- necessary. In this way the strategy is organic, evolv- sistent, create economic and social vulnerabilities. ing to meet changing conditions.

Qatar’s current population growth stems from Identifying national initiatives massive urban development, large-scale investment projects and rising government expendi- Qatar’s National Development Strategy 2011–2016 tures, which have led to a large increase in expa- translates QNV 2030 into specific actions and tar- triate workers. To determine the suitable size gets that represent the first wave of changes to and quality of its expatriate labour force, Qatar launch the next chapter of Qatar’s transformation.

Building Qatar’s first development strategy 35 Developed through a combination of top-down Culture and Sport divided and produced sepa- and bottom-up approaches (figure 1.1), Qatar’s rate strategies, so 14 strategies were produced in National Development Strategy 2011–2016: all.) Each task team was led by a key agency, but all • Identifies the most critical development goals 13 included broad government participation and and challenges. sought inputs from an array of stakeholders, often • Outlines strategic initiatives aligned to QNV through multiple sub-Task Teams. 2030 goals. • Provides strategic coherence for national devel- The extensive intersectoral consultations, opment planning and budgeting—moving including interviews, discussions, debates and from ad hoc development projects to forward- research, were important for building a strategy looking, outcome-based planning. that would enjoy strong and positive public own- • Strengthens public sector institutions and ership from the outset. Moreover, the govern- enhances implementation capacity for carrying ment benefited from a variety of inputs that have out planned reforms and programmes, ensur- been crucial in identifying important weakness- ing that cross-cutting issues are addressed. es to be addressed through policies, regulations • Builds in an adequate resource framework for and investments. effective implementation. The General Secretary of Development Planning Consulting broadly (GSDP) played a coordinating role through the establishment of a National Development Strategy Preparation of Qatar’s National Development Project Management Office. The office, with the Strategy 2011–2016 was highly participatory and support of other GSDP departments, developed inclusive across society. Qataris and non-Qataris templates, draft terms of reference and provided from all sectors were energized, enthusiastic and technical support to each task team. engaged. Stakeholder engagement spread from ministers and prominent leaders involved in Each task team prepared comprehensive national executive groups to countless public, private and sector strategies defining sectoral priorities. These civil society sector participants in 13 cross-secto- strategies, like the larger process, were developed ral task teams (figure 1.2). (The Task Team for collaboratively using detailed situation analyses,

Figure 1.1 The National Development Strategy 2011–2016 was developed through a combination of top‑down and bottom-up approaches

Qatar • De nes national values and long-term goals National Vision 2030

National • De nes national initiatives towards achieving Qatar Development National Vision 2030 goals Strategy 2011–2016 • De nes sectoral priorities to be integrated into the Sector strategies National Development Strategy 2011–2016 2011–2016

• De nes ministerial plans to support Ministry and agency strategies implementation of sectoral strategies

36 Qatar National Development Strategy 2011–2016 a h c pter 1

Figure 1.2 Preparation of the National Development Strategy 2011–2016 was broadly participatory and inclusive

Executive Groups

Educated and Capable Healthy Population Effective Qatari Caring and Sustainable Economic Environmental Population Participation in a Cohesive Society Prospertiy Sustainabiltiy Productive Labour Force Supreme Education Council Supreme Council of Health Ministry of Labour Supreme Council for Family Affairs Ministry of Business and Trade Ministry of Environment Of ce of Prime Minister Of ce of Prime Minister Of ce of Prime Minister Ministry of Interior Ministry of Energy and Industry Of ce of Prime Minister General Secretariat for General Secretariat for General Secretariat for Ministry of Social Affairs Ministry of Economy and Finance General Secretariat for Development Planning Development Planning Development Planning Of ce of Prime Minister Ministry of Municipality and Development Planning General Secretariat for Urban Planning Development Planning Qatar Central Bank Of ce of Prime Minister General Secretariat for Development Planning

Enabling Task Teams

Education and Training Healthcare Population, Labour Force Social Protection Economic Management Environmental Supreme Education Council Supreme Council of Health and Qatari Employment Ministry of Social Affairs Ministry of Economy and Finance Sustainability Supreme Council for Family Affairs Ministry of Interior Ministry of Labour Supreme Education Council Emiri Diwan Ministry of Environment Ministry of Labour Hamad Medical Centre Supreme Council for Family Affairs Supreme Council of Health Ministry of Environment Supreme Council of Health Ministry of Social Affairs Permanent Population Supreme Education Council Supreme Council for Family Affairs Qatar Petroleum Ministry of Municipality and Urban Planning Ministry of Culture, Arts and Committee Supreme Council of Health Ministry of Justice Qatar Development Bank Ministry of Justice Heritage Weill Cornell Medical College Ministry of Interior Ministry of Endowment and Qatar Financial Centre Public Works Authority Qatar University General Secretariat for Ministry of Justice Islamic Affairs Qatar Statistics Authority Development Planning Kahramaa Qatar Statistics Authority Ministry of Economy and Finance Ministry of Labour Chamber of Commerce & Industry Permanent Population Supreme Council for Family Affairs Social Development Centre Qatar Foundation Ministry of Business and Trade Supreme Council of Information (Education City) Committee Qatar Petroleum Qatar Statistics Authority and Communication Technology Ministry of Social Affairs Qatar University General Authority for Minority Al Emadi Hospital Permanent Population in Qatar Affairs Cabinet Of ce Department of Qatar Petroleum Sidra Medical and Research Policy and Planning Committee Qatar University Supreme Council of Information Center Qatar Statistics Authority Qatar Petroleum General Retirement and Qatar Foundation and Communication Technology Aspetar Social Insurance Authority (Education City) Permanent Population in Qatar Qatar University Committee Military of Qatar Supreme Council of Information Qatar Central Bank Chamber of Commerce & Industry Qatar Foundation Ministry of Defense Primary Health Care and Communication Technology General Secretariat for General Secretariat for Qatar Statistics Authority in Qatar Development Planning Ministry of Environment Development Planning Permanent Population National Human Rights Supreme Council for Family Affairs General Secretariat for Committee Committee Development Planning Chamber of Commerce & Industry Social Rehabilitation Centre Economic Diversi cation Ministry of Interior Supreme Council of Information General Secretariat for and Private Sector Growth and Communication Technology Development Planning Natural Resource in Qatar Ministry of Business and Trade Management Ministry of Environment General Secretariat for Family Cohesion and Qatar Petroleum Development Planning Qatar Investment Authority Women’s Empowerment Emiri Diwan Qatar Petroleum Ministry of Environment Supreme Council for Family Affairs Qatar Development Bank Qatar Investment Authority Supreme Education Council Security and Public Safety Qatar Financial Centre Qatar Petroleum Supreme Council of Health Ministry of Interior Qatar Statistics Authority Qatar Foundation Ministry of Interior Supreme Council of Health Chamber of Commerce & Industry Qatar Statistics Authority Ministry of Social Affairs Supreme Council for Family Affairs Supreme Council of Information Qatar University Ministry of Justice Ministry of Endowment and and Communication Technology Islamic Affairs Chamber of Commerce & Industry Qatar Statistics Authority in Qatar Ministry of Labour General Secretariat for National Human Rights Businessmen Association Development Planning Committee Social Development Centre Qatar University General Secretariat for Qatar Statistics Authority Qatar Foundation Economic Infrastructure Development Planning Qatar University (Education City) Ministry of Municipality and Permanent Population Gulf Organization for Industrial Urban Planning Committee Consulting Culture and Sports Ministry of Environment Ministry of Culture, Arts and Qatar Foundation for Child and Qatar Telecom Qatar Petroleum Women Protection Heritage General Secretariat for Qatar Development Bank Supreme Education Council General Secretariat for Development Planning Development Planning Qatar Statistics Authority Supreme Council of Health Kahramaa Supreme Council for Family Affairs Al Diar Ministry of Endowment and Electricity and Water Company Islamic Affairs Public Works Authority Qatar Olympic Committee Port Authority Permanent Population Civil Aviation Association Committeee Chamber of Commerce & Industry Qatar University Supreme Council of Information Qatar Museum Authority and Communication Technology General Secretariat for in Qatar Development Planning General Secretariat for Development Planning

Institutional Development and Modernization General Secretariat of the Council of Ministers, Department of Policy and Planning

Building Qatar’s first development strategy 37 Figure 1.3 The National Development Strategy 2011–2016 organizational structure

Oversight Committee Higher Authorities

National General Secretariat of the Steering Committee Council of Ministers • Ministry and agency plans and budgets consistent with the National Development Strategy 2011–2016 • Public sector capacity-building

Six Executive Groups • Ensure alignment with Qatar National Vision 2030 outcomes and relevance to the challenges it identi es • De ne key development issues, priorities and strategic areas for the National Development Strategy 2011–2016 • Select task teams and meet their resource needs • Ensure quality assurance of task teams’ deliverables

Human Development Human Development Human Development Social Development Economic Development Environmental Development General Secretariat for Development Planning General Educated and Healthy Effective Qatari Caring and cohesive Sustainable economic Environmental capable population population participation in a society prosperity sustainability productive labour force Supreme Education Council Supreme Council of Health Ministry of Labour Supreme Council for Ministry of Economy and Finance Ministry of Environment Family Affairs

Institutional Development and Modernization

diagnostics and benchmarking of best region- and prioritizations for each of the programmes al and international practices. Each strategy was and projects at a much more detailed level than is then approved by one of six National Develop- possible in this Strategy. Some programmes and ment Strategy 2011–2016 executive groups and the projects identified in this Strategy are ongoing, National Steering Committee (figure 1.3). Qatar’s some are in the early planning stages, and some National Development Strategy 2011–2016 was for- are entirely new initiatives. mulated by integrating the 14 sector strategies. The targets in the Strategy, a subset of those in National Development Strategy the sector strategies and developed with stakehold- 2011–2016 programmes and projects er inputs, focus on the results to be achieved by 2016. Both quantitative and qualitative, they will Aligned to the QNV 2030 goals, the programmes be reviewed and refined, as necessary, by key stake- and projects identified in the National Develop- holders at the beginning of programme and project ment Strategy 2011–2016, including outcomes and implementation. This refinement will strengthen targets, are from the 14 sector strategies (see page ownership and promote a culture of outcome-based xiii). Developed through an extensive consulta- planning and managing budgets for results. tive process, taking into account the many cross- sectoral links, these reports provide profound and Each sector report has project templates to iden- transparent analysis, benchmarking, diagnostics tify the key activities, placed within indicative

38 Qatar National Development Strategy 2011–2016 a h c pter 1 sequenced implementation timelines, to achieve endowment and further develop its energy-inten- the desired outcomes. The priorities for pro- sive petrochemical and metallurgy sectors, consoli- grammes and projects, as well as the timelines, dating its position as a major force in world energy will be reviewed by the ministries and agencies. markets. At the same time, however, the country will look for opportunities to diversify its produc- The sector reports also provide the indicative tive base into new areas that add to resilience and resource requirements for each programme and provide sustainable avenues of wealth creation. project—identifying the key stakeholders in the projects and the risks and mitigation measures Four interrelated pillars of development for successful implementation. In addition, some cross-sectoral links for each programme and pro- The programmes and projects of the National ject are given to improve policy coherence. Espe- Development Strategy 2011–2016 reflect Qatar’s cially important, each report contains a basic development priorities and are linked to four monitoring and evaluation framework, support- interrelated pillars of development. ed by selected monitorable indicators, to enable adjustments during implementation. Economic development

Growth with balance The government is committed to the responsible exploitation of Qatar’s hydrocarbon resources and Qatar’s National Development Strategy 2011–2016 the wise investment of the proceeds for the benefit calls for initiatives that will create the foundations of current and future generations. Investments in of sustainable prosperity, which can be achieved infrastructure, people and institutions will contin- only if the value of the nation’s productive base ue to receive priority and will provide the founda- expands—its constructed capital assets, infrastruc- tions for new capabilities and an emerging knowl- ture, human and social capital, natural endow- edge economy. Greater resilience will be achieved ments, technology and institutions. Growth of the through strengthened arrangements for econom- productive base provides the foundation for rais- ic management. A concerted drive towards great- ing living standards for a growing population and er economic efficiency and improved competi- expanding opportunities for future generations. tiveness will provide a platform for advances in productivity and economic diversification. The National Development Strategy 2011–2016 brings fresh thinking to the forefront with its Human development emphasis on balance and sustainability. Econom- ic prosperity will be balanced with environmental Qatar will continue to invest heavily in modern goals, and concerns and opportunities that create health and education systems built to the high- benefits in both areas are emphasized. Likewise, est international standards and to provide all citi- economic stability will support broader social and zens with access and opportunities to realize their human development. The development of human, potential. A comprehensive, integrated system of institutional and social capabilities is integral to healthcare will help all people in Qatar live long- expansion of the productive base. Initiatives that er and healthier lives. It will also enable them to support development in these areas will provide participate fully in economic, social and politi- a platform for enhanced productivity growth and cal life and contribute to sustaining a prosperous efficiency and will create greater space for the pri- society. Education and training programmes will vate sector. strengthen Qatari values and encourage analytical thinking, innovation and entrepreneurship. The As part of its broader economic strategy, Qatar capacities and skills of the labour force will be con- will continue to exploit its rich hydrocarbon tinuously upgraded and aligned with social and

Building Qatar’s first development strategy 39 economic priorities. Developing human capacities, proactively engage in regional and internation- especially in science and technology and through al cooperation programmes that promote green research and development, will support the broad- technologies and support sustainability. er goal of engaging Qataris in a wider range of economic activities as the economy evolves. Intersectoral links

Social development National Development Strategy 2011–2016 programmes and projects in the four areas are strong- The government will promote strong family val- ly interrelated and mutually reinforcing. For ues and an effective social protection system for example, planned improvements in the education all Qataris, ensuring them an adequate income to system will produce graduates better prepared maintain a dignified life. Broadening and deep- to participate in a modern global economy that ening democratic institutions, including giving emphasizes knowledge-based services, healthcare civil society a voice in social policy, are foreseen. and green technologies. In this way, the education Initiatives will be undertaken to further empower initiatives will help build a high-quality workforce Qatari women in economic and political spheres to support goals for improved healthcare and pro- and provide equal opportunities for them to par- vide expertise for designing environmental poli- ticipate at all levels of society. The criminal justice cies and technologies. In turn, increased partici- system will be strengthened to ensure the safety pation in these sectors also serves the economic and security of all people living in Qatar. Meas- goal of broadening the productive base and diver- ures will be undertaken to preserve the country’s sifying opportunities for future generations. national heritage and culture, enhancing Arab and Islamic Qatari values and identity. The govern- Institutional capacity ment will continue to provide progressive development pathways for national athletes. It will contin- Successfully implementing the National Develop- ue to host regional and international competitions ment Strategy 2011–2016 programmes and pro- and events, thereby encouraging national sports jects is contingent on modernization of Qatar’s development. public sector. This will require transforming institutions through capacity-building programmes, Environmental development creating a culture of innovation and performance- based management and improving public service Qatar will build an environmental management delivery. This will also require strengthening core system, aligned to the growth of national pros- values that instil positive attitudes and productive perity, to minimize avoidable depletion of scarce work practices. Interagency collaboration will be resources, especially water, and promote sustain- critical to ensure that the reforms are coherently able use. The government is also committed to designed and efficiently implemented. improving air quality, reducing waste and increasing recycling. Stronger efforts will be made to pro- A programme for the entire society tect Qatar’s national heritage and biodiversity. The National Development Strategy 2011–2016 The government will take the lead to deliver on environment agenda encourages more sustain- the National Development Strategy 2011–2016. able urbanization and a healthier living environ- To achieve the targets, Qatar will strengthen pub- ment. Awareness programmes will encourage a lic sector institutions, expand human resources sense of shared responsibility towards the environ- capacities and create new structures. Partnership ment, along with the development of positive envi- with civil society, academia and the private sector ronmental attitudes and values. Qatar will also will be critical to achieving many of the outcomes.

40 Qatar National Development Strategy 2011–2016 a h c pter 1 In some areas, the government will act as an advo- dependence on hydrocarbon exports and speed cate, encouraging other actors to shift behaviours the transition to a knowledge-based economy. in ways that advance the goals of the National Development Strategy 2011–2016. For example, The National Development Strategy 2011–2016 also to raise awareness of the need to conserve water identifies key infrastructure for which government and power, the government will lead the drive to investment can drive a new pattern for the econo- inform key audiences of the nation’s vulnerabilities my. Priority infrastructure investments targeted for and the dangers of wasting nonrenewable resourc- 2011–2016 include wastewater treatment facilities, es. For the strategy to achieve its goals, households recycling centres, primary healthcare facilities, will have to change behavioural patterns. Owners centres for higher education and skills training, of commercial buildings will need to be more con- recreational spaces, and road and rail connections. scious of sustainability concerns and support and adopt energy conservation practices. In addition, government participation through public-private partnerships and startup invest- Creative partnerships, investments and incen- ments will help jumpstart firms in new sectors of tives can accelerate progress. Through a pub- the economy. The more diversified economic base lic investment programme, the government will will generate expanded opportunities for the next manage its capital budget to ensure that projects generation while buffering the economy from are consistent with the National Development wide fluctuations in world energy prices. Strategy 2011–2016. To bring in private sector management expertise, along with knowledge Building on momentum of markets, inputs and technologies, some priority projects will be structured as public-private Qatar’s National Development Strategy 2011–2016 partnerships. is a plan of action. It presents new initiatives while building on what already exists. For projects, poli- The government already has spearheaded a string cies and institutions already under way, it provides of creative efforts that will help Qatar diversi- added impetus and focus. fy beyond hydrocarbons. The Qatar Science and Technology Park is accelerating research, and the Keys to success as the National Development Strat- Qatar National Research Fund is backing promis- egy 2011–2016 unfolds will be attention to meas- ing innovations. Enterprise Qatar, Qatar Founda- urable outcomes in each area, effective implemen- tion, Qatar Financial Centre and Qatar Develop- tation, monitoring and evaluation, accountability, ment Bank are supporting efforts to lessen Qatar’s and cross-sectoral cooperation and coordination.

Building Qatar’s first development strategy 41

Chapter 2 Achievements and economic outlook 2011–2016 2 Achievements and economic outlook 2011–2016

On the way to achieving the many advances detailed in Qatar National Vision 2030 (QNV 2030), Qatar has built a solid foundation for embarking on the National Development Strategy 2011–2016. Rapid growth in the 2000s, the fastest in the world, has given Qatar one of the world’s highest per capita GDPs. High saving, both private and public, has been reflected in substantial domestic investment and sizeable accumulation of foreign assets. Policy improvements and institutional advances have supported this remarkable economic performance. Rapid development of the financial sector, with fast expanding banking and equity markets, has served the needs of a larger and more complex economy.

The economic prospects for 2011–2016 are broad- A solid foundation for the future ly favourable, with the global recovery continuing, thanks to robust growth in emerging markets and Between 2000 and 2009 Qatar’s real GDP grew rebounding world trade. The growth of hydro- at an annual average of 13.1%. Over this period carbon income will tail off, but its level should Qatar’s economy has grown faster than any other, remain high, and expansion elsewhere in the and, measured in purchasing power parity terms, economy will help keep overall GDP growth buoy- its per capita GDP is now among the highest in ant. Transport and communications, along with the world (figure 2.1). Much of this expansion business and financial services, could grow vigor- has occurred since 2004—from 2004 to 2009 real ously. Construction will grow steadily, and manu- GDP growth averaged 17.1% a year. facturing growth should improve. Volume measures of GDP growth, large as they A substantial pipeline of infrastructure invest- are, understate the true expansion of real domes- ments is planned for 2011–2016, amply meet- tic income because they do not capture the large ing Qatar’s infrastructure needs in most areas gains in Qatar’s terms of trade that are a result of through 2016 and beyond. Although infrastruc- rising energy prices. Estimates from the General ture investment will place large demands on the Secretariat for Development Planning suggest that state’s resources, the government’s overall fiscal terms of trade gains alone doubled real income position should remain healthy. Anticipated fiscal during 2004–2008. resources will be adequate to support the initiatives of the National Development Strategy 2011– Good governance has been a notable factor in 2016. The main impacts of preparation activities Qatar’s economic success. Qatar compares favour- for the International Federation of Association ably with other countries on corruption and gov- Football (FIFA) World Cup 2022 are not expected ernance indicators, and particularly favourably until the latter part of the period and beyond. when compared with other resource-abundant

44 a h c pter 2

Figure 2.1 Qatar has grown faster than any other economy, and its per capita GDP is now among the highest in the world

Real GDP, Qatar and selected economies since 2000 GDP per capita, 2009 Index (2000 = 100) Rank

300 a Qatar Qatar 65,495 1–2

Norway 53,269 3

Singapore 49,433 5 250 United States 46,443 6 China Kuwait 38,876 11

200 United Arab Emirates 38,284 13

Bahrain 35,561 19 Gulf Cooperation Council countries European Monetary Union 32,100 na 150 Singapore Oman 25,829 36 World Saudi Arabia 23,388 38 Norway United States European Monetary Union China 6,546 97 100 2000 2002 2004 2006 20092008 0 25,000 50,000 75,000 100,000 Purchasing power parity US$ na is not applicable. a. GDP 2004–2009 adjusted using revised GDP data from Qatar Statistics Authority. Source: International Monetary Fund (IMF) World Economic Outlook April 2010 database; IMF Qatar Article IV report and Statistical Appendix January/February 2010; National Development Strategy 2011–2016 estimates. countries. Qatar’s institutions have not been weak- and the expertise of international oil companies ened by hydrocarbon wealth nor have they been using successful joint venture arrangements. Qatar deflected from their public purpose. While abun- has established a reputation as a reliable and flex- dant hydrocarbon wealth has been associated with ible partner with both co-investors and client mar- poor performance in some countries (the “para- kets. Investments along the supply chain in trans- dox of plenty”), Qatar has wisely invested in its portation and re-gasification facilities have paid people and infrastructure. off. Other ingredients of Qatar’s successful business model include aggressive marketing and vigorous Substantial investment in hydrocarbons has driven cost cutting. Qatar, now one of the lowest cost pro- economic performance. Qatar is nearing the end of ducers of liquefied natural gas, also benefits from a successful 20-year investment programme in the the production of liquids, condensates and ethane. hydrocarbon sector and is now a major player in global energy markets. Commercialization of gas resourc- Qatar’s infrastructure spending has been unprec- es has paid handsome dividends, and Qatar now pro- edented. Over 2005–2009 average spending on duces and exports more liquefied natural gas than infrastructure for a sample of 69 countries was any country in the world (figure 2.2). The produc- approximately 4.2% of GDP; it was 10% for Qatar. tion capacity of liquefied natural gas in Qatar nearly In U.S. dollar terms, infrastructure spending in doubled in 2010, reaching about 77 million tonnes. Qatar increased 57.8% a year (figure 2.3). Qatar’s spending on infrastructure in recent years has also Qatar’s ascent to a global supplier has been built on outpaced that of other countries (such as China a strategy of leveraging state-of-the-art technology and India) experiencing accelerated growth.

Achievements and economic outlook 2011–2016 45 Figure 2.2 Qatar is a global leader in liquefied natural gas production

Liqueﬁed natural gas production, by country, Qatar’s liqueﬁed natural gas production 2009 since 2005 Million tonnes per year Million tonnes per year 250 50

68 Compound annual growth rate, 2005–2009, 17.5% 200 40 40

150 20 30 32 21 25 22 25 100 20 21 27

29 50 10 40

0 0 Qatar Malaysia Indonesia Algeria Nigeria Australia Other 2005 2006 2007 2008 2009 (18) (13) (12) (10) (9) (9)

Note: Numbers in parentheses are percentage of world total of 227 million tonnes. Source: International Monetary Fund Qatar Article IV report and Statistical Appendix January/February 2010; Cedigaz database.

The exceptionally high saving rate—total national same period. The “nonhydrocarbon fiscal bal- saving averaged approximately 60% of GDP dur- ance”, which excludes hydrocarbon revenues, is in ing 2002–2009—has underwritten investments deficit. Although this deficit has been shrinking, in physical and financial assets. Investments in it is still large: 9.2% of GDP in 2009. The share of domestic capital projects have been significant, taxes in total government revenue has been inch- with gross investment consistently running just ing up. However, these fiscal metrics do not include over 30% of GDP. Qatar has been investing heav- income that accrues to the state from the activities ily not only in economic infrastructure, but also of the Qatar Investment Authority or its affiliates. in social infrastructure and fixed industrial assets. Nor on the other side of the ledger does it include Overseas, Qatar has invested in a variety of asset state spending outside of mainstream government classes, including equity in private and publicly or spending by state-linked commercial entities. listed companies, and has directly funded a range of capital projects. Government spending is tightly linked to hydrocarbon revenue. Although the budget is planned Strong fiscal position based on conservative assumptions about hydrocarbon prices, which are normally well below prevail- Government fiscal surpluses have been large, with ing market prices, government spending is strongly the current fiscal balance (current revenue less correlated with realized oil prices and government operating expenditures) on the budget averaging revenues (figure 2.4). Large year-on-year increases 18% of GDP during 2002–2009. The overall bal- in aggregate spending challenge the capacity of ance (revenue less the sum of all operating and some ministries and agencies to absorb additional capital expenditures) has also remained firmly resources while ensuring efficiency, value for money in surplus, averaging about 10% of GDP over the and adequate social returns on public investment.

46 Qatar National Development Strategy 2011–2016 a h c pter 2

Figure 2.3 Qatar’s spending on infrastructure over 2005–2009 has outpaced that of other countries experiencing accelerating growth

Infrastructure spending (US$ billions) Infrastructure spending (US$ billions) 20 20

Qatar 10 10 Kuwait

0 0 2005 2006 2007 2008 2009 2005 2006 2007 2008 2009

Infrastructure spending (US$ billions) Infrastructure spending (US$ billions) 20 20

10 Oman 10 Saudi Arabia

0 0 2005 2006 2007 2008 2009 2005 2006 2007 2008 2009

Infrastructure spending (US$ billions) Infrastructure spending (US$ billions) 20 20

10 10 Bahrain United Arab Emirates 0 0 2005 2006 2007 2008 2009 2005 2006 2007 2008 2009

Note: Infrastructure spending based on awarded development projects in power, water and transportation with a total budget of more than US$50 million over the execution period. Source: MEED Projects database.

Recent policy improvements service sectors. In addition, 100% foreign ownership is permitted in the special economic zones of Qatar’s hydrocarbon sector has long been devel- the Qatar Financial Centre and the Qatar Founda- oped through beneficial joint ventures with foreign tion (including for tenants of the Qatar Science investor partners, particularly the major interna- and Technology Park). tional oil companies. Outside the hydrocarbon and energy complex the presence of foreign players has Partly to attract and retain foreign investment, been more limited, but this pattern is changing. Qatar has simplified its corporate tax regulations, with foreign investors now subject to a low flat-rate In 2000 Qatar began to accelerate the easing of tax of 10% on their profits. Qatar’s liberal capi- restrictions on foreign participation in the non tal account regulations have long permitted free hydrocarbon economy. Although domestic major- remittance of profits for all investors. ity ownership is still required in some sectors, 100% foreign ownership is permitted in a grow- Fledgling initiatives aim to bolster the private ing list of sectors, including industry, agriculture, sector, and support for private sector develop- health, tourism, education, energy, mining and ment is building. For example, the second player

Achievements and economic outlook 2011–2016 47 Figure 2.4 Government spending is strongly correlated with oil prices and government revenue

Government revenue (QR billions) Government spending (QR billions) Oil price (West Texas Intermediate spot price; US$ per barrel) 180 140

150 120

120 100

90 80

60 60

30 40

0 20 2002 2003 2004 2005 2006 2007 2008 2009

Source: International Monetary Fund (IMF) Qatar Article IV report and Statistical Appendix January/February 2010; IMF Qatar Medium-Term Baseline Scenario; U.S. Energy Information Agency Petroleum Statistics database. in Qatar’s telecommunications market represents that guide the regulation of the state and its insti- a joint venture between Vodafone (51%) and the tutions. From an economic perspective the Con- Qatar Foundation (49%). The 2006 competition stitution guarantees the rights to private property law includes antitrust provisions as well as safe- and economic freedom and establishes state own- guards for consumers. Qatar has also drawn on ership of the country’s hydrocarbon wealth. Under independent power producer and water agree- the Constitution executive powers are vested in ments for cogeneration of power and desalinated the Emir, assisted by the Council of Ministers. water. In addition, private equity has been carved The Council of Ministers, headed by the Prime out of selected state-owned companies through Minister, manages the financial, administrative, several initial public offerings. legal and regulatory infrastructure of the country, deciding on and implementing economic projects In 2009 the establishment of Enterprise Qatar was and delivering public services. announced to catalyse services that support the creation and expansion of small and medium-size To meet new demands and strengthen perfor- enterprises. For its part, the Qatar Development mance, Qatar has embarked on a programme of Bank is expanding its activities to ensure greater reforms to consolidate decisions of national sig- relevance and more effective delivery of services to nificance about Qatar’s future within an integrat- private sector clients. ed framework. At an operational level the reforms emphasize improvement in public services and Institutional advances delivery of value for money, thereby enhancing opportunities and conditions for the country as Promulgated in 2004, the Permanent Constitution a whole as well as for its individual citizens. By establishes, among other things, the principles clarifying national development priorities and

48 Qatar National Development Strategy 2011–2016 a h c pter 2 directions, these reforms aim to provide greater was established and made responsible for manag- predictability for the private sector and civil soci- ing much of the country’s wealth. Through invest- ety, leading to better alignment of interests across ment in suitable foreign currency assets, the Qatar the country. Investment Authority aims to build and diversify Qatar’s future income. The creation of a regula- A significant rationalization of the functions and tor (ictQatar) for the telecommunications sector roles of ministries and agencies is under way, and the entry of a second player into the market aimed at tightening policy cohesion, improving were also major developments, especially in the service delivery, eliminating waste and enhanc- context of Qatar’s ambitions to expand the knowl- ing public sector accountability and performance. edge base of its economy. Implementation of these changes across the whole of government is now proceeding, with the Gen- New investment areas eral Secretariat of the Council of Ministers having been given the mandate for planning and moni- The trajectory of Qatar’s economy is tightly linked toring performance across government. An initi- to developments in the hydrocarbon sector. ative of particular importance has been expand- Hydrocarbons still dominate the economic land- ing the role of the former Ministry of Finance to scape, but Qatar is branching out into new areas. include economic policy support, advice and coordination. In recognition of this expanded man- Cheap hydrocarbon feedstock and energy have date, in 2008 the Ministry was renamed the Minis- helped prime development of downstream industry of Economy and Finance. tries in the petrochemical and metallurgy sectors, with some subsectors, such as fertilizers, growing The need for budgetary reform has also been at a fast clip. acknowledged. Establishing a comprehensive legal and regulatory framework for public finance that Footholds have also been established in new areas. is consistent with the Constitution and that incor- Qatar Airways is taking a lead in the transport sec- porates good technical practices is a high priority tor. Al Jazeera is now an acknowledged leader in (see chapter 3). A draft organic budget law (the the regional media and communications industry. Public Services Financial Management Law) is And Qatari Diar is one of the biggest real estate being prepared. development and investment companies in the Gulf Cooperation Council countries. The Qatar In recognition of the need to look towards the Science and Technology Park now tenants more longer run development needs of the state, the than 30 ventures in such areas as life sciences, oil General Secretariat for Development Planning and chemicals, environment, electronics and soft- was created in 2006 and given responsibility for ware engineering. Qatar’s financial sector has also managing medium- and long-term development seen rapid development serving the needs of a planning. It was mandated by Emiri Decisions larger and more complex economy. 39 and 50 to formulate QNV 2030 and to support implementing ministries and agencies in execut- Financial sector progress ing it. QNV 2030 was completed in 2008, and now the recommendations of the current document, Qatar’s banking sector has expanded rapidly. At Qatar’s first National Development Strategy, have end-2000 the country had 96 bank offices (head- been formulated and approved by the country’s quarters and branches); by end-2009 that number high authorities. had doubled, despite advances in electronic banking. Bank assets grew from QR 50 billion in 2000 Other significant institutional initiatives have been to QR 484 billion in March 2010, a jump from 78% realized. In 2005 the Qatar Investment Authority to 123% in the ratio of bank assets to GDP.

Achievements and economic outlook 2011–2016 49 Reserve money and broad money (M2) have mul- past, perhaps deterring investment. High-quality tiplied over the decade. Reserve money—the lia- and reliable infrastructure services will be impor- bilities of Qatar Central Bank—has soared from tant in determining the economy’s overall competi- just over QR 3 billion in 2000 to QR 50 billion in tiveness and opportunities for diversifying its pro- March 2010. During the same period broad money ductive base. Accommodating future expansion jumped from a little over QR 35 billion to just are completion of the new industrial area, signifi- under QR 243 billion. Demand deposits have been cant investments in power generation and desali- the fastest growing component of broad money. nated water production, upgrading and expansion of road networks and construction of the new Doha Credit to the private sector has taken off, becom- airport. Investments by Qatari Diar, Barwa and ing the fastest growing component of commercial Doha Land will have a strong impact on Qatar’s banks’ balance sheets. Private credit expanded built environment and on the spatial arrangement from about 20% of GDP in 2000 to approximately of economic activity within the country. 50% in 2008, but growth slowed sharply in 2009. The upward trend in the ratio of credit to the Investments in healthcare have been significant, private sector, along with other indicators (see supporting workforce productivity and foster- below), mirrors steady progress in capital market ing social cohesion. Thanks to the heavy invest- development. ments in high-quality health services and delivery systems, mortality rates have declined markedly, Qatar’s equity market is developing rapidly. From and prospects of survival at vulnerable ages have humble beginnings, the Qatar Exchange (former- improved. A diverse complex of health facilities ly the Doha Stock Market) has come a long way, now meets widely divergent and often highly spe- with market capitalization in 2009 of roughly 90% cialized needs, supported by more than 13,000 of GDP. The number of listed companies has also personnel, almost all with specialist medical and grown substantially to span banks, insurance com- technical skills. panies, industry and other nonfinancial services. The market index ascended rapidly through 2005 Recognizing gaps in the education system and in and then declined but has been recovering recent- broader capabilities within the country, Qatar has ly. The Qatar Exchange is classified as a “frontier invested heavily in education and training. Gov- market” and aims for “emerging market” status in ernment education expenditure has increased the near future. steadily to about 5% of GDP in 2008, making Qatar second only to Saudi Arabia among Gulf The Qatar Financial Centre, having attracted Cooperation Council countries on this metric. Ini- many of the world’s leading financial institutions tiatives in tertiary education include expanding to Qatar, is now taking a more focused role in pro- the Qatar Foundation Campus, reforming Qatar moting the development of Qatar’s financial sec- University, creating a new community college and tor. In addition to providing a window on bank- introducing vocational and technical education ing and investment opportunities, the centre’s new streams. strategy seeks to develop core business strengths around asset management, captive insurance and Corporate training centres have expanded, facil- re-insurance. itated by government-owned companies such as Qatar Petroleum, to support continued learning. Investments catching up with needs These initiatives are complemented by scholarships and other incentives to encourage young peo- Physical investments have fast caught up with ple and professionals to improve their skills. And needs. Bottlenecks in infrastructure have contrib- at the interface of the public and private sectors, uted to high project costs and inefficiencies in the the Qatar National Research Fund constitutes an

50 Qatar National Development Strategy 2011–2016 a h c pter 2 early initiative in Qatar’s efforts to mobilize 2.8% will begin implementing in that time. But over the of GDP to support research and development. longer term Qatar’s prospects are enmeshed in broader global circumstances, particularly in the Although these new directions support QNV 2030 dynamics that drive prices for oil and gas and in and are expected to be beneficial, they are some- the global investment outlook (box 2.1). Qatar’s times poorly integrated and aligned. In addition, successful bid for the FIFA World Cup 2022 will some measures exist only on paper, and imple- also have significant impacts, but the main ones mentation of others lags. will be in the latter part of 2011–2016 and beyond.

While Qatar National Development Strategy 2011– A sea-change in hydrocarbon income growth 2016 will leverage existing initiatives, it also provides a framework that can fill gaps and provide Under plausible assumptions about the future, effective integration and alignment across sectors. and existing plans of Qatar Petroleum and other Before turning to the details of that strategy in the state-linked entities, Qatar’s economy is seen reg- chapters that follow, the next section presents the istering double-digit real GDP growth in the near outlook for 2011–2016. term. But beyond 2011 real GDP growth is likely to shift down (figure 2.5) as the current programme Outlook for 2011–2016 of investment in hydrocarbons reaches completion, and output plateaus. The boost to activity Qatar’s economic prospects in the medium term generated by FIFA World Cup 2022 preparations remain favourable, though uncertainties loom. is expected to be concentrated in the period after The global recovery from the recent economic and 2016, though modest effects could be felt earlier. financial crisis, though uneven, is continuing, bol- stered by continued robust growth in emerging This sea-change in the country’s growth dynam- markets (mainly in Asia) and a rebound in global ics is programmed in the moratorium that limits trade. However, the rapid global growth seen in the years before the crisis is unlikely to return in the Figure 2.5 Beyond 2011 real GDP growth is next few years. Fiscal consolidation is under way in likely to shift down Europe, Japan and the United States, and private demand remains guarded. Households are build- Real GDP growth (%) ing savings and attempting to recover from income 25 losses. Overall, employment prospects in Organisa- tion for Economic Co-operation and Development 20 countries are still shaky. Returns on investments are expected to remain low for some time, and 15 more pronounced risk aversion can be expected.

However, global growth is likely to be more broadly 10 distributed, with large emerging market countries Nonhydrocarbon GDP accounting for a greater portion of expansion. 5 Real GDP In the short to medium term Qatar will continue 0 to make its own way. Economic development in Hydrocarbon GDP the next few years is likely to be driven more by domestic factors than by global factors. The coun- –5 try’s economic trajectory will be heavily influenced 2011 2012 2013 2014 2015 2016 by investments for which funds are already ear- Source: Box 2.1. marked and by structural reforms that authorities

Achievements and economic outlook 2011–2016 51 Box 2.1 Glimpsing the economy’s future

A statistical summary of Qatar’s economy has been a sharp slowdown in nominal income growth, which constructed for 2009, the latest year for which com‑ disproportionately affected some sectors, such as plete data are available (as of early 2011). This sum‑ construction and manufacturing. To get a glimpse of mary aligns and reconciles major economic accounts what the economy might look like in future years, the to create a reference point from which possible future baseline data for 2009 are extrapolated using scenar‑ changes can be measured. However, this snapshot ios to (numerically) describe the possible evolution of of the economy may not be completely representative externally relevant drivers (such as oil and gas prices) for other years. In 2009 Qatar’s economy experienced and internal forces (such as government spending).

Medium-term baseline scenario, 2011–2016 Arithmetic average, Indicator 2011 2012 2013 2014 2015 2016 2011–2016 National income and prices Real GDP (% growth, 2009 prices) 15.7 7.1 4.0 4.7 4.7 5.1 6.9 Hydrocarbon GDP 22.2 5.2 –0.9 0.0 –0.2 0.0 4.4 Nonhydrocarbon GDP 9.5 9.0 9.0 9.0 9.0 9.0 9.1 Real GDP per capita (% growth) 13.8 5.4 2.4 3.1 3.3 3.8 5.3 Total GDP deflator (% growth, period average) 3.9 4.2 3.5 2.3 2.9 –2.9 2.3 Nominal GDP at market prices (QR billions) 547 611 657 704 759 775 676 Nominal GDP (% growth) 20.2 11.6 7.6 7.1 7.8 2.0 9.4 Population (millions) 1.73 1.76 1.78 1.81 1.84 1.86 2.1a Consolidated government operations (% of GDP) Total revenue and grants 38.8 36.8 36.1 33.3 32.5 33.5 35.2 Hydrocarbon revenue 26.1 24.7 23.4 21.0 19.7 19.2 22.4 Crude oil revenue 12.2 11.0 10.3 9.8 9.3 9.5 10.3 Liquefied natural gas revenue 7.4 7.4 7.0 6.5 6.0 5.9 6.7 Investment income 6.5 6.4 6.1 4.7 4.5 3.8 5.3 Nonhydrocarbon revenue 10.1 9.4 9.9 9.3 9.7 10.8 9.9 Tax revenue 4.7 3.9 4.1 4.1 4.2 4.6 4.3 Total expenditure and net lending 26.9 26.0 25.4 26.2 26.4 27.9 26.4 Current expenditure 16.8 15.7 15.5 15.6 15.8 16.8 16.0 Capital expenditure and net lending 10.1 10.3 9.9 10.5 10.5 11.2 10.4 Overall deficit (–) or surplus (+) 12.1 11.0 10.8 7.3 6.3 5.7 8.9 Nonhydrocarbon balance –14.0 –13.8 –12.5 –13.8 –13.4 –13.5 –14.0 Growth in broad money supply (%) 20.2 11.6 7.6 7.1 7.8 2.0 9.4 Investment and saving (% of GDP) Investment 27.2 24.8 23.2 23.2 23.0 26.7 24.7 Public fixed investment 10.1 10.3 9.9 10.5 10.5 11.2 10.4 Private fixed investment 17.2 14.5 13.4 12.6 12.5 15.6 14.3 Hydrocarbon fixed investment 7.0 4.1 2.3 0.9 0.8 0.8 2.6 Nonhydrocarbon fixed investment 10.2 10.4 11.1 11.7 11.7 14.8 11.6 Gross domestic saving 59.2 54.7 49.4 46.9 43.6 45.4 49.9 Total saving 27.2 24.8 23.2 23.2 23.0 26.7 24.7 Foreign saving –24.1 –24.0 –21.1 –19.2 –16.7 –15.2 –20.1 Gross national saving 51.3 48.8 44.3 42.4 39.8 41.9 44.8

52 Qatar National Development Strategy 2011–2016 a h c pter 2

Box 2.1 Glimpsing the economy’s future (continued)

Arithmetic average, Indicator 2011 2012 2013 2014 2015 2016 2011–2016 Public 22.0 21.1 20.6 17.6 16.7 16.7 19.1 Private 29.3 27.7 23.7 24.8 23.1 25.2 25.6 External sector Current account balance (% of GDP) 24.1 24.0 21.1 19.2 16.7 15.2 20.1 Exports of goods and services (US$ billions) 89.4 96.6 96.9 98.4 98.5 100.0 96.6 Hydrocarbon exports (oil and gas) 78.9 84.5 83.6 84.0 83.2 83.7 83.0 Exports of goods and services (% of GDP) 59.5 57.6 53.6 50.9 47.2 47.0 52.6 Imports of goods and services (US$ billions) 41.3 46.4 49.6 52.5 55.6 60.3 51.0 Hydrocarbon imports 12.1 9.6 7.9 6.5 6.5 6.6 8.2 Imports of goods and services (% of GDP) 27.5 27.6 27.5 27.1 26.6 28.3 27.5 Gross international reserves (US$ billions) 20.4 24.2 25.9 27.5 29.1 31.5 26.4 Equivalent months of imports 5.5 5.8 5.8 5.8 5.8 5.8 5.8 External debt (% of GDP) Total external debt 62.3 69.4 77.8 82.7 84.6 91.3 78.0 Public external debt 9.9 9.0 8.5 8.5 8.3 8.7 8.8 Total external debt service 1.8 1.9 2.1 3.2 4.3 5.5 3.1 Memorandum items Exchange rate (QR per US$, average) 3.6 3.6 3.6 3.6 3.6 3.6 3.6 Crude oil priceb (US$ per barrel) 79.8 83.3 85.9 87.1 88.9 90.7 86.0 Natural gas, Japanese pricec (US$ per millions of British thermal units) 9.8 9.6 9.6 9.5 9.5 9.6 9.6

a. Compound annual growth over 2011–2016, based on end-2010 population of 1.64 million. b. IMF forecasts as of November 2010; other agencies may have different figures. c. World Bank forecasts as of November 2010; other agencies may have different figures. Note: Totals may not sum exactly from components due to rounding. Source: National Development Strategy 2011–2016 estimates. further gas production from the North Field until World Cup–related activity may provide new oppor- at least 2015 and possibly beyond. When gas pro- tunities in tourism and other areas. Completion of duction hits full capacity, growth of gas sector the new Doha airport is expected to provide a more output will reach 39% in 2011 but will flatten as vibrant air transport hub in the country. Amend- 2013 approaches. Declines in crude oil produc- ments to the foreign direct investment law enacted tion could be expected during this period, though in early 2010, allowing 100% foreign ownership in efforts are under way to stem them. service-related sectors (such as business consulting, technical services, information technology, culture, Although the slowing of aggregate growth is sharp, sports, leisure services and distribution services) this is not a reversal of fortunes, as income lev- may also contribute to growth in services. By 2016 els will remain high. Healthy growth of the non the service sector could account for 40% of total hydrocarbon sector is also expected and will help output, up from 36% in 2009 (figure 2.7). keep overall GDP growth buoyant (figure 2.6). Growth of nonhydrocarbon output is expected to Growth in construction is expected to keep pace average 9.1% during 2011–2016. with the broader economy. In the early part of the period, large investment spending, particularly Services are seen as a major driver. Transportation on megaprojects, will support construction sector and communications, as well as business and finan- growth. Construction may account for about 8% cial services, may grow vigorously over the period. of total output by 2016, up from 7% in 2009.

Achievements and economic outlook 2011–2016 53 Figure 2.6 With hydrocarbon growth decelerating, robust expansion elsewhere in the economy will help keep overall GDP growth buoyant

Contribution to nonhydrocarbon GDP growth (%) Nonhydrocarbon GDP growth Construction Manufacturing Services 15

10 1.3 1.3 1.3 1.3 1.3 1.3 1.6 1.5 1.5 1.5 1.6 1.6

6.4 6.1 6.1 6.2 6.1 6.1 5

0 2011 2012 2013 2014 2015 2016

Source: National Development Strategy 2011–2016 estimates.

Manufacturing growth is forecast to acceler- Figure 2.7 By 2016 the service sector may account ate. Although manufacturing has posted mod- for nearly 40% of total output, up from est growth in recent years, continued expansion 36% in 2009 in such industries as fertilizers, petrochemicals and metallurgy are expected to boost perfor- Output share (%) 2009 2016 mance. Forthcoming policy initiatives focusing 50 on enterprise creation, export promotion and innovation in science and technology are also expected to deliver payoffs in the years ahead 40 39.7 and to support a rise in the share of manufac- 36.1 turing output. 30 29.2 The share of hydrocarbons in total output may 24.5 decline to about 42% by 2016, from 46% in 2009. 21.7 20 Though gas may expand its share, this is unlikely to offset the declining share for oil in aggregate

10 12.3 output. 9.9 9.0 7.2 8.1 Although this baseline scenario anticipates rapid 0 growth outside hydrocarbons and a declining Oil Gas Construction Manufacturing Services hydrocarbon share, the overall level of economic concentration remains pronounced. In 2016 Qatar Source: National Development Strategy 2011–2016 estimates. will still be heavily dependent on hydrocarbon activity and income.

54 Qatar National Development Strategy 2011–2016 a h c pter 2 Population extent and speed of these changes will depend on policies governing immigration and opera- Further, but modest, increases in population are tion of the labour market. Policies that accelerate anticipated. In the baseline scenario the total the shift towards high value-added, capital- and population of Qatar grows steadily at an annu- knowledge-intensive activities suggest a trajectory al average of about 2.1% during 2011–2016, with in which total population might be in the range the total population rising from just over 1.64 of 2.2–2.8 million by 2030. But a persistence of low million at the end of 2010 to just under 1.9 mil- wages in the private sector would entrench the bias lion in 2016 (figure 2.8). The rapid population towards labour-intensive technologies and push in growth of the recent past is not expected to be the direction of a larger but less skilled popula- sustained. This assumption aligns with the con- tion. The timing and scale of activities related to jectures on output growth (see above) but sees the FIFA World Cup 2022 preparations add to the some advances in productivity, reducing employ- uncertainty. ment per unit of output. At the same time, the assumed structural shift to higher valued eco- Investment nomic activity presupposes steady advances in the skill level of the labour force and further On the expenditure side, the baseline scenario capital deepening. assumes that domestic demand will remain buoyant, fuelled by household spending and strong A shift in the demographic structure is expected domestic investment. Robust private demand is to accompany the projected move towards high- likely to be sustained by higher income and the er productivity activity. There will likely be an modest population increase. increase in the share of high-skilled, high-paid immigrants in the labour force, with a larger The investment pattern will reflect the decline in number of dependent children and spouses. The hydrocarbon capital spending. During 2011–2016

Figure 2.8 Qatar’s population is expected to grow steadily, at an annual average of about 2.1% during 2011–2016

Population (millions) 1.9

1.86 1.84 1.8 1.81

1.78 1.76

1.73 1.7

1.6

1.5 2011 2012 2013 2014 2015 2016

Source: Box 2.1.

Achievements and economic outlook 2011–2016 55 total real gross domestic investment might reach National saving and fiscal balances almost QR 820 billion (figure 2.9), with perhaps half that coming from the nonhydrocarbon sec- National saving will remain high. The ratio of tor. Central government investment is estimated at gross national saving to total GDP would, under QR 347 billion. the baseline assumptions, remain above 40% through 2014 but might edge down in the later Private investment outside hydrocarbons is seen years (figure 2.10). As a share of nominal GDP, taking the helm in driving growth. The baseline government saving (current revenue less expendi- scenario anticipates that nonhydrocarbon invest- ture) is expected to trend down. ment is driven by spending from largely government-linked Q-companies, such as Barwa, Qatar The baseline suggests that the overall government Diar, Qatar National Bank and Qatalum. With fiscal position (total revenue less current and capi- steady growth, the ratio of nonhydrocarbon pri- tal spending) remains healthy, with a surplus of vate investment to total GDP could reach 15% by 5.7% of GDP by 2016, but tighter than before (fig- 2016, nearly double its share in 2009. ure 2.11). The decline in the surplus reflects slower growth in nontax revenue than in major cur- On current plans, public infrastructure spending rent and capital expenditure components. The will peak in 2012, though the profile of the spend- government’s share of revenue streams of both oil ing pipeline will change if large new investments (where the take is large) and gas (where the cur- related to the FIFA World Cup 2022 and other ini- rent take is more modest) is assumed to remain tiatives are approved and commissioned prior to stable. If these shares were to rise, the surplus 2016. In the baseline, estimated real growth of might remain in double digits throughout. public investment may well peak in 2011–2012, settling to an average annual growth of about 5% Current account balance thereafter. Aggregate export growth will fall with slowing Figure 2.9 During 2011–2016 total gross growth in hydrocarbon export volumes. Baseline domestic investment might approach hydrocarbon export revenue projections assume QR 820 billion an average oil price of $86 per barrel during the period (IMF November 2010 forecast) and Cumulative gross domestic investment, 2011–2016 (QR billions) an average (cif) price for liquefied natural gas 400 of $9.60 per million British thermal units (fig- 389 ure 2.12). Overall growth of exports of goods 347 and services would, in the baseline scenario, slow 300 sharply from 2012 to an average of about 1% through to 2016. Nonhydrocarbon exports are 200 expected to show strong gains. With the projected decline in capital spending in the hydrocarbon sector, hydrocarbon-related imports are 100 estimated to contract for most of the period. 85 Nonhydrocarbon imports will keep pace with the

0 overall growth of the nonhydrocarbon economy. Public, central Private, hydrocarbon Private, nonhydrocarbon government sector sector With a declining trade surplus, net factor income

Note: Investment in the nonhydrocarbon sector includes investment of state-linked and -invested (supported by income receipts generated from companies and private investment. investment in foreign assets) helps maintain a Source: National Development Strategy 2011–2016 estimates. healthy current account balance. In the baseline

56 Qatar National Development Strategy 2011–2016 a h c pter 2

Figure 2.10 The ratios of gross national saving to total GDP and government saving to GDP are expected to decline but remain substantial

% of GDP 60

Gross national 40 savings

Private savings

20 Government savings

0 2011 2012 2013 2014 2015 2016

Source: Box 2.1.

Figure 2.11 The overall government fiscal position the current account balance may peak at about is expected to remain healthy, with a 24% of GDP in 2011–2012, and although possibly surplus of 5.7% of GDP by 2016 declining in the later years, it could still be as high as 15% of GDP in 2016 (figure 2.13). % of GDP 15 Hydrocarbon swing factors

It is important to understand, especially for policy

12.1 planning, the boundaries within which economic outcomes could occur given changes in the frame- 11.0 10.8 10 work’s key assumptions. The baseline underlying the preceding discussion works within one set of assumptions. But several swing factors could mate- 7.3 rially shift the baseline trajectory. Two scenarios 6.3 are of particular relevance: lower oil prices and 5 5.7 lower gas prices.

Oil at $74 a barrel?

For a hydrocarbon-based economy like Qatar, a 0 future of low oil prices (at least in the medium 2011 2012 2013 2014 2015 2016 term) would have a considerable impact on the Source: Box 2.1. financial resources available, with implications for

Achievements and economic outlook 2011–2016 57 Figure 2.12 Oil prices are projected to rise, gas prices to remain range bound

Qatar, export oil price Japan, liqueﬁed natural gas import price US$ per barrel US$ per million British thermal units 100 10.00

75 9.75

50 9.50

25 9.25

0 9.00 2011 2012 2013 2014 2015 2016

Source: International Monetary Fund (IMF) Qatar Article IV report and Statistical Appendix January/February 2010; IMF Qatar Medium-Term Baseline Scenario; World Bank Commodity Prices database.

Figure 2.13 The current account surplus should remain sizeable, peaking at 24% of GDP in 2011, declining to 15% by 2016

% Goods and services export growth Goods and services import growth Current account balance (% of GDP) 40

24.1 24.0

20 21.1 19.2 16.7 15.2

0 2011 2012 2013 2014 2015 2016

Source: National Development Strategy 2011–2016 estimates.

58 Qatar National Development Strategy 2011–2016 a h c pter 2 sustainable growth paths. As mentioned above, overall fiscal balance narrows. By 2016 the assump- while the global recovery has gained traction in tion of lower oil prices cuts the overall fiscal balance the last few quarters, medium-term global growth from almost 6% of GDP to 4%. To the extent that prospects remain fraught with downside risks. government diversifies its income over the period, And with the trend in commodity markets tightly adverse fiscal impacts would be dampened. linked to global demand, a renewed softening of commodity prices from the peaks reached in early More pessimistic assumptions about the future of 2011 cannot be ruled out. oil prices—but certainly not outside the bounds of recent experience, when prices dipped to $34 in This alternative scenario assumes that oil prices the summer of 2009—could move the overall fis- fall 14% relative to their average baseline price cal balance into deficit, holding spending trajec- of $86 per barrel. Average crude oil prices have tories constant. Accurately forecasting oil prices is been on an uptrend since early 2009, after a sharp laden with difficulty, and plausible future prices decline in the last quarter of 2008 following the could fall within an extremely large range. Natu- crisis. Having peaked at over $90 per barrel in rally, if prices climbed substantially above the base- April 2010, oil prices have since stayed mainly in line assumption, this would expand fiscal space. the $70–$80 range, with drifts above $90 in late 2010 and towards $100 in early 2011. Gas prices down 30%?

A view that average crude oil prices during 2011– Benchmark oil and spot gas prices used to trend 2016 will remain at around $74 per barrel alters the together, but no longer. Oil and gas prices have baseline results. This lower oil price scenario results historically tended to follow each other quite close- in both less aggregate income and a slower growth ly, with relative prices not drifting too far from trajectory relative to the baseline. In this scenario their energy equivalent ratios, as measured in U.S. gas prices are held at their baseline values, even dollars per barrel for oil and in U.S. dollars per though Qatar’s liquefied natural gas price basket is million British thermal units for gas. Periodically, likely to be linked to benchmark crude prices. This significant global demand shocks, hurricanes, and treatment will tend to dampen estimated impacts. unseasonal weather have driven a wedge between the prices, but there has been a tendency for the Applying the lower oil price assumptions suggests price ratio to revert. While some uncoupling was that the average nominal GDP level (nominal GDP evident after mid-2006, it became particularly pro- better captures the impacts of oil price changes on nounced in 2009 and 2010. Spot gas prices plum- domestic income than do traditional volume meas- meted with oil prices in early 2009, but when oil ures of GDP for Qatar) would shrink 2% relative prices recovered, gas prices continued to sag. Prior to its baseline level by 2016. Nominal GDP growth to 2006 the ratio of oil to gas prices had averaged under the lower oil price assumption would track about 7.5, giving oil a slight price premium over slightly lower, at about half a percentage point gas (based on the energy equivalent ratio of 6.9). below the baseline. These small impacts on growth By the end of April 2010 the ratio had climbed to are felt more or less evenly throughout the period. 22.1, giving oil a significant price premium.

Impacts on the budget would be pronounced. The The dynamics underlying the evolution of the government budget’s take of total oil revenue has link between spot gas and benchmark oil prices historically been high, and much higher than for are not easy to predict. Uncoupling appears to liquefied natural gas. Lowering oil prices and oil have occurred for three main reasons. First, gas revenue, therefore, has significant knock-on effects and oil are competing less in the same end-use on government revenue and saving. With expendi- markets and so are not close substitutes—oil’s ture more or less tracking as in the baseline, the major use is in transportation, and natural gas is

Achievements and economic outlook 2011–2016 59 used mainly for power production, where it com- fall in the price of Qatar’s liquefied natural gas petes with cheap and sometimes subsidized coal. basket reduces nominal GDP in each year (figure Second, there have been significant new discov- 2.14). Cumulative income losses over the period eries of “unconventional gas” (mainly shale gas), are QR 357 billion, a 9% reduction from the base- which have boosted supply, particularly in the line level of cumulative GDP. This is a large effect, United States. The initial impact of added sup- especially given that actual falls in U.S. (Henry ply was confined to the U.S. spot market, but as Hub) and European (Balancing Point) spot mar- surpluses found their way to Europe, spot prices kets have been well in excess of the 30% drop have dropped there too. Third, the global reces- assumed here. sion appears to have had a differential impact on demand for oil and gas. Pundits are divided on Fiscal saving impacts are also heavy. Govern- the longer term future of the link, but few seem ment saving, under these assumptions of lower to expect any reversion to historical price parities gas prices and steady expenditure, could be soon. reduced to 3.4% of GDP by 2016. This is almost 2 percentage points lower than the baseline, Looking ahead, the International Energy Agency despite a modest fiscal take from gas. Because expects global demand for gas to broadly main- the fiscal take from liquefied natural gas reve- tain its share in total energy demand through nue has been historically modest and is assumed 2030. The penetration of gas in some large mar- to remain so in this scenario, this dampens the kets, such as China, is still at low levels. And Qatar reverberations on the government’s budget. is particularly well positioned to take advantage of Raising the fiscal take from gas would gener- emerging opportunities as its investments along ate larger surpluses in the future, but it would the supply chain and its extremely competitive also make fiscal balances more responsive to gas production costs continue to give it the flexibili- price movements. ty to compete in markets globally. But there are also uncertainties. On the demand side, opportu- Figure 2.14 An assumed 30% fall in the prices of nities for gas to displace fuel oil in power genera- Qatar’s liquefied natural gas basket tion have just about been exhausted and, in the reduces nominal GDP absence of a carbon tax or an end to subsidies for coal, coal could remain a cheaper and favoured Change in GDP (%) source of fuel for power generation in China and 0 India. On the supply side, large additions to liquefied natural gas supply, particularly from Austral- –2 ia, are coming onto the market and could tough- en conditions for Qatar, particularly in the Pacific –4 basin market.

–6 –6.3 This scenario assumes a 30% fall in the baseline gas price after 2010, bringing the gas price to an –8.0 –8 average of $6.9 per million British thermal units, –8.7 which in energy terms is broadly equivalent to $48 –9.5 for a barrel of crude oil. –10 –10.7 –10.6

Negative income and fiscal impacts follow. –12 Because the share of liquefied natural gas in total 2011 2012 2013 2014 2015 2016 output will rise over the period, the impact of fall- Source: National Development Strategy 2011–2016 estimates. ing prices on income is large. The assumed 30%

60 Qatar National Development Strategy 2011–2016 a h c pter 2 FIFA World Cup 2022 and higher government After 2012, when the current expansionary phase investment spending? of hydrocarbon development ends, the macro- fiscal framework suggests that the structure of Hosting the FIFA World Cup in 2022 presents Qatar’s economy will be such that 5 percent- Qatar with new opportunities. Over the early part age points of additional public sector investment of 2011–2016 the economic impacts of the World spending would be needed to generate a 0.5 per- Cup are likely to be modest, but Qatar must pre- centage point temporary acceleration of growth pare for sizeable infrastructure investments to fol- in nonhydrocarbon output. The domestic income low. These investments will be significant relative generated by added capital spending is diluted to the size of the economy, and their macroeco- both because a high proportion of the spending nomic and longer term development impacts war- is likely to be on imports (capital goods and mate- rant close attention. Well beyond 2022, the World rials as well as consumption) and because a large Cup may present opportunities to strengthen the share of wage income earned by expatriate work- structure and performance of Qatar’s nonenergy ers is likely to be remitted rather than spent local- sectors. ly. The fiscal impacts of higher public investment spending could be significant because it is unlike- In the immediate future (2011–2012) the World ly to generate much of a tax offset. There is also Cup could affect trading and speculative invest- a risk of inflationary pressures if the phasing of ment activity. The impacts would likely be tem- large-scale projects creates or aggravates supply porary, and the government will monitor them bottlenecks. to prevent abuse of market power and protect the broader public interest. During the period covered by the National Devel- opment Strategy 2011–2016, preparations for the From the perspective of the country’s economic World Cup will gather momentum. Institutional diversification ambitions, the World Cup presents arrangements for overseeing and managing World new opportunities for Qatar. Public-private part- Cup–related activities will be established, and the nerships may benefit some projects and should be pipeline of investments to deliver needed infra- considered within wider public investment deci- structure services will be prepared. From a plan- sion processes. On the business front the World ning perspective the World Cup is best considered Cup will create opportunities for domestic enter- within the broader framework of national develop- prises to form strategic alliances externally and ment and not as a one-off event. Integrating plan- to connect to global value chains. The World ning and funding arrangements within broader Cup will also accentuate some challenges. Qatar frameworks for the overall fiscal and budgetary should leverage the World Cup to close gaps in its management of the economy will be important. capabilities. For example, investment agreements A beneficial legacy will require scrutiny of large could include mechanisms that secure knowledge World Cup–related capital projects for their long- and technology transfer. term socioeconomic and environmental impacts.

As mentioned, though some World Cup–related Supporting the National Development investment projects may be commissioned during Strategy 2011–2016 2011–2016, the added impact of World Cup activity during this period is likely to be modest. A size- As this chapter shows, Qatar’s economic prospects able pipeline of investments is already in place. In remain favourable under plausible assumptions. general, the macro-fiscal framework suggests that In 2011 the economy should register double-digit additional investment spending (whether public growth, but after that real growth is likely to shift or private) is likely to have only a moderate short- down. The growth of hydrocarbon income will slow, run demand impact on local output and income. but robust expansion elsewhere in the economy

Achievements and economic outlook 2011–2016 61 should keep overall GDP growth buoyant, with ser- delivery of public services, fruitful public-private vices as a major driver and manufacturing edging cooperation and partnerships, a vibrant climate up. The government’s fiscal position is expected to for business and a larger space for civil society. remain strong and will be adequate to support the Credible, client-focused and capable institutions programmes of the National Development Strategy that deliver timely and accountable services to citi- 2011–2016. Gross national savings are likely to zens and respond to their concerns are the keys to remain above 40% of GDP through 2014 but might improvement. edge down in the later years. The overall fiscal balance would narrow from current highs to just below In policy and planning, public sector institu- 6% of GDP by 2016, still very healthy. tions need to become more forward-looking and focus on outputs and results rather than inputs. Presenting larger challenges are the constraints This will require linking the national budget up on human and institutional resources, a recurrent to national goals and down to the output-based theme in the chapters that follow. Qataris, with operational planning in line ministries and agen- a labour force participation rate of around 50%, cies. Institutions need to move beyond a silo men- constitute only 6% of the labour force, heavily tality, with little accountability for outcomes, to concentrated in the government and state-linked active cross-institutional collaboration. In human companies (95%). Efforts that equip Qataris with resources management the lack of performance the skills required to attain their maximum poten- standards and management systems needs to be tial in both the public and private sectors warrant remedied by developing career paths tied to per- close attention, and their success will be vital to formance. And institutional processes, centred on creating a vibrant nonhydrocarbon economy and departments and implemented manually, need to broader societal capabilities. be streamlined and customer driven through one- stop windows enhanced by integrated information Qatar also needs strong public sector institutions systems. to achieve the goals of QNV 2030 for social progress, human development, a sound and diver- These themes and issues are taken up in the chap- sified economy and a sustainable environment. ters that follow. In chapter 3 attention turns first to That will require institutional and organization- the challenge of creating the conditions that can al capacity building, efficient and transparent support the achievement of sustainable prosperity.

62 Qatar National Development Strategy 2011–2016

Part 2 The four development pillars Part 2 The four development pillars Chapter 3 Sustaining economic prosperity Chapter 3 Sustaining economic prosperity 3 Sustaining economic prosperity

“Sustaining prosperity over the long term requires wise management of exhaustible resources to ensure that future generations inherit ample means to meet their aspirations.”—Qatar National Vision 2030

Qatar National Vision 2030 (QNV 2030) articulates institutions (defined broadly to include markets, three interrelated goals for the economy. It looks systems, rules, organizations and social capital). to sustain a high standard of living, to expand When the value of the productive base grows, there innovation and entrepreneurial capabilities and are more opportunities for the average citizen, and to align economic outcomes with economic and when it shrinks, there are fewer. To be sustainable, financial stability. an economy with a growing population must have an expanding productive base. Sustainability also QNV 2030 defines sustainability as meeting the requires that depletion of any component of the needs of the current generation without compro- productive base be compensated by investments of mising those of future generations. There are at least equal value in its other components. many paths to sustainability; the goal of prosperity clarifies the development path the country wants The pace at which the value of the productive to pursue and the ones it wants to avoid. While base expands depends on how stability and effi- this broad perspective does not specify a particu- ciency influence the volume of investment and the lar set of operational rules, it provides clear direc- returns to that investment and on how econom- tion for the economy. ic discovery and diversification expand opportunities. Links run in the other direction, too, with To embed sustainability in Qatar’s economy, pro- the capabilities embedded in institutions and peo- gress is needed in three parallel, mutually rein- ple (which are vital parts of the productive base) forcing directions (figure 3.1). First, the coun- determining the economy’s ability to navigate try will enlarge the value of the productive base, a stable path, allocate resources efficiently and which is necessary to sustain prosperity in an econ- diversify into new activities. omy with a growing population and to expand the potential for future generations. Second, the gov- Mutually reinforcing relationships also exist ernment will guard against economic instability between economic structure and economic efficien- and promote increased efficiency. Third, the gov- cy and stability. In particular, the underlying struc- ernment will work in partnership with the private ture of economic activity influences the economy’s sector to diversify the economy and foster a cul- vulnerability to shocks at an aggregate level, with ture of discovery and innovation. more diversified economies being less prone to risks and displaying less volatility. At the same time, the The “productive base” is the value of all the coun- degree and pace of diversification of the domestic try’s resources: its man-made capital (plants economic base depend on how efficiently resources and buildings, machinery and infrastructure), are allocated within the economy. Inefficiencies can human capital, natural resources, technology and hobble diversification efforts by undercutting cost

68 a h c pter 3

Figure 3.1 Sustainability and the economic framework

Expanding the productive base

Access to inputs: infrastructure, technology, knowledge and skills Expanded “industry” capabilities

and economic potential

Enhanced institutions, Increased asset values regulations and capabilities and expanded investment

Reduced distortions, less waste, lower costs, improved Enhancing investment allocation Promoting stability and discovery and efﬁciency Reduced risks and diversiﬁcation greater economic resilience

competitiveness and by allocating resources to activ- Setting speed limits on depletion and consumption ities that yield low returns or are not viable. In managing the economy and the nation’s pro- Expanding the productive base ductive base, Qatar must address two fundamental questions: “Converting [hydrocarbon] assets into financial wealth • At what speed should it deplete its hydrocarbon provides a means to invest in world class infrastructure; resources? build efficient delivery mechanisms for public services; • How should it divide the value it captures create a highly skilled and productive labour force; and between consumption and saving? support the development of entrepreneurship and innovation capabilities.”—Qatar National Vision 2030 In theory, optimal depletion (essentially a choice about how much wealth to keep in the ground The first challenge for Qatar will be expanding and how much to convert to financial resources) its productive base. The concept of the productive means selecting the path of consumption and base is comprehensive (see previous section). The saving that generates the maximum social bene- focus in this chapter is on what sustainable pros- fit. But in practice, choices are limited. Previous perity means in operational terms, how it relates investment decisions in the hydrocarbon sector, to where Qatar is going and how Qatar can best essentially irreversible, place boundaries around direct its development path to achieve this goal. depletion options. For example, Qatar’s joint ven- The human, social and environmental dimensions ture agreements with international oil compa- of sustainability are investigated in chapters 4–6. nies and long-term purchase agreements with

Sustaining economic prosperity 69 customers for gas set the pace at which hydrocar- The calculations in box 3.1 are illustrative but bons can be exploited. underscore the fact that sustainability places boundaries on what the country can consume A moratorium on further production of gas from while preserving wealth for future generations. the North Field is also in place until an investiga- As Qatar’s hydrocarbon income tapers off (either tion of its reservoir characteristics is completed through declines in production or reduced unit (not expected before 2015). Future rates of deple- rents), alternative sustainable sources of income tion would be decided based on the outcomes of must be created to support public consumption the investigation, taking into account reservoir and cover Qatar’s import bill. conditions and estimated gas reserves, cost and technological factors, domestic market needs and So, where is Qatar headed? On the one hand, high expected market conditions. But wider sustainabil- savings rates are reassuring; gross national sav- ity considerations also mean that the capacity of ing over 2011–2016 is expected to average 45% of the economy to absorb and productively deploy GDP (see chapter 2). On the other hand, contin- the financial resources from hydrocarbon wealth ued high dependence on hydrocarbon revenues will influence decisions about the rate at which to finance both fiscal and import spending sug- reserves are depleted. gests that fiscal and balance of payments stability deserve continuous and close attention. The Given boundaries around depletion parameters nonhydrocarbon fiscal deficit is expected to aver- and the expected value of the income flowing age 14% of GDP over 2011–2016, a reduction from to the state, the next layer of decisions revolves the deficit of 19% in 2009. Sustainability requires around how much to consume and how much that this deficit eventually be eliminated and that to save. The government understands that these the nonhydrocarbon income base be adequate decisions lie at the crux of economic sustainabil- to fund fiscal spending and meet import needs. ity. Sustainability requires adequate saving to support investments that expand the productive base. Box 3.1 Discounting the future—calculating Unsustainable outcomes occur when there is too limits on consumption much consumption and the value of the productive base fails to keep up with population growth. Based on UN environmental accounting methods, a range of estimates of sustainable consumption lev‑ These concepts can help define boundaries on els emerge depending on assumptions about the fu‑ consumption. The dividing line between sustain- ture volume of hydrocarbon production and the real able and unsustainable consumption levels can be rents it generates (revenues less all costs, including ascertained by considering how much consumption an allowance for the cost of capital, all measured Qatar’s hydrocarbon wealth can permanently sup- in real terms) and the rate at which society’s future port. In theory, this is equal to the annuity equiva- wealth is discounted (the social discount rate). To lent of the expected present discounted value of the simplify, imagine that over some relevant planning state’s hydrocarbon income stream (net of all costs), period the projected net income from Qatar’s hydro‑ calculated over some suitably long planning hori- carbon reserves has an expected discounted value zon. This annuity value sets a ceiling on the average of QR 1.5 trillion. At a real return of 3.5%, which level of consumption that can be sustained while is broadly the long-term return on a fixed-income preserving the value of the nation’s wealth (hydro- portfolio, this equates to an annuity value of about carbon and financial) at the end of the planning QR 54 billion a year. But with a growing population, period. With a growing population, the calculation the preservation of initial per capita wealth would is a little trickier, and sustainability requires addi- require additional saving and lower spending to sup‑ tional saving to support steady per capita consump- port a larger future population. tion. Box 3.1 discusses aspects of these calculations.

70 Qatar National Development Strategy 2011–2016 a h c pter 3 The government will examine required structural Such partners bring technology, know-how and adjustments as part of the wider reform of fiscal access to markets and global supply chains. What and budgetary processes. Already, government has the partners find in Qatar is access to cheap feed- taken decisive steps to diversify its sources of for- stock and energy, favourable profit-sharing agree- eign investment income (see the section on build- ments, low taxes, freedom to remit profits and ing a diversified economy later in this chapter). other benefits. State-linked investments—often through Q-companies, with significant owner- A national investment framework for Qatar ship held by the government of Qatar or related entities—will inevitably continue to support Another question follows logically from depletion Qatar’s industrial expansion and growth. and consumption decisions—how should Qatar invest? The form of investment matters, and once The investment plans of Q-companies (exclud- made, many investments are not easily reversed. ing Qatar Petroleum and related companies) for 2011–2016 amount to over QR 130 billion. These The concept of “genuine investment”, which is include about QR 100 billion in investments by the measured change in the value of the produc- Barwa and Qatar Diar for residential and business tive base over a relevant interval, embraces invest- construction projects. Next most significant are ments in man-made assets, in human capital, in investments in health and education by the Qatar natural capital and in social technology (such as Foundation, with Sidra Hospital and Education capabilities, knowledge, research and develop- City committing about QR 19 billion. ment, and institutions). This part of the Nation- al Development Strategy 2011–2016 focuses on For Qatar Petroleum and related companies, investments in man-made assets and on financial 2010 was a pivotal year when a series of liquefied claims against assets that generate a future stream natural gas projects culminated. Nevertheless, of income. Such investments take three basic investments will remain relatively strong over the forms: investments in the industrial and commer- medium term, amounting to about QR 88 bil- cial development of the country, in national infra- lion during 2011–2016. These investments include structure and in foreign assets. plans for about QR 7 billion in expanded capacity of Industries Qatar companies in the petrochemi- Planned investment spending cal sector, including producers of low-density poly- ethylene, ammonia and urea. Sizeable investments are planned over the period covered by the National Development Strategy The government also plans more than $65 bil- 2011–2016. Gross investment is expected to aver- lion in infrastructure spending through 2016 (fig- age 25% of GDP over 2011–2016. Significant addi- ure 3.2). Current plans envision improvements tional investments in the gas sector will await deci- in the power and water sectors, the new Doha sions on the moratorium, which will not occur port and the information and technology sector. before 2015. Investment in road infrastructure will be critical to reducing inefficiencies and assisting regional The state is heavily involved in Qatar’s indus- integration. An internal rail network and a Doha trial sector, largely through the interests of the metro system are also being considered. The pipe- government-linked Industries Qatar and the use line of planned infrastructure investment raises of state resources to fund other businesses. Many issues of priority-setting and efficiency. Looking of these ventures leverage Qatar’s natural advan- to the future, the government will work to ensure tage in hydrocarbons and energy and have a suc- that the nation develops a world-class infrastruc- cessful commercial track record, often with the ture backbone, with projects set out in an integrat- involvement of foreign joint venture partners. ed national infrastructure master plan.

Sustaining economic prosperity 71 Figure 3.2 The government plans more than $65 billion in infrastructure spending through 2016

Expected infrastructure spending (US$ billions) 25

0 2011 2012 2013 2014 2015 2016

Qatari Diar Roads Sidra Hospital Qatar-Bahrain Causeway Airport Water Qatar National Bank Port Wastewater Barwa Metro and rail Power Education City

Source: MEED Project database.

In several areas additional infrastructure invest- • Review the feasibility of additional infrastructure ments beyond those already planned could contrib- investments to promote sustainable resource use. ute to national development objectives. The cost of these projects—between $8.5 billion and $12.5 Economic rents and investment billion—is relatively modest, but the resulting contribution to sustainable resource management could Because Qatar’s hydrocarbon assets are the prop- be significant. This portfolio includes extension of erty of the state, the government has a responsibil- the treated sewage effluent distribution system, so ity to maximize the value it captures from their that it can reach agricultural areas; new facilities for exploitation. It may do this through fiscal mea- the treatment of industrial wastewater; repairs and sures, contract arrangements or some combina- improvements to the distribution system for desal- tion of both. In principle, the state will strive to inated water; upgrades of wastewater treatment capture all rents embodied in the hydrocarbon plants for production of high value-added treated assets it owns and to ensure an adequate return on sewage effluent; and upgrades of selected power gen- any capital that it invests. If hydrocarbon rents are eration facilities. (The specific rationale for these efficiently targeted, the volume of private invest- targeted investments is explained in the next section ment should not be affected (investment neutral- on enhancing technical and economic efficiency.) ity) because private investors will still earn their required risk-adjusted rate of return. Targets for 2013 • Formulate a national infrastructure strategy In practice, hydrocarbon rents captured by the and master plan and strengthen coordination state are unlikely to be maximized. One reason functions. for this is that maximizing them would require

72 Qatar National Development Strategy 2011–2016 a h c pter 3 tailoring fiscal and contractual arrangements to closer to sources of energy and feedstock provide each investment. The information needed to cal- one avenue for investment. ibrate optimal contracts is unlikely to exist, and implementation capabilities will get stretched over Another opportunity is to integrate along the ener- a large number of such investments. So while the gy supply chain. One possibility is to export surplus principles of optimal rent capture and investment power generated from gas to the region and beyond. neutrality serve as a useful guideline, pragmatism But this will require additional cross-border invest- requires the application of frameworks that reflect ments and cost-efficient technologies. High-voltage realities and can be implemented. direct-current cables are one option. They lose very little energy in long-distance transmission (about In the future, as in the past, the government will 3% per 1,000 kilometres) and perform efficiently ensure that the structures governing hydrocarbon- under water. High-voltage direct-current transmis- linked investments, upstream and downstream, pro- sion lines already connect the French and U.K. grids vide adequate flexibility to deal with project specifics as well as the grids of Scandinavia, the Netherlands and changing cost or market conditions. Equitable and northern Germany. The capital costs of such risk-sharing arrangements will also be important. investments are continuing to fall. While the state will take steps to eliminate all sources of risk within its control, the elimination of oper- Sustainability can also be given a stricter defini- ational or commercial risks through state guaran- tion that equates viability with the ability to export tees or other means will be detrimental if it dilutes without the benefit of temporary location cost incentives for the private sector to perform. In cir- advantages or direct or hidden subsidies. Eco- cumstances where hydrocarbon rents are shared nomic activities that meet hurdle returns with all with private investors, the state will seek to ensure inputs priced at border prices would enjoy such a that these rents are compensated by other benefits long-term competitive advantage. that flow to the country (such as the acquisition of technology, infrastructure or knowledge and skills). Other countries provide examples of activities that meet this robust test of sustainability. Petro- Investment and sustainability chemical production in Singapore, which relies completely on imported feedstock, is sustainable No isolated investment is permanently sustainable in this sense. Likewise, the Norwegian oil services because all capital projects have a finite life. New industry, which exports globally, would be viable technologies, changing tastes, new sources of com- even if the country had no domestic oil produc- petition, reassessments of risks and exhaustion of tion. The challenge for Qatar is to carve out its resource inputs can bring to a close what was once own niches of advantage in the hydrocarbon sup- a good business. Therefore, what matters for sus- ply chain, exporting services and knowledge to tainability are the net resources that a project can other countries. One promising area is the pro- make available directly or indirectly to support cessing, transportation, distribution and storage future well-being. of liquefied natural gas. Qatar has an established advantage in production and transportation and a Qatar will leverage its cheap domestic feedstock potential advantage in vertical integration of con- and energy to contribute to long-term economic nected activity in distribution and storage. diversification and the expansion of the productive base. The relevant test is that associated invest- Currently, Qatar lacks a focal point for investment ments provide an acceptable risk-adjusted return and industry development. Qatar Petroleum and on the totality of the resources committed by the related companies as well as other entities in the state. Industries that gain advantage by eliminat- energy sector have performed well in spearheading ing transport and distribution costs and locating investments, but as Qatar diversifies its economy

Sustaining economic prosperity 73 beyond carbon (discussed later in this chapter), a enhancing economic stability), provide income stronger policy and coordination function may be for the future and diversify Qatar’s income base. useful. In some countries, high-level independent Decisions on how much to allocate to investment agencies have had a central role in advising govern- in foreign currency assets ultimately rests with ment and implementing investment and industry the Supreme Council for Economic Affairs and development policies. Examples include the Indus- Investment. trial Development Agency in Ireland and the Eco- nomic Development Board in Singapore (box 3.2). Decisions on financial investments for the coun- Qatar will review its institutional arrangements to try will address its specific needs: foreign curren- determine which can best support its objectives to cy reserves to support management of the curren- sustain growth and diversify its economy. cy and to meet payment obligations; liquid assets to support stabilization goals; longer term invest- Target for 2012 ments to diversify income and provide funds for • Review institutional arrangements to support the future; and strategic investments to acceler- growth and diversification of the economy. ate the acquisition of knowledge, technology and capabilities that can expand and diversify Qatar’s Qatar’s investments in foreign assets productive base. These matters and responsive strategies will be carefully considered within the Investments in foreign currency assets help wider context of the design of the nation’s eco- sterilize the liquidity impacts of hydrocarbon nomic policy architecture. income inflows (discussed in the next section on Enhancing economic stability Box 3.2 Economic Development Board of Singapore The second challenge for Qatar will be “to choose and manage a pathway that delivers prosperity yet avoids The Economic Development Board of Singapore‑ economic imbalances and stresses.”—Qatar National —a one-stop shop for investment and industry— Vision 2030 has pursued its mandate through various av‑ enues: promoting investment and co-investment Economic stability is needed if investors are going with foreign multinational companies, providing to make long-term commitments to expanding the post-investment services, facilitating access to productive base. While every economy encoun- serviced industrial land, supporting the immigra‑ ters bumps in the road, excessive or prolonged tion of skilled workers, funding research and volatility—with radical swings in demand, steep development, identifying strategic sectors for its inflationary trends or financial convulsions— co-investment activities, brokering joint ventures erodes business confidence, deflecting attention between local and foreign firms, establishing tech‑ from strategic investments and choking off access nical training institutions and offering support pro‑ to credit and longer term sources of finance. grammes for local suppliers. The board also acts as a forum for private sector and foreign investors The causes and consequences of instability to elevate their concerns to the government. The board’s functions did not spring up over‑ Chronic economic instability discourages invest- night but evolved over time in response to shift‑ ment, local and foreign. It eventually becomes ing national development needs and perceived socially corrosive, undermining trust. Although constraints. Its role in fostering Singapore’s some people find ways to generate gains from development is generally considered to have been the distortions and fluctuations, ordinary citi- significant. zens usually find managing their uncertain economic future difficult and revert to narrowly

74 Qatar National Development Strategy 2011–2016 a h c pter 3 self- interested coping mechanisms. With social particularly difficult for policy-makers to judge trust fractured, there is little space for participa- the most constructive fiscal stance (figure 3.5). tion in broader efforts to advance the public good. There is always a risk that errors in fiscal calcu- Qatar has been susceptible to considerable meas- lations will accentuate volatility. Given the unpre- ured volatility—among a sample of 57 countries dictability of global oil prices, it is virtually impos- it displayed the highest level of nominal income sible to know whether price changes are temporary volatility between 2002 and 2007. Inflation accel- or lasting. An oil price rise that is thought to be erated sharply from 2005, hitting a high of about permanent might reasonably justify support for 15% in the first quarter of 2008 (figure 3.3). The increasing services to citizens. But if the rise is run-up was caused by a rapid expansion in credit temporary, the higher transfers might generate a fuelled by booming hydrocarbon income aggra- range of unintended consequences, including a vated by supply-side bottlenecks. Inflation cooled structural funding gap. Even if the price increase when the deep global recession of 2008 and 2009 holds, caution is needed. If the economy is already depressed global and domestic demand. operating close to capacity, ramping up spending in the short run could lead to inflation. Hydrocarbon dependency exposes Qatar to gyra- tions in global energy markets, leaving economic To some extent, Qatar is shielded from gyra- planning prey to high uncertainty. In June 2008 tions in international hydrocarbon prices. Most oil sold for $114 per barrel; six months later, in of Qatar’s gas is sold on long-term purchase and December 2008, the price had declined to just $41 sales agreements whose prices are set accord- per barrel. For a hydrocarbon-exporting econo- ing to a moving average benchmark price for oil. my such as Qatar, energy price shifts hit the fis- This approach somewhat reduces the volatility cal revenue stream directly, creating ripple effects in Qatar’s liquefied natural gas (LNG) revenue throughout the economy (figure 3.4). The inher- stream. But the protection is only partial because ent unpredictability of energy prices makes it LNG prices still track oil prices, and some of

Figure 3.3 Inflation accelerated sharply from 2005, hitting a high of about 15% in the first quarter of 2008

Consumer price index and inﬂation Consumer price index composition In ation rate (annual % change) Consumer price index (2006 = 100) Category Weight 15 160 15 Food, beverages and tobacco 0.13 14 Clothing and footwear 0.06 12 Rent, utilities and related housing services 0.32 131 10 124 120 Furniture, textiles and home appliances 0.08 9 114 Medical care and health services 0.02

7 100 Transport and communication 0.20 89 Entertainment, recreation and culture 0.11 5 82 80 77 Miscellaneous goods and services 0.07 Consumer price index 1.00 2

0 40 Consumer price index is influenced most by rents and housing-related expenses, which fell sharply in 2009.

–5 –5 0 2003 2004 2005 2006 2007 2008 2009 Source: Qatar Statistics Authority (http://www.qsa.gov.qa/eng/index.htm).

Sustaining economic prosperity 75 Figure 3.4 For a hydrocarbon-exporting economy such as Qatar, price shifts hit the fiscal revenue stream directly, creating ripple effects throughout society

Nominal GDP (QR billions) Hydrocarbon Nonhydrocarbon West Texas Intermediate spot price, quarterly average (US$ per barrel) 150

124 118

98 100 41 91 34

75 34 32 65 68 58 59 29 65 58 28 63 26 50 52 38 43 46 40 41 41 38 38 36 33 30 31 31

0 Q1 Q2 Q3 Q4 Q1 Q2 Q3 Q4 Q1 Q2 Q3 2007 2008 2009

Source: Qatar Statistics Authority (http://www.qsa.gov.qa/eng/index.htm); U.S. Energy Information Agency Petroleum Statistics database.

Figure 3.5 The volatility of oil prices makes it Qatar’s LNG contracts provide for periodic rene- difficult for policy-makers to judge the gotiation or adjustment in volumes purchased. most constructive fiscal stance Pressures for downward adjustments to contract prices would grow if there were a prolonged peri- % of GDP od of price weakness in the spot market for LNG 25 (see chapter 2).

The policy of pegging the Qatari riyal to the U.S. 20 dollar can create challenges for economic man-

Government saving agement. Particularly when demand conditions in 15 Qatar and the United States diverge, Qatar Cen- tral Bank has little leeway in pulling domestic monetary levers in the desired direction. All told, 10 the monetary arrangements required by the peg Overall scal balance create another element beyond the government’s

5 control—similar to the exposure to global oil prices—that could generate instability in Qatar’s economy. 0 2002 2003 2004 2005 2006 2007 2008 2009 Fortunately, Qatar’s episodes of volatility have not had the viral effects that have sapped some econo- Source: International Monetary Fund (IMF) Qatar Article IV report and Statistical Appendix mies tied to natural resource exports. But there January/February 2010; IMF Qatar Medium-Term Baseline Scenario. is no guarantee that the future will resemble the

76 Qatar National Development Strategy 2011–2016 a h c pter 3 past. As Qatar moves from a capital-intensive In recognition of these challenges, the govern- spending phase of its development, the operations ment will launch a budget reform programme, and maintenance of its capital assets will make sig- built around a reorganization of the Ministry nificant budgetary claims that need to be carefully of Economy and Finance as mandated by Emiri planned and managed. The government recogniz- Decree 31. The key goal is a comprehensive legal es, too, that as growth in the hydrocarbon sector and budgetary framework governing public slows, sound macroeconomic policies supporting finance, consistent with Qatar’s Constitution. a stable environment will be critical in helping the nonhydrocarbon sector prosper and expand. Target for 2016 • Establish a forward-looking and coordinated A reformed budget framework budget process, linked to the National Develop- ment Strategy 2011–2016 and to the operational Notwithstanding the uncertainties surrounding plans of spending agencies (see also chapter 7). world oil prices, budget planning and execution are central to economic management. Indeed, the A fiscal transformation programme will support annual budget is the government’s main instru- this goal with five core elements: ment for short-run economic management. Cur- • A new budgetary law embodying the principles rently, ministries submit spending plans, based of efficient public finance. largely on historical expenditure parameters, and • A functional classification for all spending the Ministry of Economy and Finance puts togeth- based on the UN Classification of Functions of er a recommended budget for approval by the cab- Government. inet. Although the budget preparation and dis- • A “macro-fiscal” framework that helps decision- bursement processes are administered efficiently, makers analyse the relevance of critical plan- the present arrangements have some limitations. ning parameters and the fiscal and macro economic implications of commitments they The budget emphasizes inputs and spending con- are considering. trols, not functions, outcomes or impacts. Using • A public investment programme to ensure that historical benchmarks to guide allocations leads capital projects deliver the highest social worth to inertia, since it is difficult to wind down old pro- and are well coordinated. grammes and make space for new ones. • A new monitoring and evaluation function.

As such, the budget is framed without full atten- The first three of these elements are in process. tion to the future trajectory of revenues and A decision has also been made to establish a debt expenditures. In particular, the preparation pro- management function in the Ministry of Economy cess does not completely factor in spending obli- and Finance. But successfully addressing imple- gations that extend into the future, as when capi- mentation over 2011–2016 will require significant tal investments entail commitments to operations institutional adjustments and concerted capacity- and maintenance for decades ahead. strengthening programmes as well as the recruitment of seasoned technical experts in the Minis- Sizeable outlays of state resources also occur out- try of Economy and Finance, line ministries and side the government budget. Although these out- other agencies. lays are not considered within the core budgetary planning process, they affect the macroeconomic Partly because of limited expertise in Qatar in environment in the near term and influence devel- macro-fiscal policy and in strategic and opera- opment prospects in the long term. These state- tional planning, the programme will be rolled out linked expenditures also make claims on other gradually and at a pace that the Ministry of Econ- resources, including land and the environment. omy and Finance and other arms of government

Sustaining economic prosperity 77 will be able to manage. Experience worldwide, selecting capital projects that create lasting social including that of advanced Organisation for Eco- worth. It will address trade-offs among potential nomic Co-operation and Development (OECD) investments, committing resources where they can countries, underscores the technical and politi- most benefit the country. It will also evaluate pro- cal complexity of budget reform and demonstrates ject concepts and proposals from financial, eco- that full programmatic and performance budget- nomic, environmental and social perspectives, with ing systems take many years to establish. In the QNV 2030 and the National Development Strategy longer run, and looking towards monetary unifi- 2011–2016 providing directional guidance. cation within the Gulf Cooperation Council, the government recognizes the need to consider har- Certain projects managed within the public monizing its fiscal policy framework and report- investment programme might be best structured ing systems with those of partner countries. as public-private partnerships. The government believes that an increased private sector role, con- A public investment management framework sidered case by case, could improve project and investment planning, management and opera- Within the reformed budget framework the gov- tions and add real public value. By providing a ernment will direct special attention to the capital new framework for public-private partnerships, budget, which historically has functioned as a com- the government will ensure that they fit within the pilation of separate investment requests. The gov- larger investment plan and provide a pathway for ernment’s new approach will align major investment the transfer of skills and knowledge to the coun- projects with the country’s overarching development try and wider options on financing. Steps have goals, closely considering the underlying macroeco- already been taken to put in place a framework for nomic and fiscal conditions. Initial improvements public-private partnerships under the auspices of have already been made in coordination, but these the Ministry of Business and Trade, and the need will need to be supported by strengthened techni- for new legislation is being considered. cal and analytical functions. The public investment programme will be the government’s first signifi- Targets for 2013–2016 cant step towards a more comprehensive program- • Establish a public investment programme that matic budgeting approach, and it will firmly embed anchors all sizeable public investment decisions a forward-looking results orientation in the budget. in a systematic assessment of their benefits and costs relative to broad national development Because public investment is a core component of priorities. the country’s growth and development strategy, the • Enable private sector collaboration in public government will require a systematic assessment investment projects within a coherent frame- of all significant state investment commitments, work that delivers development benefits to the including analyses of the quality of individual pro- state, including knowledge and skill transfers. jects. This will be necessary for linking large state- funded investments “up” to the National Develop- Five basic steps are needed to establish a function- ment Strategy 2011–2016 and “down” to annual ing public investment programme: budget allocations and wider funding decisions. • Formalizing the programme through laws and instruments and identifying the location of A coordinated public investment programme decision-making functions within government. will strengthen the government capital budget by • Creating programme units within suitable ensuring that project objectives are aligned with agencies, with capable staff. the National Development Strategy 2011–2016, • Establishing supporting processes and systems, linking the strategy to specific budget allocations. including technically sound appraisal and eval- It will preserve and expand national wealth by uation techniques.

78 Qatar National Development Strategy 2011–2016 a h c pter 3 • Introducing capacity-building initiatives to funds—used in countries ranging from Chile to strengthen project preparation, implementa- Oman—makes it clear that they cannot substitute tion and evaluation skills. for stronger budgetary discipline. A technical study • Conducting pilot projects to test and refine key would be a first step in outlining possible approach- features of the programme’s system. es to smoothing out swings in fiscal revenue flows and considering implementation challenges. The requirements to establish an effective public investment programme are similar to those to sup- Target for 2013 port budgetary reform. New systems and processes • Review options to stabilize fiscal revenue and are required both in the central functions of gov- expenditure flows ernment and in the line ministries and other agencies where major capital spending decisions or Enhanced liquidity management and deeper implementation responsibilities are located. New capital markets legal and regulatory infrastructures are needed to support new roles, decision processes and institu- Qatar Central Bank has three responsibilities: tional relationships. Decision-makers require sup- formulating and implementing monetary policy; port from competent technical advisors and experts licensing and regulating commercial banks; and with relevant implementation experience. Design- managing domestic debt (in coordination with the ing and setting up the programme architecture may Ministry of Economy and Finance). In the future take two years. Afterwards, there would be a pilot this mandate will be expanded to include regulat- phase, followed by adjustments and full roll-out. ing the wider financial system.

A stabilization mechanism Monetary stability is a critical challenge. Because the riyal is tied to the U.S. dollar and Qatar oper- Several endowment funds already help government ates an open capital account, Qatar cannot run a plan and meet its spending commitments. But as fully independent monetary policy. Qatar Central part of a wider programme of fiscal reform, the gov- Bank also faces challenges in coping with the mon- ernment will consider other possible mechanisms to etary outcomes of fiscal spending. Currently, Qatar help cushion the potential impacts of hydrocarbon Central Bank controls domestic liquidity condi- price volatility on government revenues and spend- tions through the Qatar money rate mechanism, ing. One possibility would be to set aside financial reserve requirements for banks, active open market resources for investing in a fund of safe and liquid operations, administrative controls on banks con- assets that could be drawn down to supplement gov- sumer credit activities and certificates of deposit. ernment revenues when they are squeezed by unan- ticipated falls in hydrocarbon prices. In times of ris- The government recognizes that more effective ing hydrocarbon prices, excess revenues could be management of domestic liquidity is important allocated to top up the fund. In this way, govern- for overall macroeconomic stability. While Qatar ment would smooth out revenues, avoiding the large Central Bank can issue certificates of deposit with swings caused by shifts in global energy prices. maturity of up to one year, the Ministry of Econ- omy and Finance has yet to issue treasury bills. Although stabilization funds require careful man- Because the government runs perennial fiscal sur- agement, they are preferable to other means of pluses, treasury bills are not needed to fund public managing revenue dips, such as selling possibly spending. However, some surplus countries, such illiquid assets at a discount to fair value, ad hoc as Norway, issue government securities to support borrowing in international capital markets or the development of the domestic money and cap- reducing expenditures on an unplanned basis. ital markets and to facilitate the central bank’s A review of global experience with stabilization liquidity management. These developmental

Sustaining economic prosperity 79 benefits entail a fiscal cost—equal to the differ- Bank and will require close coordination at the ence between what the government pays holders highest levels of government. of treasury bills and what it receives from investing the proceeds. Enhancing technical and economic efficiency Together, the Ministry of Economy and Finance and Qatar Central Bank will consider steps to Sustainable prosperity requires “open and flexible eco- accelerate the development of money and domes- nomic structures capable of competing in a changing tic bond markets with the goal of improving world”.—Qatar National Vision 2030 liquidity management in the short term and supporting the development of debt markets over the Opportunities for efficiency gains proliferate, cut- longer term. The government will also look at ting across sector boundaries. Improvements in options to better calibrate the domestic liquidity technical and economic efficiency involve using implications of fiscal spending and asset manage- scarce resources more effectively in a given activ- ment decisions. ity or use. Improvements in market efficiency focus on allocating resources among alternative Targets for 2014 uses to maximize social benefits. Where markets • Introduce an extended range of instruments to do not function well, regulatory interventions can help manage domestic liquidity. improve efficiency. Figure 3.6 illustrates how these • Prepare a strategy to guide broader domestic four elements of efficiency fit together and link to capital market development. sectors and focus areas.

Again, achieving these goals will place significant By attacking inefficiency in technology, physi- technical and operational demands on the Min- cal infrastructure, institutions and processes, the istry of Economy and Finance and Qatar Central government can make a lasting contribution to

Figure 3.6 Elements of efficiency interact and link to sectors and focus areas

Water Power Economic Power Land Infrastructure Infrastructure Technical

Efﬁciency

Regulatory

Market Land and buildings Infrastructure Subsidies/user charges Business climate Trade and investment liberalization Trade Competition

80 Qatar National Development Strategy 2011–2016 a h c pter 3 improved resource use over time. With an abun- Enhanced use and conservation of water dance of hydrocarbon resources but a scarcity of other vital resources such as water and arable Few tangible aspects of Qatar’s life and economy land, a drive for efficiency is central to creating need efficiency reforms as much as water—crucial and capturing value, preserving and expanding to all human activity but in scarce supply. With the productive base and encouraging the private one of the world’s lowest levels of rainfall, Qatar sector to develop through discovery and economic relies on water from three sources: desalination, diversification. groundwater and recycled water, all subject to inefficiencies that may create stresses and eventu- Improved efficiency has other benefits, too. By ally pose a threat to water security or require large improving the use of capital assets, efficiency investments to ease shortages (figure 3.8 and fig- measures save fiscal resources by deferring or ure 6.3 in chapter 6). eliminating the need for replacement investments or capital expansion. Some efficiency gains reduce Desalination, which accounts for about half the waste and unwanted by-products such as carbon water used in the country, depends on a costly dioxide emissions and waste water, contributing to and energy-intensive cogeneration process that environment goals. uses large swathes of coastal land and requires seawater that does not exceed set levels of salin- In addressing these aspects of efficiency, this part ity. With rapid population growth and urbani- of the National Development Strategy 2011–2016 zation, the use of desalinated water has tripled focuses on how Qatar uses its natural resourc- since 1995, reaching 312 million cubic metres in es and delivers infrastructure services. Particu- 2008. lar attention is given to desalinated water, which is coproduced with power in a process that uses Losses of desalinated water due to leakage are large amounts of land and natural gas. Related high by international standards. Some estimates environmental dimensions of resource use and put network losses as high as 30%–35%, com- management are examined in chapter 6. pared with an OECD average of 18%. Leakage in the distribution system for desalinated water costs Efficiency metrics as much as QR 1 billion a year. The government’s strategy for improved water management calls for Efficiency can be measured by the quantity and an aggressive five-year programme to cut network quality of services provided for a given set of inputs losses. Over the long term the government will (technical efficiency) and by the cost of delivering also be investigating the feasibility of applying new a given quantity and quality of services (econom- reverse osmosis technologies that do not consume ic efficiency). Other proximate indicators of tech- as much power and that can tolerate higher salin- nical and economic efficiency used here include ity levels than current processes. levels of waste and service coverage and quality, a form of operating efficiency. Fresh groundwater drawn from natural aquifers accounts for about 36% of water use, but efficien- As noted in chapter 2, Qatar has made large infra- cy problems are again evident. An estimated 250 structure investments in recent years, including in million cubic metres of groundwater are extract- power and water production. They have supported each year, mostly for irrigation, five times the ed high-quality services, with further improve- 50 million cubic meters of freshwater recharge ments expected as a result of initiatives pursued that comes from Qatar’s meagre rainfall. With under the National Development Strategy 2011– demand far exceeding the recharge rate of aqui- 2016. Figure 3.7 provides a snapshot of Qatar’s fers, Qatar’s freshwater reserves are under stress infrastructure capacity, quality and cost. and at risk of exhaustion.

Sustaining economic prosperity 81 Figure 3.7 A snapshot of Qatar’s infrastructure in capacity, quality and cost

Focus area Meeting Qatar’s needs by 2016?a Service quality Efﬁciency

Committed capacity significantly Limited number and duration of High power generation CAPEX; low plant Power supply 2020 exceeding demand interruptions; approximately 100% use after 2011 (60%); transmission and network coverage distribution losses in line with benchmarks If RAF A in operation until 2020, no Quality of water in line with benchmarks; High network losses (30%–35%); Water supply 2020 further capacity additions required 98% network coverage; water stock high per capita demand limited to 1.5 days

Power and water Power Networks being developed; treatment River quality of treated water; Limited treated sewage effluent use (60%); Wastewater +2030 capacity additions in 2011 satisfying investigation of water quality upgrade low expected treatment plant use after 2011 needs beyond 2030

Current network congestion, but road Lowest perceived quality of road in Construction cost in line with Gulf +2030 expansion plans based on very high the Gulf Cooperation Council (World Cooperation Council average but low use if Roads population projections Economic Forum); need to strengthen network realized based on current population public transport projections

Current port operating beyond capacity; Current port congested; new Doha Expected low use of new port; high share of Seaports +2030 new Doha port expected with large port expected in line with international total cost incurred in phase 1 (+70%) excess capacity if phases 2–3 realized standards Current airport operating beyond Current airport congested: 3 stars New Doha international airport with high 2020b capacity; new Doha International (out of 5) Skytrax rating; new Doha capital expenditure per passenger; high Airports Airport phase 1–2 required—phase 3 international airport expected in line share of total cost incurred in phase 1–2 expansion could be postponed (from with international standards (70%–80%) Transportation 2015 to 2020) Very large network (85 kilometres) Service quality expected in line with Expected low use; Metro +2030 relative to Doha transportation international standards expected high lifecycle cost Megaprojects demand Network covering main hubs in Qatar Service quality expected in line with Low number of passengers per kilometre of Rail +2030 international standards railway compared with EU average

Limited penetration gap in Internet; Bandwidth performance below Planning in preliminary stage Information and na national broadband network expected international benchmarks; new national communication with 95% coverage broadband network to increase technology performance to 50 megabits per second

Adequacy of supply, quality and ef ciency Attention point Critical issue

a. Current or planned capacity is adequate and is not expected to reach saturation until the year indicated. b. Refers to phases 1 and 2.

Groundwater supplies are subject to extensive could leak, contaminating the limited supplies of waste and loss, notwithstanding their scarcity. groundwater (see chapter 6). Qatar could make Much of the groundwater is used for flood irriga- far more extensive use of recycled water, which is tion of open fields, with high levels of evaporation. a quarter as expensive to produce as desalinated Farmers pay a small pumping charge but other- water. wise have free use of groundwater, providing little incentive for conservation. Inefficiencies are also evident on the consumption side of the water equation. Qatar’s per capita Recycled water, or treated sewage effluent, water use is one of the world’s highest. Agriculture accounts for the remaining 14% of the water used makes heavy demands on water, disproportionate in Qatar. But because supply currently outstrips to the value created by the sector. demand, about 40% of treated sewage effluent is discharged into septic lagoons. Some wastewater Excessive water use stems partly from technical —particularly from industrial users—is not and economic inefficiencies. The government is treated but is discharged or stored in tanks that already addressing some problems. Projects to

82 Qatar National Development Strategy 2011–2016 a h c pter 3

Figure 3.8 Qatar relies on water from desalination, which is subject to inefficiencies that may threaten water security or require large investments to ease shortages

Desalination water supply and demand, actual and projected, 2009–2030 Desalination supply Status quo desalination demand, average Reduced loss desalination demand, average Million cubic metres per year Technology demand-side management and reduced loss desalination demand, average 750

Network loss reduction

500 Comprehensive demand side management

Expected shortage pushed 250 out 10 years to 2030

0 20102009 2012 2014 2016 2018 2020 2022 2024 2026 2028 2030

Note: Demand curves represent average of two projection scenarios from Population and Employment Projections, 2008 to 2030: A Framework for National Planning (QSA/GSDP). Projections are approximate and use the most reliable data available. Treated sewage effluent is not considered a substitute for desalinated water due to current social and infrastructure-related limitations. These projections assume network loss reduction from approximately 30% to 18% (OECD average) by 2015 and change in behaviour and technology reaching 60% adoption by 2020 for commercial and residential entities and by 2015 for government entities. Source: National Development Strategy 2011–2016 estimates. seal leaks are under way, with plans to accelerate high losses from evaporation—need to be the work on pipes, pumps and flow meters. The replaced with drip irrigation systems, which use government aims to bring the loss rate down to much less water for a given yield. Over the longer 10%. term, solutions to agricultural water issues need to be formulated in a wider framework of the com- The government will also be spearheading a mercialization of sustainable farming methods series of water-saving initiatives. Substantial and domestic agrofood products. amounts of water would be saved by equipping faucets with “water savers”, which the government Increased treatment of industrial and household will consider installing. The government is also wastewater would create recycling opportunities weighing the best ways to encourage drip and while removing environmental hazards (see chap- soak watering of gardens and increased use of ter 6). The government will consider investments covers for swimming pools. Other initiatives will in both areas, looking for opportunities to expand encourage water saving by commercial users. To both the collection and the distribution net- monitor the impacts, the government will extend works for recycled water. By distributing recycled the current programme of installing water meters water to more users, the government can relieve and examine the benefits of “smart meters”. demands on other sources of water and reduce discharge. The government will also look close- In agriculture, a new approach is needed. Irriga- ly at options for infrastructure for collecting and tion methods that involve flooding fields—with treating industrial wastewater. By extending the

Sustaining economic prosperity 83 domestic collection and treatment of wastewater, Improved efficiency in energy and gas use the government can reduce dependence on septic tanks, an environmental priority. Power distributed through Qatar’s grid is coproduced with desalinated water using gas tur- Targets for 2013 bine technology. The gas used to produce domes- • Cut network leaks of desalinated water to 10% tic power has an opportunity cost in forgone or less from the current estimate of 30%–35%. export revenues. For a few large industrial users, • Ensure that all water consumption is metered. power is provided through standalone generation • Support installation of water-saving technolo- facilities. gies for households and other users. • Develop a programme of water-saving meas- Although the country’s power needs are fully ures in plans for agricultural development. served by a high-quality and reliable service, Qatar • Expand treated sewage effluent networks to could achieve greater efficiencies through techni- increase the use of recycled water. cal enhancements. Such changes could save 5% of • Examine the feasibility of industrial wastewater domestic gas consumption—and possibly more. collection and treatment systems. Even though Qatar’s abundant gas supplies are expected to last well into the future, improved effi- The implementation challenges of water-saving ciency would yield both environmental and eco- initiatives vary. Stemming distribution losses nomic gains. Savings would have the added ben- involves technological fixes. Introducing water- efit of providing a buffer for the supply of gas, saving devices to households is fairly straight- which is ample in the long run but constrained forward, as Abu Dhabi and Canada have shown. over shorter periods of time. By burning less natu- Encouraging the use of water-saving appliances ral gas, Qatar would support the national goal of will require effective communication, but might lowering carbon dioxide emissions (see chapter 6), also need supporting incentives (see below on reducing the country’s contribution to global cli- economic efficiency). Regulations that are diffi- mate change. Gas saved domestically can be sold cult and costly to enforce (such as bans on hose- overseas, increasing national income. pipes for washing cars) may be unnecessary if the government can popularize a water-saving The government also recognizes potential tech- mindset. nical efficiency gains in power production. Upgrading power plant turbines brought on Changing water consumption patterns in agricul- prior to 2000 would increase thermal efficiency ture is vital to an integrated approach to water by 4%–6%, enabling total gas savings of about management. It will require a fundamental and 2% of estimated local demand by 2016. The gov- prolonged reorientation of farming, involving a ernment will work with producers to quantify the range of factors including government subsidies. expected savings and to find ways to share the Recharging aquifers with treated sewage effluent costs of upgrading. (if shown to be technically feasible) would ease the looming water scarcity problem. But without With air conditioning accounting for 67% of res- changes in irrigation methods and crop mixes, idential power consumption, a shift to modern farming will continue to make heavy demands energy-efficient systems would bring significant on Qatar’s precious water resources. The govern- savings. Cutting heat emitted by other appliances ment is committed to addressing this challenge would lower air conditioning needs. Government and finding solutions within a wider programme will look at ways to encourage the use of energy- of agricultural reform and development of the efficient technologies, such as automated sensor domestic food industry. lighting systems that cut power demand directly,

84 Qatar National Development Strategy 2011–2016 a h c pter 3 with the extra payoff of reducing the demands on Interventions to achieve these goals should follow air conditioning when the heat from light fixtures an assessment of their costs and benefits, draw- is lowered. Wider use of district cooling systems on ing on the experiences of other countries. Where domestic and commercial premises would save on advantageous, the private sector should partici- power and further the environmental benefit of pate in the design and implementation of initia- expanding the market for recycled water. For new tives, helping shape incentives to encourage sus- structures, gains will come from efficient design, tainable energy use. For independent power and backed by government-mandated green build- water producers, more efficient dispatch arrange- ing codes, setting standards for such elements ments might require contractual changes, but as better insulation and increased shading and aggregate savings to the country could be suffi- reflection. ciently large to make investors whole again under any revised arrangements. Kahramaa, the country’s power and water distribution company, acquires power under long-term For conservation efforts in water and power to suc- purchase agreements with independent power and ceed, the government needs effective communi- water producers. From a sustainability perspective, cations and stronger regulatory capacities. A key the state should aim to minimize the cost of the part of the robust demand management architec- gas consumed in producing power and water. Dis- ture will be the establishment of an independent patching the most efficient combined power and regulator covering power and all aspects of water water generation facility to the grid first and add- (see below and chapter 6). ing incremental supply according to gas efficiency might yield further economies. Kahramaa will Adding value to infrastructure study possible opportunities for enhancing the efficiency of power dispatch. Investment decisions by the private sector are critically influenced by the availability and quality of Finally, renewable energy presents opportunities infrastructure services, which influence costs, pro- for Qatar to enhance its future energy mix, con- ductivity and asset returns. serve gas and reduce carbon emissions, once technologies become cost efficient. The greatest poten- Qatar’s significant infrastructure investments in tial lies in solar energy, but other technologies the past decade (see chapter 2) are paying off. Its may play a part depending on still-evolving tech- capacity across all infrastructure subsectors is like- nological and economic parameters. A nationally to be adequate through at least 2016, and the level committee will be formed to coordinate ini- quality of services is expected to be generally high. tiatives on renewable energy. While infrastructure service quality is below par in some areas, plans for upgrading are well advanced Targets for 2013 (see figure 3.7). In one or two subsectors, there • Study opportunities to lower gas consumption might be a need to reconsider current proposals per unit of combined energy and water pro- as a result of changed circumstances. duced through enhanced dispatch. • Improve thermal efficiency in power produc- Airport tion. • Advance the adoption of energy-saving tech- After completion in the next two years of phases nologies. 1 and 2 of the new Doha international airport, • Keep Qatar’s green building code implementa- service quality will meet the highest international tion on track. standards, with capacity likely to remain adequate • Establish a national-level committee on renew- at least until 2020. A decision on the commission- able energy. ing of phase 3 will be assessed subsequently within

Sustaining economic prosperity 85 the wider context of public investment planning only half the capacity created. It also seems likely parameters and based on realized traffic flow. that the planned capacity additions in 2018 and 2025 would widen this gap. To saturate planned Information and communications technology capacity by 2030, direct shipment demand would have to grow at an average annual compound rate Currently, there is a quality gap in information of 15%, which far exceeds the assumptions built and communication technology services, with into the baseline in chapter 2. bandwidth below international standards. Invest- ments in a national fibre-optic network will soon Other factors also suggest that growth is likely close the gap, and the government will support to fall short of that required to saturate capac- private providers in ensuring that the new net- ity. Doha’s location, distant from international work reaches all parts of the state (see below). sea lanes, limits the potential for growth in tran- shipment traffic. In addition, the 2008 design is Seaport unlikely to have factored in other recent developments, including the planned expansion of the The port of Doha, which is operating at full nearby Mesaieed and Ras Laffan port facilities capacity, is congested, with delays the norm. The and prospective investments in a regional rail net- planned new port, to be located at a distance from work. All would divert traffic from the new Doha the Corniche, will relieve the congestion. The port. Although the need for a new and larger port plan is to construct the new port in three phases: is compelling, the design and intended phasing of phase 1, scheduled for completion by 2015, will the commissioning of the new Doha port will now accommodate up to 2 million 20-foot container be reviewed. equivalent units a year; phases 2 and 3, scheduled for completion in 2018 and 2025, will each add Target for 2011 2 million more. These plans were formulated in • Expedite a review of phases II and III of the 2008, when global trade was booming and growth new Doha port. looked set to continue. Roads In mapping infrastructure investments, planners make assumptions about the future, recognizing Qatar, ranking 41st worldwide in the quality of the unknowns. A trade-off typically exists between its roads according to the 2010 World Economic providing capacity ahead of need and delaying Forum survey, is looking to upgrade its road infra- capacity additions until demand materializes. In structure, now congested and inefficient. building ahead of time, planners lose the option of leveraging future design advances and tech- Traffic congestion stems largely from a fast-rising nology. But deferral risks supply bottlenecks and population, limited public transportation servic- larger costs in the future. If the expected costs of es, suboptimal traffic management and disrup- inadequate capacity outweigh those of temporary tions from road upgrading and expansion. Cur- oversizeing, planners should opt for early invest- rent plans to extend the road network are founded ment and overcapacity in the short run. on assumptions of continuing high population growth to 3.8 million by 2030, which now seems More recent projections of global growth and implausible. Recent projections by the Qatar Statis- trade anticipate a significant slowing of growth tics Authority and General Secretariat for Develop- over the optimistic forecasts made in 2008. These ment Planning suggest that Qatar’s population may new projections suggest the risk that the new Doha be substantially less than this projection, in which port would have substantial excess capacity on its case the proposed road network would be underu- scheduled opening in 2015, with traffic requiring tilized, particularly outside Doha city centre.

86 Qatar National Development Strategy 2011–2016 a h c pter 3 In the city centre, where congestion is worst, spa- Plans call for the system to be built in three phas- tial constraints limit the building of new roads es, with expected completion around 2025 and an and the expansion of existing ones. Here, bet- estimated cost of $27 billion. ter traffic management initiatives (such as better signalling) and more attractive public trans- While the need for improved urban transporta- portation (say, through increased bus network tion infrastructure in greater Doha is indisput- coverage and service quality) are two alternative able (see above), the scale and scope of the pro- solutions. ject are based on implausibly high population and passenger-traffic projections. There is a risk Rail under the current design that costs per passenger journey could be exceedingly high. As is the case Planners are already at work on Qatar’s nation- for the planned new Doha port, the assumptions al rail network of about 350 kilometres, a pro- underlying the design of the metro and its eco- ject budgeted at approximately $9.1 billion. Tar- nomic and social benefits merit close review. geted for completion by 2017, the network will link Qatar’s main industrial and residential hubs Target for 2011 through high-speed passenger rail and freight • Review the planned Doha metro system in services. The network will be connected to the light of realistic population passenger-traffic common Gulf Cooperation Council rail network, assumptions, costs and wider economic, social also expected to be operational in 2017. Because and environmental impacts. Qatar is served by only one, often congested land border crossing to Saudi Arabia, the completion Improved efficiency of land use of the rail network will significantly improve connectivity to Qatar’s hinterland in the Gulf Coop- Agriculture accounts for 4% of available land in eration Council countries. Benefits from the Qatar, and the Qatar Programme for Food Secu- improvement will depend on achieving a good rity estimates that 15% of the country’s food is sup- match between the supply of services and poten- plied domestically. Agricultural yields are gener- tial demand, as well as providing the appropriate ally lower than those of other Gulf states, partly level of service. because of farming methods that are outdated or badly matched to local conditions. Low use of For rail demand to be realized, the planned rail fertilizers and modern farm machinery reduces networks in the other Gulf Cooperation Coun- efficiency further. Significant expansion of agri- cil countries must also be developed. Challenges cultural production will be possible only with the might arise in interoperability, regulation, tech- adoption of different crop mixes and farming nical capabilities and financing among the Gulf methods that are water efficient. Cooperation Council countries. Greater coordination within Qatar is also required among the The government has requested that the Qatar entities involved in road and rail planning, includ- National Food Security Programme and the ing Qatari Diar, the Urban Planning and Develop- Ministry of Environment study farming methods ment Authority and the Qatar–Bahrain Causeway and land-use patterns and work towards a new Foundation. strategy for food and agriculture. This plan must take into account the full economic and envi- Doha metro ronmental costs of the country’s system of farm support. Plans for the greater Doha metro system are in place. Qatari Diar and Deutsche Bahn have Industrial land use is subject to fragmented reg- formed a consortium to manage this megaproject. ulation and procedural encumbrances, and the

Sustaining economic prosperity 87 associated infrastructure services are of variable Enhancing market efficiency quality. Some efficiencies and improved services have been realized through programmes desig- Market efficiency is about putting scarce resourc- nating specific areas for industrial uses, including es to their best use. But markets do not always do a number of “industrial cities” to serve the hydro- this well. Where there is scope to exercise mar- carbon sector and related industries. Qatari Diar’s ket power—and where there are externalities, three economic zones, once approved, will repre- information gaps or forbidding transaction costs sent a significant step forward in the availability of —markets may be inefficient or may not work at high-quality industrial land. all. In such circumstances there may be a role for direct regulation to protect the public interest. Efficient land-use planning needs to be integrated Although government regulation can improve the across uses—industrial, residential, commercial, operation of markets, government failures and recreational and infrastructure. Qatar’s Nation- interventions can add to problems, throwing grit al Master Plan and the related Integrated Trans- into the working machinery of the marketplace. portation Plan, currently in process, will set out a detailed blueprint for physical land use and trans- Alignment of user charges with economic costs port planning through 2032. Optimal use of land resources and sustainability are key themes of the Qatar provides citizens free health and education Master Plan (see the subsection on land regula- services. Farmers rely on free access to groundwa- tion below). ter, natural fertilizers, pesticides, vegetable seeds and veterinary services. Land—for farmers and Target for 2011 many commercial ventures—is available at subsi- • Approve and implement a National Master Plan dized levels. Subsidized credit is provided to some for integrated land use and transport planning. commercial firms, and investors often enjoy tax holidays. Water and power are free for citizens, Target for 2013 and most infrastructure services are available • Establish well serviced and efficiently man- without charge. State employees are promised a aged and regulated special economic zones for generously supported pension as well as financial industrial land. assistance for housing.

Target for 2016 Although there is ample economic and social jus- • Achieve sustainable improvements in agricul- tification for some subsidies (such as those for tural productivity. health and education), others are at odds with the aspirations of QNV 2030 and Qatar’s sustainabil- Implementation of some of these programmes is ity objectives. In particular, user charges for water, already under way, and further progress is antici- power and fuel warrant scrutiny. pated. Decisions are awaited on the establishment of new economic zones. Preparation of Qatar’s Today, consumers in Qatar have little informa- National Master Plan is in its final stages, and tion about the wider impacts of their consumption approval is expected in 2011. The public invest- behaviour. Voluntary restraint by a more sensitized ment programme and Qatar’s National Master and socially aware public, along with water-saving Plan will need to be closely coordinated on issues technologies, could result in significant savings. linked to megaprojects. But the reform of agricul- But water subsidies still eclipse the scarcity and ture will take more time and involve a range of true value of the resource and contribute to over- complex issues, including access to and use of land consumption and waste. User charges that better and water, application of subsidies and changes in reflect full economic costs could make a signifi- the mix of crops and livestock. cant contribution to redirecting Qatar’s precious

88 Qatar National Development Strategy 2011–2016 a h c pter 3 natural resources to higher value uses. Such efforts To serve the public interest in ensuring the sus- might initially be targeted to the non-Qatari popu- tainability of fish stocks, the government will lation and industrial and commercial users. explore effective limits on both the fishing fleet and the catch, including restrictions on the size Similar public awareness efforts, coupled with and age of fish that can be caught and sold. The conservation-oriented tariff structures, could government will develop enforcement capacities boost efficiency in power and fuel consumption. to ensure that new regulations are followed. It will These measures would not only have fiscal bene- also consider opportunities for the development fits for the state but would also be environmentally of aquaculture to meet future demand. beneficial. Target for 2014 Target for 2014 • Increase fish stock levels, apply effective regula- • Phase in user charges for power, water and fuel tion and create a domestic aquaculture capability. that better reflect the full economic costs of production. Effective implementation will require stronger regulation both at fishing sites and onshore, where fish The review of user charges should be part of a catches are landed. A specialized function would wider campaign to improve demand manage- support sustainability objectives, as would better ment for water, power and fuel. The benefits of information systems. The development of a local higher user charges need to be clearly commu- aquaculture capability might first require state sup- nicated ahead of time, and the introduction of port for technical and financial feasibility studies higher charges can follow measures that generate and possibly targeted and temporary financial assis- gains in technical efficiency. If user charges are tance for new ventures. But the objective must be to extended to Qatari households, households that establish commercial viability at the soonest point, face hardship can be compensated through direct so any financial subsidies must be temporary. income transfers. And a set level of services could be exempted from charges for Qatari households A more competitive economy with low income. To support these measures, the creation of an integrated power and water regula- Increased competition could make a great contri- tor will be important (see below). bution to market efficiency. As a member of the World Trade Organization, Qatar maintains com- Preservation of fish stocks paratively low tariffs on tradable goods. H owever, a number of services, including ground trans- Where economic incentives fail to protect com- portation, food imports and district cooling, lack mon or open access resources, those resources can competition and the discipline that follows. come under pressure. The problems with water use in agriculture described earlier occur partly In 2006, Qatar enacted a law protecting competi- because no individual farmer has an incentive to tion and prohibiting monopoly practices to ena- reduce water consumption. But collectively, farm- ble competition to benefit both consumers and ers’ steady depletion of freshwater aquifers will businesses. A limitation of the law is its exemp- eventually hurt all society, starting with the farm tion of entities controlled or owned by the state. sector. Qatar’s fishing industry presents a similar In addition, implementation of the law, centred in challenge. As in many other parts of the world, the Qatar Chamber of Commerce and Industry, fish stocks are being seriously depleted, because has focused on responding to specific consumer there is no incentive for any one fishing boat to complaints. The government intends to provide limit its catch. The environmental dimensions of resources to ensure effective implementation of this problem are considered in chapter 6. the wider antitrust provisions of the law.

Sustaining economic prosperity 89 Reducing barriers to entry strengthens competi- Better business regulation tion. The government intends to continue its programme of progressive liberalization of restric- The World Bank’s Doing Business studies point to tions on foreign direct investment and to add to several regulatory encumbrances that investors in the list of sectors where foreign equity partici- Qatar face when trying to establish a business or pation is not restricted. The government recog- conduct business operations, ranging from ineffi- nizes that administrative and procedural pro- cient licensing processes to burdensome customs cesses should not thwart the intention of these regulations. The Ministry of Business and Trade provisions. is now looking at ways to remove unnecessary red tape and to streamline other regulations that hob- Targets for 2012–2014 ble commerce. • Design a robust implementation programme for the existing competition law, supported by Target for 2011–2014 the necessary capabilities. • Streamline business and trade regulations and • Expand liberalization of trade in services under achieve a significant improvement in the World the General Agreement on Trade in Services. Bank’s Doing Business scorecard. • Continue the programme of foreign investment liberalization. Significant improvements in the business environment will depend critically on coordinating and Although comparatively straightforward commit- implementing capabilities within the Ministry ments, their effective implementation will require of Business and Trade and its ability to promote that Qatar have access to policy, technical and needed regulatory and procedural changes in advisory skills that are in short supply locally. other parts of government. These issues warrant Gaps include expertise and knowledge to support careful consideration as the ministry develops its developing an agenda and liberalizing trade in own operational strategies. services. Improved infrastructure regulation Regulation and efficiency Plans for Qatar’s infrastructure anticipate a larg- Governments regulate to improve efficiency in er role for private investment and public-private allocating society’s resources. Regulation may also partnerships (see the section on promoting stabil- influence noneconomic, social or cultural goals. ity above). A balanced regulatory framework will The focus here is on economic regulation. safeguard the public interest while allowing for a sufficient return to attract investors. There are many forms of regulation. Most work by restricting behaviour or choice in circumstanc- Regulation of infrastructure in Qatar is une- es where markets cannot be expected to lead to ven and somewhat haphazard, with little cross- the best outcomes. Markets may not work properly fertilization of ideas or cooperation across sectors. because of information gaps, externalities (ben- Some areas suffer from a lack of regulation while efits or costs incurred by third parties) or forces others experience inefficiencies because of too that thwart competition. In such cases, the gov- much red tape. The absence of a single regulator ernment may regulate in the public interest. The for water resources contributes to inefficient use normal arenas for government regulation include in the midst of water scarcity. The rules governing finance, the environment and natural resource industrial land often conflict or change, increas- access and use. But regulation can also be a source ing costs for business and inhibiting private sector of inefficiency, and regulatory agendas sometimes expansion. Some licensing procedures serve little stray. or no purpose but cost businesses money and time.

90 Qatar National Development Strategy 2011–2016 a h c pter 3 In designing regulatory functions, it is helpful to Independent regulators can also settle disputes or study experience and use the most effective mod- impose penalties for violations of rules. Operators els. There is a strong consensus that independ- should be commercially motivated, disciplined by ent regulators or regulatory functions can best markets as well as accountable to regulators, and address the multiple goals of regulation. This protected from political interference. model locates regulation below the policy and legislative functions of government and above Qatar lacks these separations (figure 3.9). Agen- the operation of markets, with each layer sepa- cies in the infrastructure sector often mix the rated from the others. Ministers, accountable to three functions of policy-maker, regulator and the political leadership, set the broad direction, operator. In other areas, such as land regulation, including the laws under which regulation and there are multiple, overlapping regulators. market operations function. Regulatory agencies are accountable to ministries but are functionally Most of the overlaps are between regulatory and independent, setting standards, tariffs or rules to operational functions—a potential source of ensure that services meet the required standards. inefficiency. The risk for reduced service levels

Figure 3.9 Operators should be commercially motivated, disciplined by markets as well as accountable to regulators, and protected from political interference, but Qatar lacks these separations

Focus area Current agency Policy-maker role Regulator role Operator role

• Defines requirements for power and • Builds, manages and operates Kahramaa water infrastructure power and water transmission and distribution networks Power, water and • Defines requirements for drainage • Builds, manages and operates wastewater Ashghal network and construction standards wastewater and drainage systems • Tariff and pricing management No agency identified • Requirements and use of treated sewage effluentc

Urban Planning and Oversees urban planning at • Defines standards for road design Development Sector the state level Roads • Sets safety and construction • Constructs and maintains road Ashghal standards networks

• Sets standards for aircraft • Supervises the management of equipment manufacture and Doha International Airport maintenance • Oversees air freight operations Airports Civil Aviation Authority • Licenses pilots and engineers • Sets standards for airport safety and operations • Sets standards for air traffic control

• Vessel performance, regulation • Manages civil ports and port a regarding loading and offloading of operation standards Port Management Company cargo from vessels, tariffs and port charges Functional separation in Phase 2 Seaports • Classification and maintenance Department of General standards, licensing of seamen Transport Affairsb and personnel, ship and small craft registration, maritime regulation

Defines policy and direction • Performs spectrum management, • May participate directly in Information and of information and type approval, satellite broadcast development of Qatar National communications technology regulation, consumer billing Broadband Network communications ictQatar infrastructure in Qatar technology (primary driver behind Qatar National Broadband Network)

a. The former Customs and Ports General Authority has been split into the Port Management Company and the Department of Customs. Primary role b. Previously known as the Department of Maritime Affairs; it has recently moved under the Ministry of Business and Trade. Secondary role c. Regulatory functions not currently being handled by any agency. Note: The rail and metro sectors are not addressed because they are not yet operational (and therefore not in need of regulation).

Sustaining economic prosperity 91 rises when one entity is providing a service, set- Target for 2014 ting the required standards for its delivery and • Establish an independent and integrated water monitoring compliance with those standards. and power regulator. The potential consequence of such an arrangement is reduced service quality for end users Once regulatory and operational functions are and, possibly, lower service standards in some separated, policy and regulatory independence sectors. could follow and may be important for supporting competition. When private sector involvement In Qatar some regulators carry out certain oper- is introduced in an infrastructure sector, it is vital ational functions, and some operators regulate that the regulator of that sector not be responsi- their own service. The Civil Aviation Author- ble for policy as well. For example, a state-owned ity falls into the former category. The Supreme monopoly operator should not be regulated by Council of Information and Communication an agency under the same ministerial organiza- Technology, in addition to being the primary reg- tion. The regulator’s links to the incumbent state- ulator for all activities pertaining to telecommu- owned enterprise could put any aspiring private nications and information technology, may also participant in the market at a disadvantage. invest directly in specific initiatives, such as the infrastructure for the Qatar National Broadband Some steps have already been taken to strengthen Network. the regulatory infrastructure. The Supreme Coun- cil of Information and Communication Technol- Some operators function as regulators. Ashghal, ogy has a high degree of independence. In the Kahramaa and the Port Management Company financial sector steps to unify regulation are at an are operators that regulate their own activities. advanced state, with the newly created regulator Although not a formal regulator, Kahramaa moni- to come under the wing of Qatar Central Bank. tors service levels and sets performance standards for infrastructure assets while operating transmis- Stronger land regulation sion and distribution networks. Ashghal’s role in roads and drains has similar overlaps. The Port Qatar has no specific planning law or compre- Management Company is responsible for setting hensive legislative framework for the preparation, port operation standards and for regulating vessel approval and implementation of development performance, loading and offloading cargo and plans. No single agency has specific responsibility tariffs and port charges. for the implementation of land-use planning for Qatar, resulting in considerable inefficiency. Integrated water management requires regulatory independence and unification and will require The government intends to respond to these chal- closely coordinated regulation of both water and lenges in four ways. First, it will formulate a robust wastewater from production, distribution and con- land-use policy for developing a spatial hierarchy sumption to reuse and recycling. Given that water of coherent plans. Second, it will strengthen the and power are coproduced and depend on each regulatory processes for standardizing systems, other, a single regulatory authority could over- codes and controls. Consideration will be given see all activities related to these sectors. Ideally, to institutional arrangements that can support such a regulator would be independent, drawing improved and integrated regulation. Third, to on specialized technical expertise. Abu Dhabi has support new arrangements, the government will established an integrated and independent regu- foster collaborative mechanisms among all the rel- lator for power, water and wastewater. Regulatory evant players. This must include integrating the reform could improve efficiency and service deliv- plans of entities that operate outside the current ery in other sectors. system. Fourth, the government will need to direct

92 Qatar National Development Strategy 2011–2016 a h c pter 3 more resources to strengthening planning and Taking stock of the hydrocarbon legacy implementation capabilities in municipalities and at the centre. Qatar’s dependence on oil will continue to decline even if production rates are sustained Target for 2011–2016 by investments in enhanced and incremental oil • Approve and execute Qatar’s National Master recovery. Plan. Qatar’s reliance on gas exports is set to contin- Building a diversified economy ue. But extraploating today’s production and cost parameters far into the future would be haz- Qatar intends to build “a diversified economy that grad- ardous. While they may provide a reliable guide ually reduces its dependence on hydrocarbon industries, for the next 25 years, feasible production rates enhances the role of the private sector and maintains its thereafter may be lower, and costs could be high- competitiveness”.—Qatar National Vision 2030 er. Beyond the expiry of existing purchase and sales agreements, the commercial value of distant Having achieved enormous gains by develop- future deliveries is also uncertain. While Qatar’s ing the hydrocarbon sector, the government is gas wealth is considerable, given these uncertain- poised to take on another significant challenge ties and the lengthy process of economic discov- —diversification. A diversified economy is more ery entailed in broadening the country’s economic capable of creating jobs and opportunities for the base, Qatar has good reasons to act now. next generation and is less vulnerable to the boom and bust cycles of oil and natural gas prices. Investing hydrocarbon income in foreign assets is one important avenue for diversifying Qatar’s Diversification is also essential since Qatar will income. But relying exclusively on foreign asset need renewable sources of wealth creation to gen- income would not constitute a viable, long-term erate income and support consumption after its development strategy. It would create new types hydrocarbon reserves are depleted. Economic of risk, for example, leaving Qatar exposed to the diversification is a common thread in the strategy vicissitudes of international capital markets, and it of many resource-rich countries, but success has would not address Qatar’s ambition to become an been elusive for many and has come only gradu- inquiring, innovative and creative society. A more ally for others. Some countries target priority sec- diversified domestic economic base, in which tors and try to direct resources to them. Others knowledge activities play a prominent role in gen- invest in an enabling environment that encour- erating productive and remunerative jobs, is nec- ages investment and creates opportunities for essary to expand capabilities and support wider the private sector to branch into new areas. Many societal objectives. countries follow a mix of both approaches. Because a diversified economy takes decades to Diversifying the domestic output base is not a establish, the process should get under way now. stroke-of-the-pen shift. Entrepreneurship and Identifying competitive advantages, acquiring new innovation need to be learned, embedded in the capabilities and developing new product lines and education system and in the surrounding culture market links all require a long period of experi- and supported through business friendly poli- mentation, discovery and learning. cies and regulations. Qatar’s private sector will need strengthening, with support and incentives Tackling the challenges that encourage acquiring relevant capabilities and participating in a wide range of economic The absence of a ready formula for diversifica- activities. tion means that Qatar will have to develop a more

Sustaining economic prosperity 93 varied economy through economic discovery. To core businesses or move to the next level in the date, the capacity for discovery has not generat- value-adding chain. ed significant results. Little by way of diversification of output has occurred over the last decade Often new product introduction grows out of (figure 3.10). A study of new exports from Qatar research efforts. Today, Qatar has only a small reveals that only 41% survive one year after their pool of scientists, engineers and technical work- introduction (figure 3.11). ers. The path-breaking work of the Qatar Science and Technology Park as a “research accelerator” Moreover, the scope of Qatar’s exports is limited, demonstrates great promise. But this experiment especially when compared with that of successful is still in its infancy, and even with opportunities outward-looking economies. Singapore, for exam- for quick commercial wins, creating a research ple, exported a diverse array of about 4,590 sepa- culture and forging links back to the wider econo- rate products in 2008, compared with about 1,630 my will take time. Basic research initiatives under from Qatar, 98% of them (in value terms) linked the Qatar National Research Fund have started, directly to hydrocarbons or such energy-intensive but there is normally a substantial lag between industries as metallurgy. In various surveys, few university research and the development of com- Qatari businesses report plans to expand beyond mercially viable propositions.

Figure 3.10 Little diversification of output has occurred over the last decade

Transport and telecommunications Trade and hospitality Manufacturing Construction Share of GDP (%) Finance and real estate Government and social services Hydrocarbons 100 4 9 4 3 5 7 7 8 6 6 5 6 5 6 5 6 7 7 10 9 9 7 6 5 5 6 13 9 9 6 5 5 9 75 8 9 10 11 9 13 11 12 8 11 10 12 13 9 10 57 57 54 54 50 52 51 50 50

25 Nonhydrocarbon real output contracted in 2008–2009 due to crisis, raising hydrocarbons as a share of real GDP and lowering the diversi cation index.

0 2002 2003 2004 2005 2006 2007 2008 2009a Real GDP (QR billions) 65.9 70.0 115.3 124.1 143.2 186.5 233.9 254.2 Diversi cation indexb 2.75 2.81 3.00 2.99 3.15 3.32 3.37 3.42

a. Based on growth for hydrocarbons and nonhydrocarbons as per International Monetary Fund Article IV from 2008 levels. b. Inverted Herfindahl-Hirschman Index for key economic sectors. Note: Sectors are regrouped for uniformity across countries. Source: International Monetary Fund (IMF) Qatar Article IV report and Statistical Appendix January/February 2010.

94 Qatar National Development Strategy 2011–2016 a h c pter 3 To diversify, Qatar must overcome several inter- • Geography imposes limits. Qatar is poorly con- related challenges: nected to its hinterland in the Gulf Coopera- • Entrepreneurship is not yet solidly established tion Council countries and is a three-day trip in Qatar. Small and medium-size enterpris- from major international sea lanes. es constitute a fledgling part of the economy. • Qatar’s development model, with a low-wage Despite the success of a relative handful of private sector coexisting with a high-wage pub- companies such as iHorizons, the sector is con- lic sector, limits opportunities for Qataris and sidered weak. Fewer than 40% of the existing provides little incentive for investment in home- small and medium-size manufacturing enter- grown capabilities. Labour productivity is fall- prises were established after 2000. ing across most sectors (figure 3.12). • Qatar’s domestic economy is too small to • Like other natural resource–rich countries, Qatar attract significant foreign investment focused is vulnerable to underlying pressures for real on internal markets, and smallness also limits exchange rate appreciation, making its exports the economy’s usefulness as a training ground more costly and less competitive—the economic for local companies hoping to expand region- pathology known as Dutch disease (figure 3.13). ally or globally. Finding the best approaches for Qatar

Figure 3.11 Only 41% of new products exported from Diversifying Qatar’s economy will require collab- Qatar survive until the next year oration between the state and the private sector, each focusing on what it does best. Deciding on Number of products 1,200

1,035 Figure 3.12 Labour productivity is falling across 7 159 most sectors 900 159 Real GDP compound annual growth rate, 2006–2009 (%) 70 301 600 60 455 4 62 Increased productivity 50 312 72 300 174 Decreased productivity 40

17 115 80 3 30 Othera 0 25 4% Transport and telecommunications Number of new Number of products that Total Finance and products exported survived until the next year 20 Trade and GDP real estate hospitality Construction 7% Survival rate, 2005–2007 8% 10 9% 5% 5% Hydrocarbon 55% Hydrocarbon derivatives 39% Manufacturing 0 Metallurgy 43% 0 10 20 30 40 50 60 70 Machinery and precision instruments 54% Other manufacturing products 33% Employment compound annual growth rate, 2006–2009 (%) Other mineral products 39% Other 31% a. Includes agriculture, fishing and utilities. Productivity growth is due mainly to agriculture and Total 41% utilities that are subsidized by the government. Note: Size of bubble indicates the relative size of the sector as a percentage of GDP in 2009. Source: UN COMTRADE database and International Trade Centre Trade Map database. Source: National Development Strategy 2011–2016 estimates.

Sustaining economic prosperity 95 Figure 3.13 Qatar is vulnerable to underlying pressures for real exchange rate appreciation, making its exports more costly and less competitive

Real effective exchange rate (Index: 2000 = 100) 150

140

130

120

110

100 2000 2002 2004 2006 2008 2010

Source: Institute of International Finance (IIF) Data Retrieval database. business investments is best left to those who under- around the world have tried and are trying to stand the relevant markets, production systems and reach a similar outcome. Among Gulf Coopera- value chains and to those who are putting their tion Council countries, Bahrain and Saudi Arabia capital at risk. But only government can regulate in are working on strategies for encouraging more the public interest, determine policy direction and diverse economies. Abu Dhabi also has a compre- orchestrate the exploitation of Qatar’s hydrocar- hensive plan. bon wealth and the use of the financial resources hydrocarbons create. Given existing private sector The fact that other countries are pursuing weaknesses, government will also play an important diversification strategies creates opportuni- role in spearheading the development and growth ties for cross-country learning. But there are of private sector capabilities, through financial sup- also risks. Many of the Gulf Cooperation Coun- port and other means. But government has to guard cil countries are focusing on diversification in against featherbedding an inefficient private sector the same areas, including petrochemicals, air or undermining incentives for high performance. transport, logistics, real estate, knowledge ser- Government must also promote a level playing field vices, finance, life science and telecommunica- for the private sector, avoiding practices that give tions. Depending on how these strategies evolve, state-linked entities an unfair advantage. Box 3.3 the Gulf countries face the risk of channelling summarizes design principles that can guide state resources into the same sectors, with each coun- support for industry and the private sector. try falling short of achieving an efficient scale of production. Setting the national diversification agenda Qatar, like other countries seeking diversifica- Qatar is not alone in seeking a broader econom- tion, will build on areas of existing and emerging ic base. Other natural resource–based economies strengths and clear potential. But beyond these

96 Qatar National Development Strategy 2011–2016 a h c pter 3

Box 3.3 Calibrating government involvement in industry

Because government support will be needed—even • Place authority for carrying out industrial policies for funding certain start-up activities—guidelines in agencies with demonstrated competence. should be adopted to prevent lasting distortions or • Place involved agencies under the authority of a government-funded failures. The following design high-level political authority to ensure commit‑ principles can help guide government actions in sup‑ ment and accountability. port of private sector development: • Make sure that implementing agencies maintain • Provide incentives and subsidies only to truly new channels of communication with the private sector. activities, which would face information and co‑ • Understand that failures are possible since it is ordination challenges that markets alone would impossible to eliminate all risks or bring in all not solve. relevant information. • Set development targets that can be monitored. • Enable activities to renew themselves so that the • Build in automatic sunset clauses for ending cycle of discovery can continue. state support. These principles have been identified and dis‑ • Target specific economic activities not entire tilled from cross-country experiences in East Asia sectors. and Latin America by economist Dani Rodrik as com‑ • Subsidize activities with clear spillover effects mon success factors associated with state support and demonstration value. for economic discovery. areas, Qatar will focus primarily on building capa- Many separate initiatives are already under way. It bilities in the private sector and on supporting is important to take them into account, link them efforts to lift productivity growth across the whole where possible and address gaps that may under- economy. cut future success. A variety of institutions will be engaged in Qatar’s diversification drive. These Actions to open the economy, streamline rules include Enterprise Qatar; the Qatar Foundation, and strengthen the legal framework for enterpris- which houses the Qatar Science and Technology es support the broader diversification goal. For Park; the Supreme Council of Information and example, government has enacted a series of laws Communication Technology; Qatar Financial affecting banking, customs and commercial law— Centre; and Qatar Development Bank. The broad all of which help establish a predictable environ- roles expected of these institutions in spearhead- ment for doing business. The government also has ing Qatar’s diversification efforts are identified liberalized the laws governing foreign direct invest- below in the context of their own mandates and ment, allowing majority foreign ownership in such strategies. sectors as agriculture, manufacturing, health and mining. Although foreign investment outside the To accelerate the diversification agenda, the gov- hydrocarbon sector remains meagre, the enabling ernment will address the constraints that impede conditions for growth are being created. economic discovery and the birth of new economic activities. The government fully recognizes that Other steps support the diversification drive. Three to stimulate investment it must ensure macroeco- major industrial cities—Dukhan, Mesaieed and nomic stability, regulatory efficiency and coher- Ras Laffan—house a mix of energy-related indus- ence, and effective delivery of infrastructure ser- tries. The anticipated establishment of special eco- vices (all examined above). In addition, the push nomic zones offering high-level infrastructure to build a more diverse economy will require spe- services and freedom from regulatory and other cial attention to four areas that frustrate innova- burdens is expected to stimulate new investment. tion and enterprise start-ups: low demand for skills

Sustaining economic prosperity 97 amid surplus labour, a weak private sector and low The presence of a pool of cheap labour creates a levels of entrepreneurship, limited capabilities of bias towards labour-intensive technologies that pro- discovery and innovation, and weak regional inte- vide few opportunities for discovery or productivi- gration and connectivity. ty advances. Only when cost structures change will businesses want to invest in new, less labour-inten- Creating demand for skills and high-wage jobs sive production methods and will job-seekers alter their expectations. Each of these shifts will nurture Qatar’s low demand for skills emerges as a critical the other, but the larger economic transformation factor limiting opportunities within a more var- is likely to take a generation or more. To expand ied economy. Emphasizing production based on quality opportunities for Qataris, and to reverse low-wage, low-productivity labour and following a the factors retarding productivity growth, the gov- development model dependent on highly labour- ernment will review policies that might have fos- intensive production methods in the property and tered dependence on low-wage, low-skilled labour infrastructure sectors have created obstacles to (see chapter 5 for targets on labour markets). an economy driven by innovation and knowledge- based services. Today, a low-wage private sector Strengthened private sector and entrepreneurship closes off opportunities to Qatari citizens. As a result, many seek positions in the public sector, A strong culture of private sector initiative is nor- taking jobs where their potential may not be fully mally characterized by a robust layer of small and realized. medium-size enterprises. Qatar’s small and medium-size enterprise sector is underdeveloped, con- Breaking out of the current low-wage configu- stituting about 15% of the economy, with most ration may raise costs in the short run and will firms focused on the domestic economy. require adjustments that may be difficult. But over the longer term dynamic efficiency gains and Enterprise Qatar, an early initiative linked to the accelerated productivity growth that follows QNV 2030, will provide a focal point for stimulat- will more than compensate for any rise in costs ing services for small and medium-size enterpris- and will create incentives for innovation and the es. Its programme will be performance based, acquisition of knowledge. Supply-side investments catalysing the delivery of services by the pri- alone will be insufficient. Through modern edu- vate sector to small and medium-size enterprises cation and training, citizens might qualify for suc- through vouchers and targeted grants. Business cessful careers in a knowledge-oriented economy. skills development, incubation, marketing and But possessing those skills does not guarantee other services would be supported. Enterprise that there will be jobs—particularly if employers Qatar will also share risks with the private sector, can still orient their recruitment and production through support for guarantees and participation strategies around the availability of a large pool of in equity. Although no sector would be excluded cheap, unskilled immigrant workers. from its support, it will direct its energy towards knowledge-intensive businesses, focusing particu- For its part, the private sector operates with the larly on developing entrepreneurial skills among distortions that flow from labour policies. Some young Qatari men and women. Enterprise Qatar firms focus on earning rents from leasing work- is expected to open for business early in 2011. ers or collecting fees from businesses that are owned locally but operated by foreign lessees. The The Qatar Development Bank is cultivating a new options of building low-risk business around these portfolio of financial and business support services types of activities leave little incentive to invest in to encourage private sector development, includ- more demanding, riskier enterprises that would ing a renewed drive to support small and medi- have greater benefits for the larger economy. um-size enterprises in targeted sectors. It has also

98 Qatar National Development Strategy 2011–2016 chapter 3 created an export promotion function to expand The efforts needed to drive progress in these the private sector’s space and market share. It is areas should not be underestimated. Moving expected, too, that the Qatar Development Bank from concept design and strategy to business will partner closely with Enterprise Qatar and with models that will gain traction requires experi- the Qatar Science and Technology Park in a variety ence combined with knowledge of local market of enterprise and knowledge business initiatives. needs and demands. Both Enterprise Qatar and the Qatar Development Bank will need to recruit The Ministry of Business and Trade is working and retain qualified and experienced finance with the World Bank to identify and implement and business professionals. Other goals will need improvements in the climate for doing business in legislative changes, which will require effective Qatar. Challenges exist within the ministry and in advocacy. other agencies in supporting implementation. It is important to establish clear precedence among Increased capabilities for innovation, skills and objectives and to consider the readiness of people discovery and systems for any proposed changes. Succeeding in a knowledge-based economy entails Privatization can be an important pathway for moving beyond improvements in existing produc- developing private sector capabilities, but to tion. New product lines, applications and connec- contribute to a supportive ecosystem, it must go tions are necessary in an environment where tech- beyond divesting equity from state-controlled nology firms, innovation institutes, research and companies. Increasingly, privatization initiatives development centres and corporate innovation will be designed to build competitive strengths units are all looking for ways to create genuinely through acquisition of knowledge, technology, new products and services that potential custom- management skills and operational expertise. ers will value.

The government, for its part, will endeavour to Patents, one way of measuring a society’s level of boost small businesses through changes to pro- innovation and discovery, show significant space curement and outsourcing rules that will reduce for improvement. Over the past five years Qatar onerous transaction costs. One problem in Qatar has filed about 14 patents annually, compared today is the heavy working capital requirements with more than 5,000 for such countries as Nor- needed to meet bidding bond regulations. These way and Singapore. requirements are particularly difficult for small companies to meet. Qatar’s agreement under the Qatar is committed to advancing research and General Agreement on Trade in Services allows development and has targeted 2.8% of govern- for favourable treatment within transparent pro- ment revenues to support research. Research insti- curement procedures to support the development tutions have launched potentially important initia- of local enterprise. tives. The Qatar National Research Fund is now in its fourth round of funding activities, but no Targets for 2011 centralized body is responsible for planning and • Make Enterprise Qatar operational. coordinating national research and development • Introduce new products and services from activities. The government will prepare a national the Qatar Development Bank that enhance its research and development strategy to better guide reach and relevance. the development of technology and knowledge- intensive businesses and to promote technology Target for 2012 and knowledge transfer. Among other things, the • Reform government procurement regulations research and development strategy would set high to reduce burdens on small business. goals for research.

Sustaining economic prosperity 99 Target for 2013 Enhancing information and communication • Develop a national research and develop- technology for economic development ment strategy and linked technology transfer strategy. The Supreme Council of Information and Com- munication Technology (ictQATAR) will active- The Qatar Foundation spearheads Qatar’s efforts ly leverage information and communication to become a knowledge society. Its functions technology (ICT) to support the realization of include expanding access to education among citi- Qatar’s national development goals and position zens, supporting the development of knowledge- Qatar as a leading knowledge economy enabled based enterprises and funding research and devel- by ICT by 2015. A plan developed by ictQATAR opment activities in universities, industry and the identifies three strategic thrusts. The first thrust public sector. The Qatar Foundation is also active will entail initiatives to encourage the govern- in other ventures, particularly in health. ment and key economic sectors to use ICT inno- vatively and to provide the people and business- Within the Qatar Foundation, the Qatar Science es of Qatar with the skills and awareness needed and Technology Park provides an environment for to fully participate in the digital society. The sec- collaboration among firms and across traditional ond thrust will continue to build a sustainable research boundaries to produce innovative solu- ICT ecosystem, creating a local ICT talent pool tions and to develop their commercial application. and identifying business opportunities involv- It also houses an initiative to promote knowledge ing digital content. The third thrust will provide based businesses—businesses whose assets reside in affordable, high-speed and secure ICT infra- knowledge and information rather than in the phys- structure to serve the needs of the economy and ical product space. Together with the Qatar Devel- society. To support these initiatives, ictQATAR opment Bank and General Secretariat for Develop- has identified detailed projects that are well ment Planning, the Qatar Foundation will pioneer aligned with broader national development strat- an incubator programme for knowledge business- egy goals. es. This will combine the development of top-down strategy with bottom-up pilot projects that could Target for 2011–2016 be funded by the Qatar Development Bank, Qatar • Approve and execute the Supreme Council of Foundation, Enterprise Qatar and the Supreme Information and Communication Technology’s Council of Information and Communication Tech- strategy. nology. Because the state will have an important role as an investor, customer and regulator, a public-pri- Expanded financial sector activities vate partnership structure will be needed to forge progress. The form of this structure and related gov- The Qatar Financial Centre is supporting the ernance and funding arrangements will be worked development of Qatar’s financial industry. In out based on learning during the pilot stage. addition to providing a window for international banking and investment in Qatar and in the Target for 2011 region, it is focusing on developing capabili- • Establish an incubator for knowledge business- ties in markets for asset management, re-insur- es at the Qatar Science and Technology Park. ance and captive insurance. In a developmental capacity, it has established the Qatar Finan- Target for 2013 cial Business Academy, which provides prod- • Establish a public-private partnership frame- ucts and services to strengthen capabilities in work to support development of a knowledge- the financial sector and in the general business based business sector. community.

100 Qatar National Development Strategy 2011–2016 Figure 3.14 Economic prosperity is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for economic prosperity

Build knowledge and Create new business human capital opportunities Education Environmental and training sustainability

Enhance policy, analytical and Caring and technical capabilities of Enhance social capital Economic Institutional cohesive prosperity government and develop society development effective regulation

Population, labour Healthcare force and Qatari Raise productivity and employment Support skilled create new business workers opportunities

Goal Enabler

Economic prosperity as an enabler for other sectors

Encourage efﬁcient natural Increase demand for resource use and reduction of technical education and emissions; expand the demand vocational training for environmental services Education Environmental and training sustainability

Strengthen corporate Provide funds for Caring and Economic Institutional cohesive and public sector social protection prosperity development society governance

Population, labour Healthcare force and Qatari Improve social employment Create decent and infrastructure; demand remunerative jobs for healthcare services

101 Target for 2011–2013 Harmonizing regulations and laws offers bene- Chapter 4 • Implement Qatar Financial Centre’s strategy, fits across a wide spectrum (including, for exam- and scale up the activities of the Qatar Business ple, labour and finance). Coupled with lower tar- Financial Academy. iffs and reductions in other formal trade barriers, such steps could spur investment and trade within Promoting human development Realizing the benefits of regional integration the region and support common efforts for a more diverse and efficient regional economic base. Countries in many parts of the world have realized benefits from regional integration. By free- Cross-border infrastructure can be important in ing the movement of goods, services, technologies realizing the benefits of a more integrated and and people across borders, they have created inte- enlarged economic space. The border between grated economic spaces, enabling firms to reach Qatar and Saudi Arabia is served by just one road- larger markets and generate production efficien- crossing. A combination of inadequate connec- cies that would have been impossible if they had tive infrastructure and cumbersome border and remained fenced inside their own economies. customs procedures raises the costs of trade and crimps efficiency. Economically integrated regions are more attractive to foreign investors who are more inclined to open Shared infrastructure also offers benefits. A a production or distribution facility if it serves a big- regional rail network connecting Gulf Coopera- ger regional market. Often, local firms first develop tion Council countries would be a significant an export orientation within a region before reach- advance in connectivity. A modern fibre optic ing out to more distant global markets. Qatar’s small network in the Gulf Cooperation Council, also domestic market may fail to offer adequate learning under study, would support knowledge-based sec- opportunities or the scale needed for efficiency. tors throughout the region. And a regional power grid, which could support power transmission Qatar, a member of the World Trade Organization, along high-voltage direct-current cables, would operates a relatively open economy. However, strong- promote wider opportunities to capitalize on er cooperation among Gulf Cooperation Council energy assets. countries can contribute to greater economic efficiencies and improve the potential for diversifica- * * * tion. Gulf Cooperation Council countries are creating a number of overlaps in energy-intensive areas As with the other pillars of QNV 2030, sustaining such as petrochemicals, steel and aluminium. Eth- economic prosperity requires mainstreaming eco- ylene plants are going up in three neighbouring nomic initiatives across sectors and institutions, countries. The potential for building overcapacity is just as those sectors and institutions will contrib- strong. Competition is also evident in financial ser- ute to sustaining economic prosperity (figure vices, air transportation, tourism and education. 3.14).

Cooperation and pragmatism offer clear bene- Chapter 4 considers in more detail some of the fits. There may be situations where Qatar could themes introduced here. Developing the capabili- improve its returns by investing in a neighbouring ties that will equip Qatar to sustain its economy country rather than creating underutilized capacity and society is one important theme. Another is at home. Likewise, other Gulf Cooperation Council understanding how the operation and regulation countries may wish to look at opportunities emerg- of the labour market serve Qatar’s wider developing in Qatar before adding to their own capacity. ment interests.

102 Qatar National Development Strategy 2011–2016 Chapter 4 Promoting human development 4 Promoting human development

“The National Vision aims at transforming Qatar into an advanced country by 2030, capable of sustaining its own development and providing for a high standard of living for all of its people for generations to come.” —Qatar National Vision 2030

The human development pillar of Qatar National How does Qatar fare on the global human develop- Vision 2030 (QNV 2030) calls for the “development ment index? With a score of 0.803, it ranked 38th of all [Qatar’s] people to enable them to sustain in the world in 2010, in the group of countries with a prosperous society” and “to meet the needs of “very high” human development. Its gross nation- this generation without compromising the needs al income is among the world’s highest. Its life of future generations”. Qatar will continue to expectancy at birth is 76 years, approaching the invest in its people so that all can participate fully 81 years of Norway. Its expected level of schooling, in the country’s social, economic and political however, is 12.7 years, well below the 15–20 years life and function effectively within a competitive of other very high human development countries. knowledge-based international order. It is putting in place advanced health and education systems The National Development Strategy 2011–2016 that meet the highest global standards. It is also identifies the challenges in health, education and supporting the productive participation of Qatari productive work. It also presents plans for meet- men and women in the labour force, while attracting those challenges by fostering a healthy, long- ing qualified expatriate workers in all fields, with a living population, building world-class knowledge growing emphasis on the higher skilled. and skills and producing a capable and motivated workforce. The notion of human development gained prominence 20 years ago, when Mahbub ul Haq, lead Under the leadership of the Supreme Council of author of the United Nations Development Pro- Health, Qatar will develop an integrated healthcare gramme’s firstHuman Development Report, called system that is managed to world-class standards, is for a new approach to development economics, accessible to the entire population and offers ser- putting people, not production, at the centre. That vices through public and private institutions. A first report called for moving beyond such narrow national health policy will set and monitor stand- measures of progress as gross national income per ards for the social, economic, technical and admin- person, then the main yardstick for development. istrative aspects of healthcare and for effective and While accepting the importance of income as an affordable services in accord with the principle of indicator, the human development index added cost-sharing partnerships. The healthcare system measures of life expectancy, to capture improve- will help all people in Qatar live longer and health- ments in health, and measures of school enrol- ier lives. Preventive and curative care will take into ment, to capture improvements in knowledge— account the differing needs of men, women and creating a new composite indicator of progress in children. High-quality research will focus on public health, education and income. health, biomedicine and clinical effectiveness.

104 a h c pter 4 Also, under the leadership of the Supreme Edu- Finally, under the leadership of the Ministry of cation Council, Qatar will build a modern, world- Labour, Qatar will expand the capabilities of the class education and training system that provides labour force, preparing it to move from a hydro- a first-rate education comparable to that offered carbon economy to a diversified knowledge econo- in the best schools, universities and technical col- my led by the private sector. Qatar will encourage leges in the world. That system will incorporate satisfying and remunerative employment in high programmes that encourage analytical thinking, value-added sectors, aligning economic objec- creativity, innovation and entrepreneurship, while tives with the social priority of preserving national promoting social cohesion and respect for Qatari identity. Labour market reforms will foster a pro- values. The system will provide opportunities for ductive labour force and encourage more Qataris students to develop their full potential and pre- to work in the private sector. For the foreseeable pare them for success in a world with ever-greater future, however, Qatar will not have enough cit- technical requirements. It will raise performance izens to meet the expanding requirements of a at all levels and offer pathways for education and rapidly growing, diversifying and technological- training beyond the secondary level, including for ly advanced economy. To counter this shortfall, lifelong learning. It will also expand the capacities Qatar must attract and retain expatriates with the of professional staff. right mix of skills.

Promoting human development 105 Nurturing a healthy population

“To improve the health of Qatar’s population, Qatar Healthy, Vibrant Society, incorporates a situational aspires to develop an integrated system for healthcare, analysis of the current state of the sector, strategic managed according to world-class standards. This sys- recommendations and implementation reports. tem will meet the needs of existing and future generations The situational analysis identified the priority and provide for an increasingly healthy and lengthy life areas using baseline analyses of Qatar’s healthcare for all citizens. All health services will be accessible to the system and benchmarking them against relevant entire population.”—Qatar National Vision 2030 best practices in other countries, both regional and global. The implementation report outlined People are a country’s most valuable asset. The initiatives and activities to support each recom- human development pillar of QNV 2030 calls for mendation, including core requirements, respon- investing in and developing all of Qatar’s people, sibilities, timelines and key indicators. enabling them to participate fully in economic, social and political life and contribute to sustaining a pros- With extensive stakeholder engagement, through perous society. A key element of that human develop- both individual interviews and multiple team ment pillar is health. A healthy population served by interactions as outlined in figure 4.1, develop- a world-class, well managed healthcare system avail- ment of the strategy was led by the Supreme Coun- able to all is essential to Qatar’s development. cil of Health, with coordination support from the General Secretariat for Development Planning. The importance of an effective healthcare sys- The Executive Group for Healthy Population pro- tem is enshrined in Qatar’s Permanent Constitu- vided oversight. The Healthcare Task Team, con- tion: “The State shall foster public health; provide sisting of senior healthcare professionals, was the means of prevention from diseases and epidemics decision-making body and validated findings and and their cure in accordance with the law.” Advanc- recommendations. The Health Planning Team ing healthcare is central to the larger vision for sus- met weekly to validate hypotheses from the situ- tainable growth and opportunity. For individuals, ational analysis and to provide guidance on strate- health and wellness contribute vitally to quality of gic recommendations and implementation plans. life. For society, a healthy population reduces social Sub-Task Teams were grouped by the five follow- costs and enhances economic competitiveness. ing major thematic areas: Model of Care, Public Health, Finance and Infrastructure, Regulation Through the National Health Strategy 2011–2016, and Workforce, and Data, Research and Innova- under the guidance of the Supreme Council of tion. These sub-Task Teams met regularly to dis- Health, Qatar will enhance the wellness of all its cuss and deliberate on key issues. people and establish a vibrant, healthy and productive society—for today and for the future. This is The strategy reflects the aspirations of Qatari citi- Qatar’s first comprehensive National Health Strate- zens and residents and the resolve of their politi- gy and is the culmination of months of extensive dis- cal leadership. Qatar is committed to building an cussion, debate, consultation, research and delibera- integrated healthcare system that meets the needs tion. The positive and unprecedented engagement of its population. In addressing known risks, proof multiple healthcare and intersectoral stakehold- viding treatment, preventing disease and main- ers reflects a new momentum and genuine desire taining wellness, Qatar will support the long-term for reform that is in the best interest of the country. objectives of QNV 2030. The far-reaching effort is a crucial part of the human development pillar. The National Health Strategy, which builds on the Supreme Council of Health’s Qatar National Health The National Health Strategy provides a practical Vision 2020: Caring for the Future—Establishing a and realistic guide for reforms, with far-reaching

106 Qatar National Development Strategy 2011–2016 a h c pter 4

Figure 4.1 Links between the National Development Strategy 2011–2016 and the Supreme Council of Health

National Development Strategy Supreme Council of Health Oversight Committee Board (Higher Authorities) Supreme Council of Health Executive Committee National Development Strategy National Steering Committee National Development Strategy Executive Group— Healthy Population

Healthcare Task Team Health Planning Team

Model of care Public health Finance and infrastructure Regulation and workforce Data, research and innovation

Healthcare service model Prevention Healthcare nancing Regulation Data • Access to care • Risk factors • Cost and control tools • Healthcare professionals • Clinical database • Scope of care • Chronic diseases • Insurance prerequisite • Facilities • Standardization • Infectious diseases • Healthcare products Infrastructure delivery • Patient rights Research Public health areas • Infrastructure master plan • Regulatory framework and • Occupational health Workforce governance • Road safety • Workforce planning • Innovation • Food safety • Recruitment and retention • Environmental health • Education E-health • Emergency preparedness • Skill mix • E-health strategy • Mother and child health

and fundamental changes envisioned across the First, focus on people, with policies and care entire healthcare system. It seeks to improve designed to meet the needs of all people living in health outcomes by establishing a world-class Qatar, through a carefully balanced and fully inte- healthcare system with effective and affordable grated model of high-class service delivery. services for the entire population. The system will provide a full continuum of care through a Second, enable people’s full potential, by concen- patient-centred approach, addressing both phys- trating on improving physical and mental wellness. ical and mental health needs. The system will Success will be measured by reliable performance encourage prevention but ensure the availability indicators. Policies will encourage and empower of evidence-based curative healthcare services. the people of Qatar to take more responsibility for High-quality services will be offered through pub- their own health. lic and private institutions operating under the direction of a national health policy that sets and Third, ensure sustainability, through sound fiscal monitors standards for social, economic, adminis- leadership and stewardship to obtain the greatest trative and technical aspects of healthcare. High- health gain for money spent. calibre research will be directed at improving effectiveness and quality. Fourth, stimulate continuous excellence and innovation, through positive competition to improve Universal access to the needed levels of healthcare efficiency, quality and patient satisfaction. remains a cornerstone for the Supreme Council of Health and its six guiding principles while inspir- Fifth, base health policies and services on the lat- iting QNV 2030: est scientific research and evidence. The Supreme

Nurturing a healthy population 107 Council of Health will encourage medical research Support high-quality research for improving the at the frontiers of science in Qatar’s centres of effectiveness and quality of healthcare through con- excellence while conducting high-quality health tinuous knowledge-led innovation and research. services research itself, including collecting appropriate data to guide policy and monitoring and The case for reform is compelling and commands evaluating progress against specified objectives. the full commitment of Qatar’s leadership. The availability of financial resources and the man- Sixth, achieve the highest quality and safety, pro- ageable size of the country, coupled with reform moted by an environment that expects and sup- efforts already under way, create the opportuni- ports international benchmarking to continuously ty to build a system that will provide the popula- monitor, evaluate, and improve quality and safety tion with safe and effective healthcare and help in all aspects of Qatar’s healthcare system. them lead long and healthy lives. The recommendations to achieve these outcomes are the funda- The National Health Strategy defines the projects mental building blocks of a modern healthcare and related targets for achieving the seven ulti- system and deserve priority and full support. Not mate goals for the health sector: all of the proposed objectives and activities are new. Some have been discussed or recommended Build a comprehensive world-class healthcare sys- before, and some are already under way. However, tem by shifting the balance of care towards a pre- implementation is more crucial now than ever. ventive and community-based model focusing on the patient and providing a full continuum of care Challenges for healthcare anchored on a capable primary care system. To achieve the QNV 2030 goals for the health sec- Establish an integrated system of high-quality tor, Qatar needs to overcome multiple challenges: healthcare through effective use of information, communication and process improvements. An imbalanced model of care, which must shift from hospital-based care to delivery of a full con- Embed prevention and early detection into all tinuum of care by enhancing primary health- facets of the system and empower people to par- care and community-based services, while ensur- ticipate actively in wellness, care and disease pre- ing that acute care services meet the needs of the vention to help shift the system from a focus on population. treating the acutely ill to addressing chronic diseases and their underlying risk factors. Limited national integration, quality guidelines and performance monitoring. Recruit, retain and educate a high-quality workforce—a modern, learning and supported Morbidity and mortality patterns that reflect a workforce—and overcome the constraints posed high prevalence of noncommunicable diseases, by a shortage of healthcare professionals. including chronic diseases and diseases linked to lifestyle and behaviour, as well as a high rate of Establish a robust policy and regulatory frame- injuries, primarily from road traffic accidents and work to guide the health sector and ensure quality workplace-related incidents. and accountability. Rapidly increasing and fluctuating population, Coordinate the planning and control of health- with a large influx of single male workers, increas- care infrastructure and finance to ensure effective ing demands on the healthcare system, accentuat- and affordable services based on the principle of ing the mismatch between healthcare needs and partnership in cost sharing. the current system.

108 Qatar National Development Strategy 2011–2016 a h c pter 4 Shortages in a high-quality workforce across the high population growth, with a large influx of sin- sector, with ineffective recruitment and retention gle male workers. This has overloaded the system, strategies. exacerbating the overemphasis on hospital-based acute care over longer term wellness programmes A regulatory and policy framework, which must be and disease prevention. strengthened to ensure effectiveness and efficiency throughout the healthcare system. Qatari healthcare spending has risen fivefold since 2001. Population growth is one obvious explana- Underlying all the key healthcare needs in Qatar tion, but other factors contribute. Improved mon- are behaviour patterns that should be addressed itoring and control, with appropriate national through a strong preventive approach and a robust healthcare accounting standards and budgeting primary care system. A recent government survey systems, will strengthen efforts to control costs. A identified primary healthcare as the number two per- functioning health insurance system could con- ceived public service needing improvement. Qatar’s tribute to efficiencies in delivering care, but Qatar primary care system is strained by the challenges of first needs to work on the building blocks for such preventing, monitoring and treating disease. Over a system. the past decade, the number of Primary Healthcare Centres has remained essentially unchanged, while A workforce plan must be a key component of the the population has grown threefold. country’s health strategy, focused on increasing national capacity. Qatar relies heavily on an expa- Studies show that 70% of deaths in Qatar result triate healthcare workforce with wide variation in from chronic illnesses, injuries and congenital dis- skills; it needs to increase its medical education eases. The emerging integrated healthcare system capacity and motivate more Qataris to pursue pro- will address these three principal causes of mor- fessions in all areas of the health system. tality, along with the underlying risk factors. Because a quality health system workforce is the Chronic diseases account for more than half of critical factor for success, this workforce plan deaths. Of particular concern, 16.4% of Qataris suf- must include a robust recruitment and retention fer from diabetes, well above the global average of plan that ensures that people with the proper skill 6.4%. This burden of disease—the fourth highest set are attracted to professions within the health in the world—generates long-term disabilities for system. those afflicted, as well as high costs for the government. Studies have found high prevalence rates of In recent years, Qatar has modified the govern- asthma and cardiovascular disease. The prevalence ance of its healthcare system several times, but it of other chronic conditions, particularly mental still needs to strengthen the overall governance, health conditions, is thought to be high as well, but policy, planning and regulatory framework. could be underdiagnosed for cultural reasons. Realizing Qatar National Vision 2030 for Injuries from roadway and workplace accidents are a healthy population common among single male workers, who make up about two-thirds of the population. Qatar To reach the seven goals for the health sector out- needs to address the roots of these health risks lined in QNV 2030, the government will implement and those of communicable diseases that tend to 35 projects, each with clear objectives, outputs and increase with a growing migrant population. measurable targets. These internationally benchmarked targets will be reviewed and refined as The mismatch between healthcare needs and the necessary by project owners at the beginning of current system is accentuated by the country’s programme and project implementation.

Nurturing a healthy population 109 A comprehensive world-class Establish primary care as the foundation for healthcare system healthcare

To deliver integrated services for the coun- To achieve this outcome, the government will: try, Qatar’s health sector will shift the balance • Develop a model of primary care with sufficient towards a preventive, community-based model capacity, funding and appropriate coverage of of care, focusing on the patient and ensuring the entire population, providing high-quality access to the right care, at the right time, in the services and enjoying public trust. right setting, by the right team. The model will • Strengthen the primary care system as the cor- provide a full continuum of care anchored on nerstone for comprehensive care that empha- capable and trusted primary care providers in a sizes wellness, bringing together health pro- healthcare system providing the highest quality motion, early detection and intervention, and standardized diagnostics and treatment (figure evidence-based quality treatment for acute and 4.2). chronic conditions. • Ensure adequate and adequately trained pri- Primary care should be the cornerstone of a mary healthcare staff. future people-centred health system. It should • Define the scope of primary healthcare servic- be the first medical point of contact, providing es using evidence-based guidelines, and ensure appropriate quality health services and acting as adequate budgets. a patient advocate throughout a person’s journey within the healthcare system. Coordination will Targets be the norm in an integrated healthcare system, • Increase the number of general practice physi- with healthcare providers working together to cians from 0.193 per 1,000 people to 0.555. meet patient needs. This will require the design • Ensure that the percentage of patients seen at of national programmes for maintaining wellness, secondary and tertiary healthcare facilities only managing disease and establishing care pathways after referral from primary healthcare facilities across the sector. is 50% for outpatients and 40% for inpatients.

Figure 4.2 Current and future models of healthcare

Current model of care Future model of care

Treatment Continuum of care • Robust referral systems and e-health abroad Primary care Prevention • Preventive orientation—screening programmes and prevention guidelines

Primary • World-class primary care—first point of contact for patients

Secondary • Competition to enable customer choice Acute care • Standardization of quality and care pathways

• Targeted tertiary care Tertiary • Optimized treatment abroad

• Enhanced provision of continuing care Continuing

Health promotion and prevention Quality standards • Quality management system

110 Qatar National Development Strategy 2011–2016 a h c pter 4 Improve the configuration of hospital services Improve mental health services design

To achieve this outcome, the government will: To achieve this outcome, the government will: • Identify tasks that are relevant to the scope • Implement the approved model of care for and administration of hospitals and efficiently mental health services in Qatar, based on organize hospital services to avoid unnecessary enhanced community-based services, integra- duplication in order to meet the future needs tion and decreased stigma. for health services. • Protect the rights of people with mental health • Define hospital designations under a regional conditions under a national mental health act, model, establishing the scope, governance and ensuring access to appropriate, high-quality services to meet future health needs within a care in a suitable setting. clinical services framework applying best practices in delivering care. Targets • Reduce the length of hospital stays based on a • Ensure that the number of psychiatric beds is continuum of care model. at least 12.5 per 100,000 people. • Enhance opportunities for same-day proce- • Implement the approved model of care by 2016. dures, relying more on minimally invasive technologies whenever possible. Improve the provision of emergency and trauma • Ensure evidence-based provision of high- services quality secondary and tertiary services. • Avoid unnecessary duplication, specifically for To achieve this outcome, the government will: procedures or services where critical mass is • Establish an integrated national framework required for quality and safety. for emergency services, detailing the scope of • Establish national centres of excellence for pri- services for each type of provider, along with ority areas. standards and operating protocols. • Ensure adequate geographic coverage based Targets on use and on a hub-and-spoke model. • Prepare a national clinical services framework. • Establish national centres of excellence for Targets three of the top five priority areas. • Ensure that the response time for emergency medical services calls from patients with Improve continuing care design potentially life threatening conditions is within 10 minutes for 75% of calls and with- To achieve this outcome, the government will: in 15–20 minutes for 95% of calls in urban • Provide a clear and comprehensive framework areas, and within 15 minutes for 75% of calls for continuing care, involving community- and in rural areas. home-based programmes and reflecting socie- • Keep the number of deaths among patients ty’s changing needs. reporting to the emergency department with a • Address emerging challenges involving rehabil- diagnosis of heart attack below 77.5 per 1,000. itation services and the need to integrate services for the elderly. Improve the efficiency of and access to community pharmacies Targets • Increase the number of rehabilitation beds to To achieve this outcome, the government will: 25 per 100,000 people. • Establish a community pharmacy network, sup- • Increase the number of continuing care beds ported by appropriate policy and processes, to 8.23 per 1,000 people. that reduces reliance on hospitals for filling

Nurturing a healthy population 111 prescriptions, leading to increased efficiency Targets and enhanced access. • Establish protocols for priority conditions (cardiac, asthma, diabetic emergencies), and Target achieve a compliance rate of 100% by 2014. • Bring the number of community pharmacies to • Implement Performance Agreements in 100% 0.17 per 1,000 people, with a 70% dispensing rate. of hospitals, 100% of Primary Healthcare Cen- tres and 50% of major polyclinics. An integrated system of healthcare Develop and implement disease management The current healthcare system in Qatar needs programmes improved coordination and standardization, to reduce fragmentation of care and system ineffi- To achieve this outcome, the government will: ciencies. An enhanced primary care system, imple- • Establish a system of coordinated healthcare mentation of electronic healthcare information interventions that address the needs of indi- exchanges and a focus on providing a continu- viduals with priority chronic conditions such as um of care through wellness and disease man- diabetes and cardiovascular illnesses. agement programmes will increase integration of • Emphasize prevention of complications care. Improved communication will enable holistic through evidence-based practice guidelines, decision-making by healthcare providers, reducing patient empowerment strategies and regular clinical risk and raising the quality of patient care. patient monitoring.

Systems that provide integrated access to medi- Target cal data are needed for clearer communication • Ensure that 75% of diabetics enrolled in a dis- and data analysis. This requires digitizing patient ease management programme have a haemo records, including clinical histories and archives globin A1C level less than 9.0. with diagnostic imaging results, and standardizing disease coding. It also requires electronic prescrip- Ensure access to accurate healthcare data tions, to provide access to crucial patient information and increase prescription safety. To achieve this outcome, the government will: • Establish a programme that defines require- Qatar’s healthcare system will provide a full con- ments to ensure the availability of compre- tinuum of care. Greater integration will create hensive and accurate healthcare data, enables coherence and synergy in the healthcare system to stakeholders to meet the requirements and improve the efficiency and quality of care. mandates the reporting of these data.

Improve quality of care Targets • Achieve an 80% data-compliance rate for To achieve this outcome, the government will: healthcare providers. • Establish a culture of continuously enhancing • Achieve coding accuracy of 80%. quality throughout the healthcare system and • Establish disease registries for the top five pri- a framework for improving clinical processes. ority diseases. • Define and disseminate evidence-based national clinical guidelines, patient pathways and Capture the benefits of electronic health services standard procedures for referral and discharge. • Establish performance agreements with To achieve this outcome, the government will: healthcare providers that link outcomes to • Establish an effective and integrated nation- accountabilities. al e-health system, with a clear governance

112 Qatar National Development Strategy 2011–2016 a h c pter 4 framework to improve quality, safety, efficiency far healthier population. According to the World and patient experience, ensuring full compat- Health Organization, 40% of cancers and 80% of ibility across all levels of care and full participa- cases of premature heart disease, stroke and type tion by all healthcare providers. 2 diabetes are preventable. This could have a large impact in Qatar, where more than 70% of deaths Targets are caused by chronic diseases, injuries and con- • Raise the percentage of primary care practi- genital diseases. tioners accessing the online diabetes registry from 0% to 25%. Improve the governance of public health • Ensure that 100% of images taken at hospitals are digitally stored and shareable among To achieve this outcome, the government will: physicians. • Generate an enhanced prevention strategy ena- • Raise the percentage of community pharma- bled by a robust governance system for moni- cies submitting dispensing information to the toring and evaluating prevention initiatives. e-prescription system from 0% to 25%. • Engage a high-profile international expert as a prevention champion and visible symbol of Enhance private sector involvement the transformation. The prevention champion should be supported by a national preventive To achieve this outcome, the government will: health task force and the Supreme Council of • Formulate a strategy to enable greater private the Health’s Department of Public Health. sector involvement in providing healthcare services while ensuring appropriate regula- Target tory oversight. The plan will maximize desira- • Establish a monitoring and evaluation system ble competition, benefiting quality, choice and for preventive healthcare. efficiency. Develop a comprehensive nutrition and physical Target activity programme • Raise the share of healthcare beds provided by the private sector from 20% to 25%. To achieve this outcome, the government will: • Establish health promotion in schools. A focus on preventive healthcare • Establish wellness promotion in the workplace, led by government offices with established Qatar’s healthcare system needs to address chron- health promotion programmes. ic diseases and their underlying risk factors. Pre- • Implement media awareness campaigns for vention requires a fundamental shift in mindset, nutrition and physical activity. backed by a reallocation of resources. The aim is • Establish prevention guidelines for healthcare to embed prevention and early intervention into services. every aspect of the health system and to empower • Develop policies to reduce fast food consumption. people to participate in self-care, prevention and • Promote healthy food options at restaurants wellness. and key retail outlets.

By shifting the emphasis from management of Targets acute illness to prevention and early detection, • Decrease the prevalence of obesity by 3 per- the healthcare system can help people avoid the centage points, from 32% to 29% for all resi- most costly, and dangerous, conditions. Experi- dents and from 40% to 37% for Qataris. ence shows that this approach will improve the • Achieve a 10% weight reduction for people effectiveness of the healthcare system and create a enrolled in dietary services programme.

Nurturing a healthy population 113 Develop a comprehensive programme to reduce Improve early detection of priority chronic tobacco consumption diseases through a national screening programme To achieve this outcome, the government will: • Increase awareness of the health risks of To achieve this outcome, the government will: tobacco, including sheesha and smokeless • Implement a national screening programme products, and provide cessation support and infrastructure, including facilities, infor- services. mation technology, equipment and workforce. • Provide services linked to school health • Develop screening guidelines for providers. initiatives. • Develop policies to reduce tobacco con- Target sumption, including sheesha and smokeless • Ensure that the percentage of individuals products. in target groups covered by screening programmes is at least 50%. Target • Reduce the rate of smoking among adult men Improve occupational health by 3 percentage points, from the current 32%. To achieve this outcome, the government will: Reduce consanguinity risks • Develop national occupational health standards and regulations and enforce compliance. To achieve this outcome, the government will: • Improve health and safety conditions across all • Implement educational campaigns on sectors. consanguinity. • Focus on reducing workplace injuries among • Provide counselling to support mandatory pre- male workers (the third highest cause of acci- marital screening. dental deaths).

Target Target • Lower consanguineous marriages among first • Reduce the rate of injuries lasting more than cousins from 34% to 27%. three days to 3,000 or less per 100,000 workers.

Reduce the threat of communicable diseases Improve the health of women and children

To achieve this outcome, the government will: To achieve this outcome, the government will: • Set up an early-warning surveillance and track- • Prepare a comprehensive health pro- ing system. gramme that targets women’s health • Routinely update the vaccination programme challenges and identifies priority areas for children and adults. for women’s health, including postpar- • Launch communicable disease prevention tum depression and domestic violence. efforts in high-risk areas. • Dedicate programmes and strategies to child • Initiate follow-up screening of high-risk health, including the promotion of exclusive groups. breastfeeding and early nutrition guidance, enhanced prenatal care services and continu- Targets ing successful vaccination programmes. • Reduce tuberculosis prevalence from 1.6 per 10,000 people to 1.1. Targets • Implement an early-warning surveillance and • Raise the rate of exclusive breastfeeding dur- tracking system. ing the first six months from 12% to 25%.

114 Qatar National Development Strategy 2011–2016 a h c pter 4 • Achieve a compliance rate of more than 98% Improve workforce planning in the short and long for all immunizations under the National Chil- terms dren Immunization schedule for children by age 1. To achieve this outcome, the government will: • Develop a national strategy on workforce plan- Address additional public health needs ning and implement workforce-related national policies and programmes. To achieve this outcome, the government will: • Ensure that Qatar’s health sector has adequate • Improve coordination among government bod- skilled personnel to sustain a high-quality ies to avoid duplication and prevent gaps in ser- health system and the right types of skills and vice in areas including road safety (see chap- specialties in the service delivery team. ter 5), food safety, emergency preparedness and environmental health. Target • Develop a national healthcare workforce plan. Targets • Complete a national emergency preparedness Improve recruitment and retention plan. • Implement an environmental impact health To achieve this outcome, the government will: assessment process for all projects affecting • Reduce barriers to recruitment of a qual- public health. ity workforce, both Qatari and expatriate • Establish a single Food Safety Authority. (2009 Law on Human Resources Administra- tion), and increase retention by raising worker A skilled national healthcare workforce morale and strengthening incentives (for example, making training and professional develop- Just as people are a country’s most valuable asset, ment opportunities available for all staff, as the supply of skilled healthcare professionals is the appropriate). cornerstone of a country’s health sector. Health- • Ensure appropriate Qatarization—with ade- care workers are key agents of change, reform and quate support, mentorship and training—to innovation, driving continuous improvement in benefit both individuals and organizations. health service delivery. The healthcare workforce must be thus developed, respected and adequately Target resourced. • Ensure a voluntary turnover rate of less than 8%.

There must be strong, unified human resources Improve professional education policies that focus on enhancing long-term national capacity but at the same time recognize the To achieve this outcome, the government will: necessity of a quality expatriate workforce, work- • Take a pragmatic approach to increase the ing together to achieve Qatar’s goals. number of Qataris and long-term residents in healthcare and ensure that education for Recruitment and retention of quality healthcare health professionals contributes to Qatar’s professionals are challenging, and the short- future healthcare needs. A multifaceted age of physicians, nurses and therapists impedes approach will reduce barriers to admis- delivery of safe, effective and high-quality health- sion, enhance sponsorship programmes, care. Meeting future requirements could be dif- increase awareness campaigns on health pro- ficult considering Qatar’s recruitment and reten- fessions and diversify the institutions avail- tion needs and the global shortage of healthcare able for capable students, both locally and professionals. internationally.

Nurturing a healthy population 115 Target Build the policy and regulatory capacity of the • Raise the number of medical school graduates Supreme Council of Health from 1 per 100,000 people to 3. To achieve this outcome, the government will: Optimize the skill mix • Strengthen the Supreme Council’s ability to establish a national regulatory framework, To achieve this outcome, the government will: based on evidence, quality and safety stand- • Support a multidisciplinary team and patient ards, and to clear policies and procedures. This centred approach that enhances the quality of will enhance the efficiency and effectiveness of care. the healthcare sector and improve health out- • Use the available healthcare workforce effec- comes for the population. tively by optimizing the range of work that can be undertaken by different professionals. Targets • Recruit new classes of healthcare workers (such • Reduce vacancies on the Supreme Council of as nurse practitioners) to meet changing needs. Health from 30% to 15%. • Foster team-based collaborative models of ser- • Staff key positions required for strategy imple- vice delivery. mentation within three months.

Target Ensure the quality of healthcare professionals • Raise the number of allied health professionals from 0.4 per 1,000 people to 4. To achieve this outcome, the government will: • Establish the Qatar Council of Health Practition- A national health policy ers as the regulator for healthcare professionals. • Institute comprehensive regulation of health- An effective healthcare system needs a robust care professionals across the public and pri- policy and regulatory framework to ensure qual- vate sectors, to achieve safe, high-quality ity and accountability. The government regulato- care. ry authority has changed several times in recent years, a cause of some instability within the sec- Target tor. The current authority, the Supreme Council • Ensure that 100% of healthcare professionals of Health, must deal with multiple challenges. The are licensed by the Supreme Council of Health. key challenge is to recruit and retain highly skilled staff, both Qatari and expatriate, amid a shortage Ensure the quality of healthcare facilities of high-quality personnel. To achieve this outcome, the government will: Qatar’s healthcare regulations need strengthen- • Establish national standards and regulations ing, through a clear and comprehensive regu- for healthcare facilities across the public and latory framework that monitors the healthcare private sectors. system, ensuring safety and quality without imped- ing progress. Changes will be needed in work- Target force recruitment and retention policies. The • Ensure that 100% of healthcare facilities are aim should be to employ the best possible work- licensed by the Supreme Council of Health. force, Qatari or expatriate, while also focusing on enhancing national capacity. Qatarization should Ensure the quality of healthcare products and be supported, appropriately, with Qataris receiv- protect the public’s safety ing the required mentorship and support to fill their roles. To achieve this outcome, the government will:

116 Qatar National Development Strategy 2011–2016 a h c pter 4 • Ensure that healthcare products and medica- • Ensure that on patient satisfaction surveys, 70% tions are safe and meet quality standards and that of patients answer “yes” for recommending the appropriate drugs are available when needed. health facility. • Increase the capacity and fortify the roles of the Supreme Council of Health’s Pharmacy Effective and affordable services and Drug Control Department, and strengthen through partnerships in bearing regulation. healthcare costs • Implement a national formulary. • Centralize the purchasing of drugs and medical Qatar needs mechanisms to guarantee the pro- supplies to enhance efficiency and control costs. vision of clinically appropriate and cost-effec- • Include registration of medical services. tive services. Greater coordination, transparent accounting, proper cost sharing and a system of Targets justification through a certificate of needs process • Establish a national formulary. for major healthcare infrastructure projects are all • Regulate all medical devices. envisioned. From a national perspective, two areas need to be addressed: finance and infrastructure. Support patient complaints and rights There is no single comprehensive information To achieve this outcome, the government will: source on nationwide healthcare expenses. Analysis • Establish a patient advocacy body as a neutral, of healthcare spending data from Hamad Medical confidential and independent third party. Corporation, the Supreme Council of Health and Primary Healthcare Centres found that spending Targets rose almost fivefold from 2001 to 2008, to QR 4.3 • Establish a patient advocacy body. billion (figure 4.3). The share of government

Figure 4.3 healthcare spending in Qatar has risen almost fivefold since 2001

Healthcare spending (QR billions) 5

4.3 4

3.5

2.6

2 2.0

1.5 1.3 1 1.1 0.9 0.9 0.8 0.8 0.7 0.7

0 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008

Note: Hamad Medical Corporation and National Health Authority spending only (excludes spending on major projects).

Nurturing a healthy population 117 spending on healthcare surged from 6% to 15%, The Supreme Council of Health has begun devel- reflecting both a larger population and high- oping a national health accounts system, which will er per capita spending—from QR 1,581 in 2001 also support a more accurate budgetary process. to QR 4,383 in 2007. Much of the growth likely reflects increased investment in infrastructure and Strengthen the budgeting process workforce. Per capita spending in Qatar is markedly below the Organisation for Economic Co-opera- To achieve this outcome, the government will: tion and Development country average of QR 8,047. • Institute a comprehensive and accurate account of healthcare spending through a healthcare Traditionally, public health budgets in Qatar have budgeting process (activity-based costing) and been developed using linear extrapolation based defined nomenclature that enable monitoring on historical spending, rather than standard prac- and control of costs. tices such as programme-based, multiyear and activity-based budgeting. The lack of national Target health accounts and transparent performance- or • Set up a multiyear activity-based budgeting activity-based budgeting makes it difficult to com- system. pare costs across providers, establish cost drivers, identify best practices or monitor costs. Achieve more efficient and effective management of treatment abroad Because certain specialty services are unavailable in Qatar, some citizens are sent abroad for treat- To achieve this outcome, the government will: ment. The amount spent on treatment abroad • Standardize processes to optimize expenditure increases every year. There is additional spend- and enhance quality of care. ing on treatment abroad beyond that accounted for in the Supreme Council of Health budget. Target Improvements are possible through cost efficien- • Achieve a 50% follow-up rate in Qatar for cy and better management, without limiting patients receiving treatment abroad. access to care. Establish a system of health insurance Qatar has been working to implement a national health insurance scheme. The launch of health To achieve this outcome, the government will: insurance will affect all elements of the health- • Set and meet the prerequisites for national care system and afford Qatar multiple benefits. health insurance as a tool for developing a sus- It will help Qatar achieve the principle of cost tainable, high-quality health system. partnership outlined in QNV 2030, with employ- • Continue designing an insurance scheme that ers and expatriates sharing the costs. Health supports the model of care and carries incen- insurance can provide the right set of incentives tives for cost-effective care and treatments. across all healthcare stakeholders and can be a good source of healthcare data. Payment and Target reimbursement mechanisms for health insur- • Achieve 50% health insurance coverage by 2016. ance can promote clarity in healthcare system spending. The national infrastructure framework does not fully reflect the healthcare needs of the popu- Qatar must ensure that the prerequisites are lation. Historically, the emphasis has been on in place, implementing them on an accelerat- increasing hospital capacity rather than on pro- ed schedule to avoid jeopardizing integration of viding community-based services. Needs are not insurance as a key element of its health system. always met on the facility level, and designs may

118 Qatar National Development Strategy 2011–2016 a h c pter 4 not fully reflect the requirements of the end user. High-quality research directed at Construction of healthcare infrastructure is often improving the effectiveness and quality delayed, leading to outdated facility plans. Under- of healthcare lying these issues are limited coordination and planning, and a focus on providing services in an Qatar has embarked on an ambitious research pro- acute care facility rather than through primary gramme, but national coordination has been limit- care in a community setting. ed. Healthcare research focuses almost exclusively on biomedical topics, with little attention to pub- A national healthcare infrastructure plan will pro- lic health or policy. Meeting the QNV 2030 goals vide the basis for healthcare infrastructure devel- requires national alignment of all research activ- opment. Once developed, the plan will need an ities, appropriate use of resources and research oversight mechanism. Such a system would ensure embedded in all fields of health, including pri- that infrastructure spending aligns with needs mary care, clinical effectiveness, quality improve- and the chosen model of care and that decision- ment, policy, public health and biomedicine. making is consistent and based on need. Conduct high-quality research to support a world- Ensure health infrastructure planning class health system

To achieve this outcome, the government will: To achieve this outcome, the government will: • Provide a dynamic long-term master plan for • Focus research and appropriate funding healthcare facilities and major equipment that on all areas of healthcare, especially public can cope with continually changing needs. The health, public policy, biomedicine and clinical master plan should be based on the model of effectiveness. care and services needed for the country, as • Ensure that research activities comply with identified in the clinical services framework. international standards of ethics, such as those outlined by the World Health Organization, Target which provide guidelines on ethical standards • Prepare and approve a healthcare infrastruc- and procedures for research on humans. The ture master plan. guidelines define the role and constituents of an ethics committee and the requirements for Manage capital expenditures submitting an application for review, detail the review procedure and specifics of the decision- To achieve this outcome, the government will: making process and explain necessary follow- • Establish a committee to which public provid- up and documentation procedures. ers and any private providers requesting gov- • Designate the Supreme Council of Health as ernment funds or reimbursements must pre- the national governance structure for research sent new healthcare infrastructure projects for providing a national regulatory framework, approval based on a business case plan dem- national direction on research priorities and onstrating need and aligned to the model of coordination of publicly funded research. care. Targets Target • Establish a national research governance body • Achieve 100% compliance by health facilities led by the Supreme Council of Health. requesting funds to finance infrastructure • Produce at least four high-quality research and major medical equipment such that they papers (based on citation rate or on publica- should abide by the requirements of the certifi- tion in refereed journals), per researcher, in cate of needs process. priority areas.

Nurturing a healthy population 119 Other sectors as enablers for healthcare Prerequisites for implementation regular communication with all the stakeholders directly involved in administering the pro- Successful implementation depends on the follow- grammes, broader outreach to the healthcare Support ing critical prerequisites: community and a public relations and market- consanguinity Promote • Human resources is the most critical prerequisite. ing campaign to engage the public. risk reduction Family cohesion school health and women’s Education and The first step is identifying the human resourc- empowerment training es that will be responsible for the outcomes. Fostering cross-sectoral links The recommended programmes will result in substantial need for healthcare expertise and The strategy outlined here brings to life the professional healthcare capacity. Qatar will expectations for the healthcare sector laid out in Promote sport activities Improve Population, take aggressive steps to address this need. QNV 2030. A world-class integrated healthcare sys- labour force A healthy Social protection, for a healthier lifestyle, occupational safety and and road safety towards a • A strong leadership and a governance system must tem is a critical component of the human devel- and Qatari population sport health employment cohesive society enforce implementation plans. The Supreme opment pillar of QNV 2030. The 2011–2016 strat- Council of Health will take this leadership and egy for healthcare aims to move the sector far in authoritative role, either through its Board or the direction of achieving this vision. The recom- the Executive Committee, to provide govern- mended programmes are structured to ensure Economic ance for realizing the National Development complete alignment with QNV 2030. diversi cation Environmental Strategy 2011−2016 initiatives for health. Provide health facility and economic sustainability Encourage healthier living infrastructure infrastructure and working • A dedicated programme management office must be This strategy’s success will be determined through environments set up to support and enable implementation its implementation. It will also depend on collabo- of the National Health Strategy. This office will ration with other sectors. A healthy population is track and monitor execution, identify risks and both a goal and an enabler of QNV 2030. In this concerns, develop mitigation strategies, pro- regard it is important to highlight the most criti- vide implementation status reports to leader- cal area of cross-sectoral linkage—public health. ship and furnish subject-matter expert support Governments across the world have recognized Goal Enabler to the project teams and departments identi- that public health is the responsibility of all stake- fied to lead the projects. holders, not just the healthcare sector. For Qatar • Sequencing and prioritization are paramount, given this means a comprehensive effort in which the Healthcare as an enabler for other sectors the difficulty of carrying out the programmes. Supreme Council of Health and government, Outputs have been prioritized to ensure that private and civil society stakeholders cooperate. implementation focuses on efforts that promise Many recommended critical initiatives (such as the greatest impact. Any limits on implementa- school health promotion, road safety, occupation- Promote mother and Promote higher education child health Family cohesion in health tion will arise not from budgetary constraints but al health) require multistakeholder collaboration. and women’s Education and empowerment training from a scarcity of skilled and qualified personnel. These cross-sectoral links will be reflected as the • A sustained change management and communica- strategy moves into the next phase of validation tion effort is needed to provide intensive and and sector alignment (figure 4.4).

Increase Provide emergency medical Population, Social protection, attractiveness of labour force A healthy services for road accident health as a profession safety and victims; health needs of and Qatari population sport for Qataris employment vulnerable groups

Economic diversi cation Environmental Encourage private and economic sustainability Monitor health and sector involvement infrastructure safety standards and safeguard against risks

120 Qatar National Development Strategy 2011–2016 Figure 4.4 A healthy population is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for healthcare

Support consanguinity Promote risk reduction Family cohesion school health and women’s Education and empowerment training

Promote sport activities Improve Population, labour force A healthy Social protection, for a healthier lifestyle, occupational safety and and road safety towards a and Qatari population sport health employment cohesive society

Economic diversi cation Environmental Provide health facility and economic sustainability Encourage healthier living infrastructure infrastructure and working environments

Goal Enabler

Healthcare as an enabler for other sectors

Promote mother and Promote higher education child health Family cohesion in health and women’s Education and empowerment training

Economic diversi cation Environmental Encourage private and economic sustainability Monitor health and sector involvement infrastructure safety standards and safeguard against risks

121 Building knowledge and skills

“Qatar aims to build a modern world-class educational sectors and conducted in cooperation with system that provides students with a first-rate education.” international organizations and leading inter- —Qatar National Vision 2030 national research centres. • A strong international role in cultural and As Qatar’s economy diversifies more from its intellectual activity and scientific research. reliance on gas and oil, success will increasingly depend on the ability to compete in a glob- Qatar has made great strides towards a world-class al knowledge economy. Educating and training education system, through the Education for a Qataris to their full potential will be critical to New Era reforms, which began after the Supreme continuing progress. Education Council was established in 2002, and the Qatar University reforms, which began in Beyond preparing citizens to be part of the coun- 2003. In addition, Qatar Foundation’s Education try’s economic engine, education and training City has continued to expand and progress over offer multiple benefits to society. Education pro- the past decade, with the establishment of a clus- vides a solid grounding in Qatari religious, moral ter of top-class international universities that are and ethical values, national identity, traditions and strengthening Qatar’s capacity in innovative edu- cultural heritage. Schools produce well round- cation and research. ed and engaged citizens and build more cohesive and participatory societies. Education and train- Qatar is also attracting renowned education ing also help people make better decisions about institutions, with three Outstanding Schools health, marriage, parenting and social responsibil- already in place (Michael E. DeBakey High ity. Finally, a successful education strategy supports School for Health Professionals, International innovation in science, medicine and industry. School of London and Sherborne School) and more in the pipeline. At the technical level, in To help Qatar benefit from both the social and 2010 Qatar opened its first community college economic advantages of education, QNV 2030 in partnership with Houston Community Col- commits to delivering world-class education and lege, which complements the College of North training opportunities to Qatari citizens that align Atlantic Qatar (CNA-Q). All these institutions with their abilities and interests and that prepare award internationally recognized diplomas and them for employment. degrees and support Qatar’s aim to become a premier knowledge-based society. QNV 2030 articulates several education and training goals: As the agency in charge of developing education • A world-class education system that enables citi- in Qatar, the Supreme Education Council strives zens to achieve their aspirations and that meets to upgrade the standard of education to meet the Qatar’s needs. needs for outstanding human resources across all • A national network of formal and nonformal sectors—which aligns with the national education education programmes that equips Qatari chil- policy that is in turn linked to education goals, dren and youth with the skills and motivation plans and programmes reflectingQNV 2030. to contribute to society. • Well developed, independent, self-managing Previous achievements were compatible with the and accountable education institutions operat- QNV 2030 requirements for setting the plans, pro- ing under centrally determined guidelines. grammes and monitoring needed to implement • An effective system for funding scientif- the national education policy and its organization- ic research shared by the public and private al structure. These changes should be compatible

122 Qatar National Development Strategy 2011–2016 a h c pter 4 with the goals of the Education for a New Era education mediums and conducting scientific reform agenda and provide more options, great- research. er variety, common accountability and increased independence. The goal of developing all aspects of a student’s personality and enhancing student loyalty to the All government schools have been transformed country has been realized. The curriculum stan- into independent schools that are financed by the dards also cover cognitive and skill dimensions— government but managed independently accord- which include scientific, critical and logical ing to standards, policies and systems adopted thinking as well as learning processes such as and approved by the Supreme Education Council. observation, classification and measurement—in Owners of independent school licences, teachers, addition to attitudes and values. parents and students are responsible for achieving success at all levels of the education system. The standards spell out what knowledge and skills students should acquire at each K–12 education To further improve education, professional stand- level and ensure that students receive an educa- ards that detail the skills and knowledge to be tion that reflects the advanced standards used in acquired during a career at independent schools other countries. This will qualify general educa- were established for education school principals, tion graduates to join the best universities and leaders and teachers. The standards provide a clear to compete in the local and international labour vision for performance. Professional licences for markets. Graduates will acquire the education teachers and education leaders are based on these needed for a successful private and occupational standards according to cumulative skill levels. life in the 21st century, including knowledge of Arabic language, English language, mathematics, To increase choice, under the Education for a integrated sciences, social sciences and physical New Era reform agenda, parents can select a pub- education. lic or private school that best fits their children’s needs. A voucher programme provides options for Community participation, an important pil- the needy to access private education. To expand lar in the education system, enhances develop- variety, schools and instructional programmes ment and monitoring, which are overseen by the are encouraged to meet differing needs. To share board of every school and through public and accountability, a transparent assessment system private sector participation in education—for —the annual Qatar Comprehensive Evaluation example, in private schools that are managed by Assessment for independent school students— both the public and private sectors. holds all school leaders, teachers and parents accountable for the success of students. To devolve Driving the reform initiatives of Education for autonomy, schools and teachers are encouraged to a New Era are the three policy and regulatory innovate in meeting the needs of individual stu- institutes of the Supreme Education Council. dents and parents within the framework of com- The Education Institute oversees and supports mon curriculum standards. independent schools and enforces curriculum standards. The Evaluation Institute conducts The curriculum standards are an important part student testing, monitors student learning and of Qatar’s education development plan, which has evaluates school performance. The Higher Edu- been under preparation since the independent cation Institute advises students about career schools system was established in 2004. The plan options and opportunities for higher education has changed the curriculum culture to one that is in Qatar and abroad and administers scholar- more student-centred and that encourages using ships and grants.

Building knowledge and skills 123 The education and training initiatives of the of preparatory school and 3 years of secondary National Development Strategy 2011−2016 build school), higher education, technical education on the ongoing reforms and are based on an and vocational training, and scientific research. extensive stakeholder consultation and analysis of These are presented later in the chapter. the achievements and challenges facing the sector, along with benchmarking of international Desired qualities of Qatar’s education best practices. This strategy for continuing reform and training system of education and training will drive far-reaching changes. As international experience suggests, Qatar’s education and training system must be successful education reforms, though they may comprehensive and integrated, stretching from take many years to realize their full benefits, will early childhood education through to higher level be to the advantage of all who live and work in education and additional training. Engrained in Qatar, if consistently implemented. this system is the concept of lifelong learning, with individuals encouraged to acquire educa- Qatar’s education and training system prepares tion and update their skills throughout their lives. all its people for success in a world of increasing- This continuum spans three education sectors: ly complex requirements, serving as a vehicle for general education, higher education, and techni- social and economic transformation. cal education and vocational training. While each • On an individual level, it will offer Qatari cit- sector has a distinct identity, mission and func- izens opportunities to realize their intellectu- tion, the sectors need to operate within an over- al potential, develop their abilities and follow arching framework that embodies policy-related their aspirations and interests. The evolving principles. And both education and training need education system also aims to motivate Qataris to establish stronger links with Qatar’s labour to use their knowledge and skills to better soci- market. ety. The system will encourage analytic and critical thinking, creativity and innovation. Further reform of Qatar’s education and train- • On an institutional level, it will improve ing system will address three policy themes: qual- accountability and professionalism, making ity, equity and inclusiveness, and portability and best use of available resources. mobility. These themes will guide policy deci- • On a societal level, it will afford students a sense sions, along with variety, choice and accountabili- of belonging, responsibility and citizenship so ty. A strengthened reform programme will tackle they can lead the way to an economic and soci- a number of critical challenges and opportuni- etal vision beyond hydrocarbons. The system ties affecting both supply of and demand for edu- will promote social cohesion and respect for cation and training. These include the undera- Qatari values and heritage and advocate con- chievement of Qatari students in math, science structive interaction with other countries. and English language at all levels and weaknesses in education administration and the teaching The needs for developing Qatar’s education and profession. The educational curriculum needs to training sector to achieve these overarching goals be more aligned to the needs of the labour mar- have been consolidated into 20 sector outcomes, ket while supporting Qatari values. The system with 29 related projects, that represent the frame- needs to offer multiple pathways beyond the sec- work for education and training in the National ondary level to encourage a higher continuation Development Strategy 2011−2016. Six core out- rates. comes require integration and planning across all educational sectors. The others are specif- Quality is critical in ensuring outcomes that ic to K–12 general education (1–2 years of kin- address the needs of current and future labour dergarten plus 6 years of primary school, 3 years markets. The challenge arises in achieving

124 Qatar National Development Strategy 2011–2016 a h c pter 4 consistent and sustained quality across sectors. throughout their lives. Appropriate training and Quality teachers, trainers and lecturers, as well as education should be available and accessible to all. education planners, are a prerequisite, making it Meeting the stated aim of “accessible educational mandatory that all sectors monitor teacher train- programmes for lifelong learning”, in a context of ing, qualifications and professional development. participation and inclusion, will require policies The current high turnover of Qatari and expatri- that overcome socioeconomic barriers of age, gen- ate teaching staff must be reversed. der and geography.

Attention to quality will be part of establishing Important for inclusiveness is further expand- curricula, resourcing schools and training cen- ing private schools in line with growing demand tres, improving information and communication among Qatari and expatriate children (figure technology and managing governance arrange- 4.5). Qatari parents are increasingly paying to ments. It will contribute to improving attainment send their children to international schools. Fur- by students at all levels, particularly in science, ther, a school voucher programme is available for mathematics and languages. And it will support use at selected schools, based on need. The ulti- increased transitions to post-secondary studies. A mate goal is to allow all Qatari students to partici- major priority is to increase the share of students, pate, with school fees no longer a driving factor in especially male students, who pursue a tertiary school choice. Competition is expected to emerge education, to which returns are high. not only between independent schools, but also between public and private schools, thus promot- Equity and inclusiveness also cut across the edu- ing variety and choice. cation and training sector. Related to lifelong learning, this principle should enable all peo- Improved standards for private schools, initiated ple to acquire, develop and update their skills by the Supreme Education Council, are one reason

Figure 4.5 With the growth in the number of school-going children in Qatar, demand for international and community schools is rising

Number of students (thousands) Number of schools 200 500

Outstanding schools

Outstanding schools 400 150

300 Private International and community 100 International and community Private Arabic Private Arabic 200

Independent 50 Independent 100 Public All independent from 2010/2011

Semi-independent Semi-independent 0 0 2003/2004 2005/2006 2007/2008 2009/2010 2003/2004 2005/2006 2007/2008 2009/2010

Building knowledge and skills 125 behind the growth in the number of school-going Qataris must be able to move easily among edu- children in private schools. However, other impor- cation and training options and between those tant factors cannot be ignored: reverse migra- options and the workplace. No longer can edu- tion has increased, as a result of some indpendent cation pathways be considered a linear progres- schools providing better eduation than some pri- sion through a vertical hierarchy of qualifications. vate schools. Both vertical and horizontal pathways are needed, within and between sectors and institutions. A Portability and mobility, another key policy theme, National Qualifications Framework will strength- also promotes variety and choice. Students and en coordination and integration of the education other stakeholders in education and training sys- and training systems. tems expect to have their qualifications recognized by education and training institutions and Qatar has invested heavily in best practice models employers and to receive credit for previous stud- of education. It will continue to do so to adapt and ies. In addition, students and stakeholders expect mould basic and higher education to meet the skill flexible career and study pathways for entering requirements of a more diversified economy, while and re-entering the education and training system respecting Qatar’s cultural values and national without penalty. This approach maximizes citi- heritage. The share of government spending on zens’ flexibility in planning their careers, uncon- education has grown markedly in recent years and strained by life stage or location. now exceeds the average for Organisation for Eco- nomic Co-operation and Development countries To realize Qatar’s vision of providing opportu- and for all Gulf Cooperation Council countries nities for citizens to achieve their full potential, except Saudi Arabia (figure 4.6).

Figure 4.6 Government spending on education and training is high in Qatar compared with benchmark countries

Government spending on education in Qatar . . . and has increased substantially as a share is now above average as a share of GDP . . . of total government spending % (latest year available for 2007–2009) % 8 25

6.8 20 21 6

15 4.8 4.8

4 13

3.6 3.7 3.6 10 11 9 8 2 5 1.3

0 0 Qatar, Oman Kuwait Saudi United Arab OECD European 2000 2005 2006 2007 2008 2008 Arabia Emirates average Union average

Source: UNESCO Institute for Statistics, Education data set (2010); AMEinfo (2008); OECD, Education at a Glance (2009).

126 Qatar National Development Strategy 2011–2016 a h c pter 4 Growing importance of private and Qatar’s education and training system and plan- independent schools and rising ning for its future. With the rising number of expa- enrolment of children of expatriates triates, their children now constitute the majority of students at all levels of education. Both groups of Understanding the dynamics of enrolment of students are enrolled in public and private schools, Qatari children and children of expatriates is and there has been a marked growth in interna- important for interpreting recent changes in tional schools (figure 4.7). Future trends in the size

Figure 4.7 The share of Qataris in international schools at all levels grew markedly between 2003/2004 and 2008/2009

Qatari students Public Arabic International Primary Preparatory Secondary % of schools % of schools % of schools 100 100 100 4 6 5 8 18 9 2 10 7 7 18 89 86 87 88 8 75 75 75 74 74

50 50 50

25 25 25

0 0 0 2003/2004 2008/2009 2003/2004 2008/2009 2003/2004 2008/2009 25,513 students 32,989 students 14,246 students 15,562 students 12,073 students 14,421 students All students (Qatari and non-Qatari) Primary Preparatory Secondary % of schools % of schools % of schools 100 100 100 29 47 27 35 22 28

75 75 75 7 8 6 13 70 66 6 66 58 58 50 8 50 50 46

25 25 25

0 0 0 2003/2004 2008/2009 2003/2004 2008/2009 2003/2004 2008/2009 65,351 students 84,668 students 29,483 students 35,802 students 24,470 students 30,596 students

Building knowledge and skills 127 and composition of the expatriate school-going effective strategic objectives, in advancing reforms population is necessarily uncertain and will reflect across education levels, Qatar will engage in more trends in the demand for higher skilled workers. cohesive strategic planning. To reach the goals for the education sector, the government will address The majority of Qatari students are enrolled in core education and training issues, improve K–12 public schools, which all became independent general education, improve higher education, schools in 2010–2011. But while their enrolment strengthen technical education and vocational share in public schools has remained unchanged training and enhance scientific research. since 2003/2004, when implementation of the K–12 reforms was getting under way, their share Addressing core education and training in private international schools has surged at all issues levels (see figure 4.7). Overall Qatari enrolment in private international schools now ranks sec- To track education processes effectively, data need ond after public schools, ahead of private Arabic to be more readily available and transparent. schools. The switch reflects the increasing impor- Teacher quality needs to be raised through pro- tance of non-Arabic schools, the majority provid- fessional development and a compensation system ing instruction in English. that attracts top talent to the country and retains it. Motivating students requires both in-school pol- The increasing number of expatriate children icies and outreach to students and parents, who exposes Qatari children to their peers from a may harbour misconceptions about the value of diverse group of countries and cultural back- education. grounds and provides the opportunity to establish friendships with them and share experiences. It Formulate a comprehensive, integrated also has implications for ensuring that the educa- 10-year education strategic plan for tion system fulfils its role of strengthening Qatari all stakeholders, incorporating quality, culture and values. efficiency and inclusiveness

For Qataris, QNV 2030 calls for developing an edu- Ensuring cohesion across all education phases cation system that “equips citizens to achieve their is essential to promoting world-class education. aspirations and to meet the needs of Qatar’s soci- Some of Qatar’s education and training institu- ety”. An important objective relates to the role of tions have already met this goal, and others have education and training in meeting the current and defined a strategic path to reach it. But strategic future needs of the labour market. For children of planning is often not aligned across stakeholders, expatriates, the aim is to meet the general commit- resulting in gaps, overlaps and unclear competen- ment to fully address “their cultural rights . . . and cies. Forming a comprehensive, integrated 10-year public service needs” by providing access to a world- strategic plan for all education phases that pro- class education system. The availability of high- motes quality, efficiency and equity and includes quality education will itself be a critical determi- all stakeholders, would catalyse development of nant in attracting high-skilled expatriates to Qatar. the sector.

Realizing Qatar National Vision 2030 for Ten-year education strategic plan education and training To support this initiative, the government will: Despite considerable progress towards a world- • Define the vision and mission of the strategic class education system that meets Qatar’s needs plan. and despite comprehensive strategic plans of edu- • Derive strategic goals and align with key stake- cation institutions that include integrated and holders.

128 Qatar National Development Strategy 2011–2016 a h c pter 4 • Conduct a baseline study of education sectors • Form a task team of education sector represent- and perform benchmarking. atives and government officials to determine a • Integrate existing programmes across all edu- roadmap for implementing new programmes. cation sectors. • Implement programmes and communicate to • Develop an effective mechanism for evaluation parents and students. and follow-up. • Provide input to the national curriculum • Align with stakeholders from public and pri- committee. vate sectors, civil society organizations and academia and develop a mechanism for communi- Target cation and coordination. • Design and launch education programmes that instil national values in Qatari students. Target • Develop and implement an integrated 10-year Develop education and training strategic plan for all education phases. professionals and institutions

Strengthen Qatari values throughout Recent regulatory reforms have improved the qual- education and training ifications and standards for professionals in Qatar’s education and training sector. More time is ded- Qatari society has been exposed to many new icated to in-service professional development in influences in the last decade, including the ever- public schools, teachers are evaluated more often growing number of expatriates working and liv- and principals need to provide proof of teaching in Qatar. While a large expatriate community ing experience. While these efforts are showing broadens perspectives on other cultures and life- early results, many teachers still lack formal teach- styles, it also threatens traditional Qatari values ing qualifications. Teacher turnover is high, and founded in Arabic culture and Islam. For this rea- Qatari boys are rarely taught by nationals. Over- son, QNV 2030 specifies that education should con- all, education and training professions have limit- tribute to “a solid grounding in Qatari moral and ed appeal—they are low paid and offer few options ethical values, traditions and cultural heritage”. for professional and career development.

Although providing academic guidance and deep- Several levers will have to be activated to improve ening the moral values instilled by Qatari fami- principal effectiveness and accountability, teach- lies and communities are already a core principle er accountability and institutional accountability of the curricula and institutional missions, addi- towards stakeholders, among other issues. These tional measures can support this goal through all measures should open up multiple opportunities phases of education and training. in education and training and attract well qualified and ambitious professionals. Support the strengthening of Qatari values Educated workforce and institutional development To support this initiative, the government will: plan • Conduct focus groups with key government officials, experts and university representatives To support this initiative, the government will: on the national values to be instilled in Qatari • Prepare a professional development strategy students. for K–12 teachers and principals. • Assign a development expert to prepare pro- • Produce an operational and management grammes in coordination with education and model for the education and development of training sector representatives and government teachers for the technical education and voca- officials. tional training system.

Building knowledge and skills 129 • Design recruitment, development and incen- recent investments, and many students enjoy tive programmes to attract talented Qataris to access to school computers comparable to that in teaching positions within higher education. European countries (figure 4.8). Under the Educa- tion for a New Era reform, many teachers received Targets intensive training on integrating ICT into teach- • Formulate and implement a workforce and ing and learning. institutional development plan for education and training professionals and institutions. However, it remains unclear whether these ICT • Enhance the professional capacity of teachers opportunities are used to their full potential. A and workers in K–12 education. continuing training programme for teachers is likely required for students to fully benefit from Integrate information and ICT-supported learning. Also, no integrated strat- communication technology in education egy links ICT use in K–12 education with higher and administrative processes education and technical education and vocational training. Developing an integrated ICT strategy for Information and communication technology education and training will be the starting point of (ICT) is a key enabler of successful education and an even more important role of ICT in this sector. training. Mastery of technology is required to participate in and contribute more effectively to the Management strategy for using information and knowledge economy. Using ICT in teaching can communication technology for improved learning improve learning outcomes and increase effective- environment ness in administrative functions. To support this initiative, the government will: Qatar’s K–12 institutions are comparatively well • Develop an integrated ICT strategy for all educa- equipped with ICT infrastructure, due to large tion sectors in Qatar based on international ICT

Figure 4.8 Most students in Qatar have ready access to computers at school

School type Education phase Number of students per school computer Number of students per school computer 30 30 Private

United Arab Emirates United Arab Emirates

20 20 Bahrain Primary Bahrain Semi-independent Secondary

10 International 10

Independent European Union European Union Preparatory

0 0 2005/2006 2006/2007 2007/2008 2008/2009 2005/2006 2006/2007 2007/2008 2008/2009

Source: ictQATAR, Qatar’s ICT Landscape (2009), chapter 4.

130 Qatar National Development Strategy 2011–2016 a h c pter 4 best practices to improve management, admin- Target istrative processes, learning environments, • Prepare and implement a comprehensive teaching methods and education outcomes. communication plan to increase student • Prepare a detailed implementation plan for motivation. increased ICT use in school administration and in education services delivery, along with Support evidence-based monitoring a set of ICT standards that are mandatory for and policy-making by key stakeholders public education institutions and strongly recommended for private institutions. Recent reforms in education and training have greatly improved the availability of reliable data. Target Additional data production and gathering activ- • Develop and implement an ICT strategy. ities include the annual Qatar Comprehensive Educational Assessment and data publications Increase motivation and awareness of such as the annual Schools and Schooling in Qatar the benefits of education and training report.

Because the motivation to learn is a key driver But Qatar lacks a model for collecting and ana- of success in the education and training system lysing and disseminating education and training and beyond, strengthening student motivation data that can be used across all phases and insti- throughout all educational sectors has emerged as tutions. Ready access to such data would increase a priority. accountability to the government and the public and support evidence-based policy-making that High rates of absenteeism, little time spent on advances the development of the education and homework and a lack of classroom discipline com- training sector. pared with international benchmark countries suggest that many students, especially boys and Comprehensive education and training database men, lack the motivation to take advantage of the education and lifelong learning opportunities To support this initiative, the government will: that the strategy envisions. Many Qatari students • Determine data needs by consulting with appear to believe that they can secure jobs and stakeholders. make a good living despite low academic qualifi- • Establish the most efficient operational process- cations. Moreover, students and their parents may es for collecting data from relevant institutions. not fully appreciate the benefits of a high-quality • Develop a process to periodically review the education when they make schooling choices. This effectiveness of the database manager in meet- pattern continues through higher education, with ing informational needs. many students choosing not to enrol or discontin- • Establish formal links to information providers. uing their studies early, so as to enter public sector • Provide online access and search options to the employment. database. • Include transparent performance indicators in Comprehensive communication and motivation plan strategic and operational plans.

To support this initiative, the government will: Targets • Prepare an integrated, long-term effort to com- • Create a comprehensive education and train- municate to stakeholders, including students, ing information and planning database. parents, teachers and principals, to raise aware- • Use the database to build a monitoring and ness of the value of education and the conse- evaluation framework for the strategy, taking quences of education decisions. into account cross-sectoral links.

Building knowledge and skills 131 Improving K–12 general education high level of education for every class in all types of schools through work schemes and model lec- The reforms in K–12 general education have tures, the standards are the basis of unified tests addressed some of the roots of low student perfor students in Qatar. formance, especially those related to education inputs. But several issues remain unaddressed. However, the standards constituted a challenge for • Enrolment rates and ratios are generally high teachers and students, especially when accompa- in primary and preparatory education but can nied by other changes, such as adopting English still be improved. Mandating kindergarten and as the language of instruction and introducing a secondary schooling could increase education- student-centred approach to teaching. al achievement. • Teachers and students are overwhelmed by The education system in Qatar has set the founda- reform initiatives. The concurrent implemen- tions, standards and plans needed to upgrade the tation of curriculum standards that need to management of private schools, improve the qual- be detailed by teachers, a student-centred ity of education in schools and support the educa- teaching approach and the use of English as tion environment in a way that enhances Qatari the instructional language may be burdening values. Moreover, a system for evaluation, licens- teachers with so many new responsibilities that ing and re-licensing was put in place. In addition, classroom learning has suffered. private education law was developed, an educa- • Many secondary school graduates are not suf- tion coupons programme was devised and branch- ficiently literate and numerate for higher edu- es were opened in Qatar for outstanding private cation, signalling a failure of the K–12 sys- schools. tem to prepare students for further education opportunities. Preschooling has grown tremendously since the Education for a New Era reforms were initiated Ensure universal access to high-quality (figure 4.9), with around half the children of education for K–12 appropriate age participating. Some 9 out of 10 attend private kindergartens. Preschools are an Because financial and societal returns to educa- excellent mechanism supporting early childhood tion rise with the duration of education, the gov- development, which enhances a child’s future ernment and citizens should strive to provide learning ability. Preschooling stimulates cogni- opportunities for more schooling. tive and linguistic development. Because kindergarten is not yet mandatory, some children enter Also important is taking a holistic approach to school less prepared than others. International developing technical and behavioural skills, from evidence suggests that children benefit most from early childhood through adulthood. Any deficits preschool when all classmates are at a similar level acquired early in life are difficult to remedy later, of knowledge. so good nutrition, mental stimulation and basic cognitive development are essential for infants Participation in primary, preparatory and sec- and preschoolers. ondary schooling is high in Qatar compared with regional benchmarks (figure 4.10). Howev- Within the framework of the Education for a New er, enrolment drops considerably after the end Era initiative developed by the Supreme Education of compulsory schooling, especially among male Council, standards were set for six subjects at the students. To ensure opportunities in higher edu- K–12 level (Arabic language, English language, cation and training and in continuing educa- mathematics, sciences, social studies and physical tion for all students, the government will consid- education). Designed to help teachers provide a er making secondary schooling compulsory and

132 Qatar National Development Strategy 2011–2016 a h c pter 4

Figure 4.9 The number of Qatari and non-Qatari kindergarten students is increasing rapidly, and most attend private schools

Number of kindergarten Number of kindergarten students (thousands) students (thousands) 30 30

25 25

Non-Qatari 20 20

Private 15 15

10 10

5 5

Qatari Public 0 0 2003/2004 2004/2005 2005/2006 2006/2007 2007/2008 2008/2009 2003/2004 2004/2005 2005/2006 2006/2007 2007/2008 2008/2009

Figure 4.10 Participation in primary schooling is high in Qatar compared with regional benchmarks, but there is scope for higher participation in secondary schooling

By education level Primary education Net enrolment rate (%) Net enrolment rate (%) 1999 2008: increase decrease 100 Primary male United Arab Emirates Saudi Arabia Oman 90 Primary female Kuwait Qatar Bahrain 80 60 70 80 90 100 Secondary female Secondary education 70 Gross enrolment ratio (%) 1999 2008: increase decrease

United Arab Emirates Secondary male Saudi Arabia 60 Oman Kuwait Qatar 0 Bahrain 1991 2004 2005 2006 2007 2008 60 70 80 90 100

Source: UNESCO, EFA Global Monitoring Report (2009); World Bank database (2011); Ministry of Education, Annual Statistics Abstract (various years).

Building knowledge and skills 133 integrating vocational and technical options into that they tend to revert to old curricula and the curriculum. teaching methods.

Both suggestions would require increasing school One possible solution, implemented in bench- capacity—a need already evident in the ever-grow- mark countries, is to design a national curricu- ing number of students in younger cohorts. A lum that provides closer guidance about what and school building programme is therefore a prereq- how teachers should teach. This approach would uisite for increasing the duration of compulsory ease the burden on teachers to develop their own schooling. instructional design and content to meet changing guidelines. It would also provide considerable Building sufficient education infrastructure flexibility to teachers and schools that have already capacity mastered the reforms.

To support this initiative, the government will: Updated national K–12 curriculum • Develop an infrastructure plan to ensure adequate capacity to educate all children. To support this initiative, the government will: • Establish a high-level committee to review Targets national curriculum standards. • Expand school capacity in line with projected • Establish the curriculum. growth of student numbers. • Conduct a pilot programme with monitoring • Improve the quality of school buildings. and evaluation. • Implement the national curriculum across all Mandatory kindergarten and secondary schooling schools. • Disseminate information on the new national To support this initiative, the government will: curriculum and related educational resources. • Introduce measures to make kindergarten and secondary schooling mandatory. Targets • Design and implement a high-quality national Target K–12 curriculum. • Raise the net enrolment rate above 95% • Expand training programmes according to throughout K–12. national occupational and curriculum standards.

Consistently provide high-quality K–12 Support K–12 students to fulfil their education potential

As part of the Education for a New Era reforms, Most schools adhere to a standard curriculum, so the Supreme Education Council has developed there is little variation in school profiles. Qatar K–12 curriculum standards for core subjects as needs to provide diverse education options that guidelines for providing high-quality education allow students to choose curricula and teaching across schools and school types. The standards methods that match their aspirations and abilities. support teachers in delivering the required content for each grade and are the basis for stand- A uniform public K–12 system neglects students ardized student testing. Evidence suggests that with special talents and interests, such as students many teachers and students are overwhelmed drawn to arts, music or sports. The school system by these standards, which have been introduced also largely ignores vocational and technical tal- alongside other major reforms. Faced with so ents. International benchmarks suggest that Qatar many changes at the same time, teachers report would be well served by offering student-oriented

134 Qatar National Development Strategy 2011–2016 a h c pter 4 learning and fostering talents outside of the stan- • Apply the accreditation system to all private dard curriculum. These goals could be achieved schools after final refinement. through special classes or specialized schools. • Design a set of measures for attracting more outstanding schools. Qatar’s school system must also acknowledge weaknesses in student capabilities. On national Target and international tests, many Qatari students per- • Complete plans pertaining to developing and form below expectations in core subjects such as improving the quality of education in private math and science. Programmes should be consid- schools. ered to support students who are weak in these areas, so that they can successfully continue their Provide appropriate education options schooling. The K–12 national curriculum, learn- for children with special needs ing outcomes and instructional programmes must be aligned with individuals’ post-secondary aspi- Qatar has adopted inclusive policies for chil- rations and Qatar’s needs for a skilled workforce. dren with special needs. Schools are encouraged to accept these students, and more than half of Align education programmes and student needs schools are equipped to meet the needs of students with physical disabilities. Several institutions To support this initiative, the government will: cater to students who cannot be taught in regular • Implement programmes to support less talent- classrooms, offering these students the education ed students. needed to help them lead a meaningful life.

Target As the student population has grown, however, • Strengthen institutional capacity to cater to shortages have arisen in the provision of education diverse student needs. and training to students with special needs. Few teachers in government schools have been trained Improve student language, math and science how best to support such students, and experts skills at all K–12 levels who can assist students with moderate and serious disabilities are unavailable. Overall, increasing the To support this initiative, the government will capacity of specialized institutions would lower the • Review and incorporate best practices of teach- pressure on mainstream schools and reduce wait- ing math, science and English in national ing lists for existing specialized institutions. curricula. • Monitor and provide support systems for low Specialized system to ensure high-quality academic achievers. education for students with disabilities

Target To support this initiative, the government will: • Increase the share of students approaching or • Evaluate the infrastructure of specialized insti- meeting national standards in math, science tutions and facilities, including digital access, and English. for students with disabilities, and develop capacity as needed. Enhance the quality of education in private • Develop specialized curricula for students schools and attract outstanding schools to Qatar with disabilities, in connection with defining a national curriculum for K–12 general education. To support this initiative, the government will: • Invest in faculty development for teaching stu- • Assess the overall condition of private schools. dents with special learning needs. • Establish a national accreditation system for • Develop Qatari specialists to provide compre- private schools. hensive services for students with special learn- • Test the accreditation system in private schools. ing needs.

Building knowledge and skills 135 • Launch awareness campaigns for parents of • Encourage schools to hold workshops with key students with special learning needs and for employers in Qatar to learn about their skill other students and society at large. requirements and gaps in the skills of new • Invest in the development of institutions to graduates. enhance teaching of students with disabilities, • Consider placing career counsellors in schools to including identifying education and career advise students on education and career paths. pathways. Targets Targets • Include work skills in the national curriculum, • Increase the share of schools equipped with including implementing initiatives to foster stu- infrastructure for students with disabilities to dent exposure to work environments. 80%. • Operationalize work skills in the national cur- • Increase the capacity of specialized institutions riculum and enhance the performance of aca- and the number of Qatari specialists able to demic and vocational guidance in school. work with students with special learning needs. Improve parental, community and Increase awareness of skills required sectoral participation in K–12 education in future work environments In recent years, school performance has become Qatar’s K–12 system has only weak links with the more transparent to students, parents and the labour market. Many students in general K–12 community—important for increased school choice. schools report a lack of information about the However, studies suggest that many stakeholders are work environment; only two technical and voca- not involved in school life or knowledgeable about it. tional schools provide secondary education for students with technical and vocational inclinations. Schools need to engage stakeholders more actively, encouraging them to take an interest in school activ- One way to tackle this issue is to integrate com- ities, participate in school bodies and take advantage pulsory technical and vocational elements in cur- of informal occasions for information exchange. riculum standards and the national curriculum. Initiatives can be as easy as tying textbook exam- Beyond having Boards of Trustees since 2006, ples closer to the typical work environments in key schools should disseminate information through professions. Also valuable would be internships, the Internet in order to increase stakeholders’ inter- site visits, class presentations and workplace train- est in school activities, enhance their participa- ing to increase student exposure to work environ- tion in school committees and benefit from infor- ments and raise awareness of work-relevant skills. mal information exchange. They should publicize Career counsellors in every school could guide Board of Trustees and parent council policies and students in making decisions about their academ- involve the public and private sectors in education, ic and professional futures. Vocational schools for example, by having agencies and institutions run should be accredited based on business needs. some independent and private schools.

Improved work skills and awareness of the world- Increased school communication with parents, of-work at preparatory and secondary levels taking into account the education sector reform principles To support this initiative, the government will: • Align the national curriculum with the objec- To support this initiative, the government will: tives for creating effective participants in the • Develop a consistent communication approach at knowledge economy. the Supreme Education Council and school level.

136 Qatar National Development Strategy 2011–2016 a h c pter 4 • Develop programmes to encourage commu- Flexible literacy and numeracy programmes for adults nity and parental involvement such as extra- curricular activities for families, interschool To support this initiative, the government will: sports events and cultural and academic • Offer additional literacy and numeracy pro- competitions. grammes for adults beyond night schools—for example, in specialized centres—and create Targets incentives for adults to attend. • Increase communication between schools and • Create flexible pathways between vocational stakeholders. and general education programmes by offering • Increase parental involvement in schools and equivalence tests enabling adults with a vocation- provide parents with information on student al education to gain a general education degree. and school performance. Target Formalizing public and private sector participation • Increase the capacity and variety of institutions in education for adult education.

To support this initiative, the government will: Improving higher education • Take appropriate measures to increase quality, participation of all stakeholders in imple- Higher education institutions have a mission that menting the education and training sector extends beyond teaching students and conduct- strategy. ing scientific research for the sake of developing knowledge. These institutions must identify social Target needs that could be met through education and • Increase stakeholder participation in imple- research programmes that support government menting the education and training sector agencies, civil society and industry. Higher educa- strategy. tion institutions should encourage the university community—faculty staff, administrators and stu- Offer a broad range of basic education dents—to interact with the broader Qatari society. programmes for adults Higher education, the crucial link between the While younger Qataris have enjoyed the educa- K–12 system and the labour market, has under- tion benefits made possible by economic growth gone large-scale reforms. and financial wealth, many older Qataris lacked access to education or did not regard it as impor- Since 2003 Qatar University has implemented a tant. Many of these older Qataris now regret their successful reform programme to, among other lack of education, and some have chosen to catch things, raise standards and grades, increase stu- up through night school and other training and dent engagement and improve teaching quali- continuous education opportunities. ty and staff morale. A critical aim is to meet the needs of a new generation of Qataris in support of A range of measures can be introduced to support Qatar’s economic and social development. basic education for adults, a diverse group: more night schools, specialized learning centres and Qatar Foundation’s Education City continues to pathways into other education options. For adults flourish as a centre of excellence in education and who have lived well and had successful careers, research, with a growing number of internation- programmes will recognize the sensitivities inher- ally renowned university campuses from Europe ent in catching up on an education they should and the United States. It is inspiring young Qataris have received as children. to achieve higher education attainment at the

Building knowledge and skills 137 secondary level and producing graduates of the Figure 4.11 Average annual expenditure on highest international standards in support of QNV higher education per student is 2030’s aim of transitioning towards a knowledge- above the Organisation for Economic based economy. Education City universities offer Co‑operation and Development a wide variety of specialties and are attracting a average diverse group of students from all over the world. US$ Some areas still require attention, however. There 20,000 is evidence that higher education does not opti- 17,984 mize Qatari talent and capabilities:

• Low enrolment rates and high dropout rates in 15,000 15,447

the higher education system as a result of more OECD average 12,336 attractive offers in the labour market or lack of 12,845 sufficient qualification. 10,000 10,844 • Misalignment between the subject matter taught and abilities developed in K–12 and admission 7,248 requirements for higher education—requiring many students to take one or two years of foun- 5,000 dation courses before starting college to catch up in knowledge and critical thinking abilities. • A mismatch between the qualifications students 0 Oman Republic Finland United Qatar obtain in the higher education system and the 2002 of Korea 2006 Kingdom Universitya needs of the Qatari labour market. 2006 2006 2008 • Low-quality research output. a. Excludes capital expenditures. Source: OECD, Education at a Glance (2009); World Bank, The Road Not Traveled (2008). Prepare Qataris for employment in the knowledge economy Alignment between higher education and needs of a knowledge economy As the population grows, so does the potential for Qataris to take a more prominent role in the econ- To support this initiative, the government will: omy. Higher education is the means for delivering • Conduct studies on workforce needs and on this potential, by graduating Qataris capable assess the gap between education output and of contributing to the sustainable development of requirements. the knowledge economy. • Launch a campaign aimed at increasing enrolment in courses suitable for a knowledge Investments in higher education have been consid- economy. erable (figure 4.11). But higher education still falls • Incentivize Qatari enrolment in knowledge short of its goals. Qatar has world-class institutions, economy courses. but Qataris struggle to gain admission, as evidenced by their declining admission rates. Many Targets students admitted cannot complete a degree, as • Increase the proportion of students graduating evidenced by high dropout rates, particularly for with qualifications needed in the knowledge men. Even university graduates are not well pre- economy by 65%–75%. pared to participate in the knowledge economy— • Provide students with diverse post-secondary because they lack access to a comprehensive set of education pathways to meet labour market courses or choose not to enrol in them. needs.

138 Qatar National Development Strategy 2011–2016 a h c pter 4 Feedback mechanism between higher education considerations should not determine admission institutions and K–12 institutions and students decisions, and universities must ensure that admitted students are equipped to follow the curricu- To support this initiative, the government will: lum and graduate. • Develop feedback reports on skill gaps. • Identify higher education entities with infor- Access to Qatar University was fairly open to mation on student performance gaps. Qataris until 2003, but more stringent entry • Develop monitoring mechanisms to track requirements have since made admission diffi- changes in the performance of higher educa- cult. Enrolment ratios have generally been low tion students. (figure 4.12). This is due not to a lack of capacity but to the shortcomings of the K–12 system Targets in preparing students. The same is true for the • Establish feedback channels between K–12 and international universities in Education City, tertiary education. whose admission requirements are even more • Reduce the proportion of Qatari students stringent. enrolled in Qatar University’s Foundation Pro- gram to 50%. Because higher education is a main driver of a knowledge economy, Qatar needs to increase Offer alternative pathways to tertiary the number of nationals attending university. education Approaches to increase participation range from reforms in K–12 education to greater access to An equitable higher education system ensures all alternative higher education options. qualified students access to universities. Financial

Figure 4.12 Gross enrolment ratios for tertiary education are low for Qataris, especially for men, compared with benchmark countries, 2006–2008

Men Women Gross enrolment ratio (%) Gross enrolment ratio (%) 100 100 96 94

75 75

70 72 66 64 63 61 56 50 53 50 54 50 52

25 28 25

0 0 Qataris France Ireland Canada Belgium Norway New Qataris France Ireland Canada Belgium Norway New Zealand Zealand

Source: UNESCO, EFA Global Monitoring Report (2009).

Building knowledge and skills 139 Extend education opportunities to students who managed offerings. The most important step is to cannot directly enter universities consolidate current efforts to develop the sector and to establish a central body responsible for the To support this initiative, the government will: institutional support necessary to raise the qual- • Establish a student-support office for students ity and reach of this segment of the education unable to gain admission to universities or system. complete higher education requirements. • Undertake a feasibility study on alternative Many countries have fully integrated TEVT into educational opportunities, such as adult edu- the education system, where it serves as a bridge cation, part-time education, distance learning to the labour market. Among other tasks, the cen- and study abroad. tral body could coordinate with the business sec- • Provide required education opportunities tor, develop and maintain frameworks (such as a based on the feasibility study. National Qualification Framework) and introduce quality standards. Target • Substantially increase the gross tertiary enrol- Establish a TEVT supervisory body ment ratio to at least 30% for men and 56% for women. To support this initiative, the government will: • Define key functions, such as planning, qual- Strengthening technical education and ity assurance, oversight of a National Quali- vocational training fication Framework and occupational standards, benchmark against similar functions Compared with other components of the edu- performed in comparable international insti- cation system, Qatar has not invested as much tutions and determine a model appropriate for time and resources in technical education and Qatar. vocational training (TEVT). Qatar needs to • Assess institutional capacity to support identi- address the basic infrastructure and inputs for fied key functions. these educational offerings: • Review laws and policies that establish supervi- • A coordination mechanism to maintain the sory authority that extends government licens- quality of institutions and programmes, ensure ing of private sector TEVT. that course offerings meet labour market needs and student demand, and establish clear links Target between TEVT courses and labour market • Develop and implement an organizational requirements. model for TEVT. • Additional capacity to fill clear institutional gaps (as in girls’ secondary technical and voca- Adopt a new model for accreditation and tional schools). licensing • Increased accountability, by raising social perceptions of the value of vocational training and To support this initiative, the government will: professional development courses. • Benchmark international best practices. • Develop licensing criteria for current and new Develop an organizational model for institutions. technical education and vocational training and build needed capabilities Target • Define and implement a quality assurance sys- Qatar’s TEVT sector needs strong institutions tem for TEVT institutions and programmes. to ensure high-quality, appropriate and well

140 Qatar National Development Strategy 2011–2016 a h c pter 4 Develop a regulatory framework • Appoint an oversight body and determine to align technical education and organizations and process model. vocational training with the education sector and labour market needs Target • Develop and implement a system of occupa- The Supreme Education Council has strict quality tional standards for relevant professions. assurance guidelines for education and training providers. For example, TEVT institutions, such as Align technical education and the Community College of Qatar, the CAN-Q and vocational training programmes and Qatar Petroleum Training Institute, must provide outputs with the needs of society and graduates with internationally accepted degrees. the labour market

As the education and training system has grown, Qatar has a strong base of education and train- parallel but conflicting qualification models and ing institutions and programmes that cater to the titles have emerged. The confusion makes it hard needs of the economy and the labour market. But to transition flexibly between education and work. to ensure that TEVT programmes adequately meet Pathways must be built to the education system, these needs, market gaps must be closed, and dif- through a National Qualification Framework, ferent qualification models and titles reconciled. and to the labour market, through clearly defined occupational standards that can be addressed by Gaps are most noticeable at the secondary level, the education system. where technical and vocational programmes are missing, especially for girls. But capacity and National Qualification Framework access problems also characterize post-secondary programmes and institutions. Developing a pro- To support this initiative, the government will: ductive workforce and society requires matching • Appoint an oversight body and determine the programmes to student interests and capabili- organizations and process model needed to ties and preparing graduates for professional and conduct assigned functions. social life. It will be important to provide more • Determine the scope of the National Qualifica- technical and vocational pathways to employment, tion Framework. especially for those students who are not academi- • Decide on the reference model and structure cally oriented or unable to meet the admission cri- for the National Qualification Framework. teria of universities (figure 4.13).

Target Plan to develop differentiated TEVT programmes • Define and implement standards for a National aligned to labour market needs Qualification Framework with all stakeholders. To support this initiative, the government will: Occupational standards and oversight body • Determine and prioritize needs for the different types of TEVT. To support this initiative, the government will: • Develop an implementation plan. • Build on the existing Supreme Education Council vocational education training initia- Target tive in deciding on international standards to • Develop and implement a plan aligning TEVT be adopted by Qatar. programmes with the needs of the labour • Customize occupational standards. market.

Building knowledge and skills 141 Figure 4.13 Qatari students need more technical education and vocational training pathways to employment

Academic pathway Secondary Foundation University

Technical pathway College of the North Atlantic–Qatar, Technical teacher training facility Technical of Qatar University education and Vocational vocational training a

Preparatory institutes Community college Employment

Skill stream Advanced technical education and vocational training institutes

Old pathways Proposed enhanced pathways

a. Technical education and vocational training institutes have limited enrolments and are restricted to men.

Plan for industrial partnerships to further develop than be considered second-rate education options, TEVT they should be seen as a centrepiece of professional careers. This change would increase enrolment To support this initiative, the government will: and better prepare Qataris for the labour market. • Conduct a benchmarking study on best practices related to TEVT partnerships. To promote a positive perception of learning and • Determine key areas and projects for TEVT achievement in the student body, a first step is partnerships with industry. to disseminate regular information about TEVT • Integrate partnership into the regulatory opportunities and the relevance of TEVT pro- framework. grammes. This effort will inform both students and employers of TEVT opportunities and how Targets TEVT programmes prepare students for jobs and • Develop a industry partnership model accepted careers. by all stakeholders. • Establish a first industry partnership according Plan to increase awareness of TEVT programmes to model. To support this initiative, the government will: Increase the prominence of technical • Conduct an international and regional best education and vocational training practices benchmarking study and determine programmes an awareness programme suitable for Qatar. • Implement an awareness programme. TEVT institutions and programmes frequently prepare students directly for professional activi- Target ties. Because of this responsibility, the reputation • Improve information and perceptions about of these programmes needs to be elevated. Rather TEVT programmes.

142 Qatar National Development Strategy 2011–2016 a h c pter 4 Effective incorporation of TEVT into career guidance graduate more students in knowledge economy fields (figure 4.14), to produce substantive research To support this initiative, the government will: results. While graduates from Education City uni- • Develop a TEVT career counselling system, versities are much more concentrated in knowl- including the necessary legislative and regula- edge economy subjects than those from Qatar Uni- tory systems. versity, they comprise a small proportion of the total graduate population. Targets • Incorporate TEVT options into career counsel- Achieve a higher level of scientific ling. innovation • Reduce TEVT dropout rates. In recent years, Qatar, through the Qatar Founda- Enhancing scientific research tion, has invested heavily in developing capabilities for scientific innovation and research. Some Qatar has recently invested considerable resourc- examples: es in research and development. An outstanding • The establishment of a broad range of research infrastructure is in place for scientific research, centres within Qatar University and Education with programmes to draw potential researchers City, including research opportunities in scien- and build partnerships with universities and busi- tific and technical areas; policy, social and businesses. Now Qatar must use these resources effec- ness areas; innovative design and culture and tively to attract more high-quality researchers, and heritage.

Figure 4.14 Qatar needs to increase the proportion of science and math graduates

% of graduates 100 6 8 4 9 4 6 4 5 5 25 7 12 19 9 12 75 26 14 9 21 8 35 24 31 50 27 29

25 29 26 27 20

0 Finland Republic of Korea Norway United Kingdom Qatar University 2008 Life sciences and physical sciences Math and computer science Health and welfare Engineering, manufacturing and construction Social sciences, business, law and services Non–knowledge economy

Note: Following Organisation for Economic Co-operation and Development (OECD) definitions, the humanities are considered non–knowledge economy subjects. Data cover tertiary type A and advanced research institutions for OECD countries. Qatar University graduates are used as a proxy for Qatar since Qatari enrolment in Qatar University accounts for about 90% of Qatari enrolment in higher education. Source: OECD, Education at a Glance (2009); Qatar University, Book of Trends 2008–09 (2009).

Building knowledge and skills 143 • The acceleration of quality research and devel- Targets opment through the Qatar National Research • Develop a national strategy defining priority Fund, established in 2006, which takes a broad areas for scientific research and development. approach in providing research grants to a • Increase the number of scientific research pub- wide range of beneficiaries. lications and patents. • The establishment of the Qatar Science and Technology Park in 2009, which has already Implementation challenges attracted investments from several international businesses for frontier research and The success of the education and training initiatives development. of the National Development Strategy 2011–2016 • Competitive mechanisms for funding research- will depend on political leadership and resolve at ers and institutions. high levels. Success will also depend on implement- • Education programmes on research at the ing a comprehensive and integrated approach, both university and K–12 level, such as the Under vertically within the education and training sectors graduate Research Experience Programme and and horizontally across sectors (education, training, research programmes and specialized math labour market, family, social protection and so on). and science tracks in secondary schools. The proposed reforms entail more than man- Gaps in research and development support, partic- agement changes. They involve considerations of ularly in prioritizing research funding and estab- national values and identity. Achieving them will lishing mechanisms for commercialization, are require consensus among all stakeholders. hindering scientific innovation. As a result, productivity indicators are low compared with inter- Fostering cross-sectoral links national benchmarks. The strategy for education and training incorpo- Productive and effective scientific and research rates inputs from stakeholders in the education system and training sector and beyond. The process for developing the strategy was highly inclusive, based To support this initiative, the government will: on numerous personal interviews and more than • Define national priority areas for research and 30 meetings of sub-task teams. This high stakehold- partnership opportunities. er participation and buy-in distinguishes devel- • Develop an awareness project on research oppor- opment of the current strategy for education and tunities in Qatar targeted at potential researchers. training from past efforts. But the ultimate meas- • Introduce mechanism to facilitate commercial- ure of success is the degree of implementation. ization and practical application of research outputs. Success also depends on collaboration outside the • Revise the framework of laws and regulations sector (figure 4.15). The most critical areas of cross- relating to intellectual property and scientific sectoral linkage are the labour force and a caring research, based on a review of international and cohesive society. These three sectors are inter- best practice. dependent, with each relying on the others’ outputs.

144 Qatar National Development Strategy 2011–2016 Figure 4.15 Education and training are both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for education and training

Manage the economy to ensure opportunities for Qataris in key Increase environmental economic areas awareness Economic Environmental management sustainability

Develop effective institutions to support Increase support to sound social structure Educated Caring and Institutional education outcomes and including government, civil and capable cohesive development social values of all children society and the private population society sector

Population, labour force Healthcare Provide incentives for Qataris and Qatari Support well-being of to pursue education employment children successfully

Goal Enabler

Education and training as an enabler for other sectors

Prepare Qataris for employment in the Support a school knowledge economy Economic Environmental environmental programme management sustainability

Educate and train Qataris Educated Caring and Provide continued access to to be leaders of Institutional and capable education, particularly for development cohesive government and business population society people with disabilities

Population, labour force Healthcare Educate and train Qataris to and Qatari Educate children about have the necessary skills to employment healthy lifestyles be productive members of the labour force

145 Fostering a capable and motivated workforce

“Qatar must choose a development path that is compati- diversifying and technologically sophisticated ble with the targeted size and quality of expatriate labour economy.” that are determined by Qatar’s leadership and people.” —Qatar National Vision 2030 Qatar’s economic structure has not changed markedly in recent years at the aggregate sectoral level, Transforming Qatar into a diversified knowledge but there has been a notable increase in the share economy with increased private sector participa- of construction, and transport and telecommuni- tion depends on upgrading and deepening the cations. And while the composition of output has education, knowledge and skills of Qataris. Align- also remained fairly stable, activity has increased ing these economic objectives requires a transi- rapidly, with an average real annual growth rate of tion from the current low-skilled, low-productivity around 17% over 2004–2009 (see chapter 3). and low-wage economy to a high-skilled, high- productivity and high-wage economy. As in many resource-rich economies, the private sector in Qatar has thus far played a limited role. A high-skilled and capable workforce is crucial for Estimates of the private sector share of aggregate achieving a modern, diversified economy and for output put it at around 35%. However, the private modernizing public sector institutions. There are sector has a much bigger profile in employment, strong positive returns associated with an addi- with large numbers of workers, predominantly tional year of post-secondary education, but many expatriate, in construction and retail trade. These Qataris do not pursue a diploma or higher educa- two sectors have expanded markedly as a result of tion. While this could be due to a lack of aware- both mega-infrastructure projects and rising con- ness of the value of education, increasing the real- sumption demand from a rapidly growing expa- ized returns will likely encourage Qataris to stay triate population, more than halving the share of in school longer and raise their level of perfor- Qataris in the labour force from 14% in 2001 to mance. Creating a more productive, skilled and 6% in 2009. motivated labour force requires major labour market reforms, especially for incentivizing Moving forward, there are two broad options Qataris to participate in the private sector and to for the economy, each with consequences for take advantage of higher education and training labour force competition. If the economy contin- opportunities. ues to rely heavily on hydrocarbons to fuel mega- development projects, with productivity levels The labour market is highly segmented, with unchanged, some 1.6 million workers will be need- heavy concentrations of Qataris in the public sec- ed by 2016. If reliance on hydrocarbons decreases, tor and expatriates in the private sector, espe- Qatar will need just 1.2 million workers in 2016— cially in construction and services. While skill much the same as in 2009 (figure 4.16). development and more effective labour force participation by Qataris are essential, so is establish- QNV 2030 anticipates increased and diversified ing the regulatory and legal frameworks needed Qatari participation in the labour force through to attract and retain a skilled expatriate work- investment in education and training, incentives force to support the nation’s development vision. for professional and managerial occupations in all QNV 2030 acknowledges the importance of expa- sectors and measures to encourage more Qatari triate workers: “For the foreseeable future, Qatar women to enter paid employment. It supports will not have a sufficient number of citizens to measures to improve high school education out- manage the complex systems, infrastructure comes and expand participation in post-secondary and other requirements of a rapidly growing, education and lifelong learning.

146 Qatar National Development Strategy 2011–2016 a h c pter 4

Figure 4.16 Qataris as a share of the labour force, actual and projected under two scenarios, 2001–2016

Total labour force (thousands) Qatari Expatriate 1,600 1,558.6 6% 94%

1,265.4 1,242.3 1,171.5 6% 1,200 7% 6% 94% 93% 94%

831.9 800 8% 92%

535.8 11% 444.1 12% 89% 400 322.9 88% 14% 86%

0 2001 2004 2006 2007 2008 2009 2016 2016 (moving beyond (Carbon Qatar) hydrocarbons)

Challenges for the labour market First, open sponsorship rules provide an incentive to recruit low-cost expatriate workers and a dis- Qatar is seeking a development path compat- incentive to Qatari employment and automation. ible with a targeted size and quality of expatri- High levels of immigration tend to create a low- ate labour. In moving in that direction, Qatar wage, labour-intensive, low-productivity economy. will continue to weigh the economic benefits of The cost of importing low-skilled expatriate work- greater numbers of expatriate workers against the ers is heavily subsidized. costs of meeting their health, education, housing and public service needs, including those of their Second, the sponsorship programme constrains dependents residing with them, and the impact on the mobility of expatriates and thus their ability to national identity and culture. respond to labour market signals. A rigid labour market hampers the development of a workforce Success will depend largely on whether incentives commensurate with aspirations for a knowledge and regulatory policies can transform the private economy. sector into a high-productivity, high-wage economy and whether Qataris compete for work in the Despite rapid economic development and efforts private sector. Both progressively rebalancing to improve male education, labour force partici- immigration policies and encouraging higher pation rates of Qatari men are low and declining value-added and capital-intensive employment are —with men leaving the labour force at a young needed. age. There are significant challenges to increasing effective male participation in the labour force. Current employment sponsorship rules are affect- More men need to continue on to tertiary educa- ing Qatar’s labour market: tion, and education attainment levels need to rise.

Fostering a capable and motivated workforce 147 Currently, Qataris have little incentive to excel in wages with productivity. The primary driver for education and training. these changes is improved education outcomes.

By contrast, labour force participation of Qatari Entrepreneurial development of Qataris, espe- women has grown sharply in recent years, con- cially of youth and women, will be encouraged sistent with their rising education levels and the to increase their involvement in the private sec- ready availability of low-cost domestic help. There tor. Barriers to entrepreneurship will be studied is considerable scope for participation to rise fur- and initiatives launched—including strength- ther, as it still lags well behind that of many high- ening incentives, increasing business training income countries. and building capacity—at home and abroad in areas relevant to labour market needs. Increas- In recent years, Qatari unemployment rates have ing the participation of Qataris in the private sec- been exceptionally low. The unemployed are pri- tor and reducing their dependence on public sec- marily first-time job-seekers, people with a strong tor employment will entail narrowing the gaps in preference to work in a particular sector and dis- social allowances and conditions of work. proportionately women. There are, however, concerns with underemployment and falling labour A critical question is how much the wage gaps productivity. between Qataris and expatriates and between public sector and private sector workers need to narrow to Qatar’s public sector leads in employment of Qatar- encourage substitution. Public sector (public adminis and is the sector of choice for new labour market istration, government companies and the mixed sec- entrants. The efforts of the public sector to increase tors) wage, salary and social allowance packages, the participation of Qataris are reinforced by affir- including pension schemes, will be reviewed, with a mative employment policies in all other sectors. view to identifying policies to encourage Qataris to remain in the labour market and increase their par- For example, the energy industry, under the leader- ticipation in the private sector. ship of Qatar Petroleum, has been at the forefront of promoting Qatari participation in the mixed and Training programmes will be demand oriented private sectors. The industry recruits young high and revised to meet priority needs with attention school graduates, sponsors them through scholar- to content, quality and accreditation. Expanding ship programmes in vocational and university train- the role of employment services, such as labour ing and provides rapid career development paths, exchanges, will reduce mismatches between labour including in-house training. These recruits enter supply and demand. Similarly, to cope with the a wide range of positions within the industry—in dynamic needs of changing labour markets, the operations, maintenance, engineering, finance and government will offer incentives to employers and administration, and human resources. employees for lifelong learning through retraining.

Realizing Qatar National Vision 2030 for Policies on immigration, regulations, sponsorship a capable and motivated workforce and licensing will be reviewed and revised to create a more strategic demand for expatriate work- To realize the QNV 2030 goal of a capable and ers in line with the aim of recruiting and retaining motivated workforce, young Qataris need to be the right mix of expatriate labour. Qatar’s labour motivated to take advantage of the many post- laws will be revised, as necessary, to protect fur- secondary education and training opportunities. ther the rights and safety standards of all expatri- Qatar will move from establishing numerical tar- ate workers within a comprehensive social protec- gets for employment of Qataris to emphasizing tion framework and within international norms price- and market-based mechanisms that link and standards. Career planning and professional

148 Qatar National Development Strategy 2011–2016 a h c pter 4 programmes for targeted expatriates are critical implementation of the reforms and associated in a knowledge economy, so that expatriates can measures if they are to be met by 2016. effectively mentor and train young Qataris in all sectors. Expanding high-quality training opportunities for Qataris The 2009 Law on Human Resources Administra- tion will be reviewed and revised to reduce the dis- The proportion of Qataris in the labour force is couraging effect on labour force participation and low, but QNV 2030 envisages that they will help on the recruitment and retention of the expatriate sustain the economy through increased labour labour force. force participation, especially in senior positions. Stronger skills (technical and noncognitive), espe- Coordination mechanisms between and within cially when aligned with labour market needs, will education and labour authorities will be improved enable greater and more effective labour force to enhance administrative processes and statistical participation by Qataris. systems. For example, the reasons for relatively low outcomes in the education and training system A modern public sector requires a high-skilled, will be examined. Improved links with the labour capable workforce. Yet unskilled and semiskilled market are also required. An example is school workers as a proportion of Qatari employees is modernization and development, including ICT highest in the public sector (table 4.1). This skill enhancement, curriculum reform, career guid- mismatch, along with other features of public sec- ance and job counselling. tor employment (particularly the social benefits), has reduced incentives for Qataris to improve To help realize national labour market goals, the their skills and education. government proposes major reforms over 2011– 2016 to promote human capital development for Private sector employers are discouraged by the sustainable economic growth and to enable the skill level, work attitudes and motivation of new transition to a knowledge economy. The govern- Qatari entrants into the labour market. The per- ment also aims to increase labour market efficien- formance of current private sector employees is cy in matching labour supply and demand in the likely to influence hiring choices and to determine public and private sectors. employability in the private sector.

The reform measures will contribute towards eight The lack of adequate skills in the labour force is labour market sector outcomes. a challenge that must be addressed through skills • Expanding high-quality training opportunities upgrading for Qataris designed and implemented for Qataris. primarily through public and private institutions. • Incentivizing Qatari private sector employment. Because not all Qataris will pursue an academ- • Boosting labour force productivity. ic education, they need opportunities to develop • Attracting and retaining high-quality expatri- technical skills through vocational training. The ate talent. share of enrolment in technical education and • Nurturing and managing human resources. vocational training at the secondary level is below • Improving labour market flexibility. that of international benchmarks (table 4.2). • Strengthening evidence-based policy-making. • Enhancing employment and career counselling Skill upgrading programme for Qataris services. To achieve this outcome, the government will: Ambitious targets set for each of these out- • Upgrade skills in the public sector to improve comes require early, effective and sustained institutions and administration for the country.

Fostering a capable and motivated workforce 149 Table 4.1 Among employed Qataris, the highest share of unskilled are in the government sector and the highest share of highly skilled in the private sector, 2009 (%)

Sector Government Skill level Government corporation Mixed Private Total Qatari employment (%) Highly skilled 52 42 64 75 53 Skilled 31 50 33 25 34 Semiskilled 2 7 2 0 3 Unskilled 15 1 0 0 11 Total 100 100 100 100 100 Expatriate employment (%) Highly skilled 39 58 45 13 17 Skilled 12 18 32 16 16 Semiskilled 14 14 15 49 46 Unskilled 35 10 8 22 21 Total 100 100 100 100 100 Qataris’ share of total employment (%) Highly skilled 62.3 14.7 20.7 1.7 15.8 Skilled 76.5 39.4 16.1 0.5 11.1 Semiskilled 14.5 11.0 2.8 0.0 0.4 Unskilled 34.3 2.3 0.0 0.0 2.9 Total 55.1 19.2 15.6 0.3 5.6

Table 4.2 Enrolment in technical education and vocational training at the secondary level as a share of total in Qatar is very low compared with most benchmark countries, 2008 (%)

Country or group Tertiary education Secondary education Preparatory education Gulf Cooperation Council average 14 7 1 Bahrain 8 33 0 Kuwait 0 4 1 Oman 12 0 0 Qatar 19 2 0 Saudi Arabia 15 1 6 United Arab Emirates 28 1 0 OECD average 14 45 3

Source: UNESCO Institute for Statistics, Education data set (2010).

Qatari public sector employees must be encour- assessments will take into account participation aged to upgrade their skills. The government and performance. will enhance long-term training opportuni- • Improve skills in the private sector to promote ties for public sector employees by increasing a more diversified economic role for Qataris. training options and scholarships and by com- The involvement of private sector actors in the municating these opportunities more broadly. design, implementation and provision of train- To increase the demand for in-service training ing is a key tool for matching the supply of and and skills upgrading, staff annual performance demand for skills in the private sector and for

150 Qatar National Development Strategy 2011–2016 a h c pter 4 understanding the private sector’s needs. The Since 2001 labour force participation has risen discouraging effect of the cost of training on the rapidly among Qatari women, but levels are still willingness of private companies to hire Qataris well below those in more developed countries (fig- must be considered. Mechanisms, such as on-the- ure 4.17). Women are even more reluctant than job training opportunities, will be put in place to men to enter private sector employment, mainly facilitate skills transfers between high-skilled for- because of cultural and working environment fac- eign employees and promising Qataris. tors. Public sector employment is better paid and • Expand access to vocational training to improve rewarded than private sector work. the skills of the new entrants at different education levels and for more disadvantaged groups. Comprehensive programme for private sector A vocational training programme should be participation of Qataris available for Qatari youth, particularly the unemployed, women, people with disabilities To achieve this outcome, the government will: and other disadvantaged groups, to promote • Establish an entrepreneurship initiative tar- their fuller labour market participation. Train- geting youth and Qatari women. The initia- ing will be diversified in close collaboration tive, building on the experience of the Rhouda with other skills-upgrading programmes and Centre and Enterprise Qatar, will study barri- with public and private sector employees. The ers to entrepreneurship, introduce a business programme will be based on an assessment of plan competition and encourage internships the available domestic supply of expertise, as in domestic, regional and international enter- well as of the skills needed in the market. prises. A comprehensive programme is need- • Strengthen leadership skills in the private and ed to attract Qatari youth to entrepreneurship. public sectors so that Qataris are a driving Internships and business plan competitions force in the country. Qataris who show inter- can provide guidance and augment interest in est and aptitude in holding senior positions will entrepreneurship. receive the tools to develop strong and effective • Lower attitudinal barriers to women’s employ- leadership through a more coordinated skills ment in general and in private companies in par- training programme. ticular. The government will conduct a study to explore the barriers to Qatari women’s employ- Target ment and to provide incentives to employers in • Increase the labour force participation rate of industries preferred by Qatari women. Qatari men and women ages 20–59 with a sec- • Reduce differentials in compensation between ondary education or below. the public and private sectors. Various options could be considered, such as increasing employ- Incentivizing Qatari private sector ment and benefit packages for Qatari employ- employment ees in the private sector. The same social benefits, including land and housing entitlements, Qatar’s private sector constitutes a small share of could be provided to Qataris in the public and the economy but has a big profile in employment private sectors. Costs would be low because —employing almost 80% of the workforce in few Qataris work in the private sector, and one 2009. Only 5% of Qataris work in the private sec- major barrier to private sector employment tor, well short of the 15% target for 2016. Of the would be removed. Another option would be 87% of Qataris employed in the public sector, 71% for the government to incentivize private com- work in government administration and 16% in panies to hire Qataris by subsidizing training government-owned companies. costs, though the amount of such subsidies would need to be carefully determined and the Qatari entrepreneurship is also limited. Only effects monitored. A study will be conducted 2% of Qataris manage and invest in their own to determine which options best meet Qatar’s businesses. needs.

Fostering a capable and motivated workforce 151 Figure 4.17 Labour force participation rates of Qatari women have risen rapidly but remain below those in selected developed countries

Labour force participation (%) 100

Selected developed countries, 2008

Qataris, 2009 Qataris, 2001 0 15–19 20–24 25–29 30–34 35–39 40–44 45–49 50–54 55–59 60–64 Age group Source: ILO, Economically Active Population Estimates and Projections, 5th edition (2009).

Target an almost inexhaustible supply of unskilled and sem- • Increase the proportion of Qataris in the pri- iskilled labour available at international wage rates. vate sector from 5% to 15%. This has undermined incentives for investment in capital equipment and the use of more highly Boosting labour force productivity skilled labour, which would reduce overall demand. Without reducing the supply of low-cost workers or Qatar aims to move towards a high-productivity increasing the attractiveness of capital investments labour force that is adequately rewarded to encour- and high-skilled labour, the economy will struggle age high rates of participation by Qataris. Produc- to reach its economic diversification aspirations. tivity will be a critical driver of Qatar’s transition from a hydrocarbon-based economy to a knowl- Labour productivity strategy edge economy. More use of high-skilled labour and more capital investment by firms will support the To achieve this outcome, the government will: transition to more technologically advanced meth- • Improve the attractiveness of high-skilled ods of production and higher labour productivity. labour to employers, by making employers pay the costs of unskilled labour, including adopt- Labour force productivity (growth of output per ing compulsory health insurance and setting worker) in Qatar compares well with benchmark minimum wages. Other labour-importing countries in knowledge-intensive sectors, but is countries are using policy instruments to con- below them in labour-intensive sectors (figure 4.18). trol the entry of expatriate workers. Further, overall labour productivity has been declin- • Improve access to capital, by reducing capital ing in recent years. Employers have taken full advan- costs through subsidies or targeted lending tage of an open-door immigration policy that makes programmes.

152 Qatar National Development Strategy 2011–2016 a h c pter 4

Figure 4.18 Productivity in selected sectors in Qatar compares well with that in benchmark countries, but not in construction and services, 2009

Value added (purchasing power parity US$ per employee, thousands) Qatar Norway Singapore 300

260

223 200 201

129

100 110 111 95 83 85 81 71 60 47 40

15 0 Finance and Transport and Manufacturing Trade and Construction real estate telecommunications hospitality

Source: IMF database (2010); Statbank Norway (2010); Statistics Singapore (2010).

• Prepare a communications and change man- retaining the proper mix of skills, with appropri- agement plan to ensure buy-in from all stake- ate incentives and institutional arrangements for holders. The communications plan will allow ensuring the rights and safety of expatriate labour. employers and expatriate workers to prepare for the changes, smoothing the economic tran- Qatar has attracted low-skilled labour for its infra- sition and supporting faster improvement in structure boom, but requirements differ for attract- labour productivity. It is especially important ing and retaining high-skilled labour. Employers that the plan address employer concerns about identify recruiting and retaining skilled labour as the introduction of levies or a points system. a constraint to doing business, in part because of regulations and some restrictive employment prac- Target tices. Many issues arise from limitations imposed • Improve Qatar’s global ranking in labour pro- by employment contracts governed by the 2009 ductivity from 35th to 29th. Law on Human Resources Administration. Turno- ver is substantial among high-skilled labour, espe- Attracting and retaining high-quality cially in the health and education sectors. expatriate talent The rising proportion of expatriate workers in the The transition to a more diversified economy past decade has created considerable risks, includ- requires more high-skilled labour and less low- ing to the economy, should a major crisis force skilled labour (figure 4.19). Due to the size of expatriates to leave. Qatar’s economy relative to its population, a significant share of high-skilled workers will have to In order to satisfy the demand for skilled expatriate be expatriates. QNV 2030 advocates attracting and workers, Qatar needs to create incentives, through

Fostering a capable and motivated workforce 153 Figure 4.19 Qatar needs to shift its employment distribution towards a higher share of skilled labour, 2008 (%)

Qatari Qatar United Arab Emirates

France Germany Japan Norway Singapore Sweden

Developed countries United Kingdom United States Average

0 25 50 75 100 Distribution of labour by skill Unskilled Semiskilled Skilled High-skilled

Source: ILO, LABORSTA, Labour Statistics Database (2008). improved working and living environments, espe- with labour rights issues, such as occupational cially the provision of appropriate schooling, to safety working conditions and access to the legal attract and retain the right mix of skills. system. Improving labour rights will not only benefit employees but will also enhance Qatar’s glob- Comprehensive programme for recruitment and al image as a leading and progressive nation. retention of expatriates Targets To achieve this outcome, the government will: • Increase the proportion of high-skilled foreign • Implement a recruitment and retention pro- labour from 17% to 23%. gramme, including a review and revision as • Increase the number of International Labour may be necessary, of Qatar’s sponsorship sys- Office conventions signed from 6 to 20. tem. The programme will incorporate perspectives from employers and employees, includ- Nurturing and managing human ing an evaluation of the 2009 Law on Human resources Resources Administration. An intersectoral coordinating body will connect expatriates and Making headway on the transition towards a knowl- public and private institutions and respond to edge economy requires changes in employment concerns. Qatar will consider a programme of patterns. The large projected decrease in construc- permanent residency for expatriates who meet tion jobs (from 44% of employment in 2009 to 27% predetermined criteria. It will also establish a in 2016), along with other anticipated changes, tribunal resolving labour disputes. will need to be addressed by national institutional and regulatory bodies. The 2009 Law on Human Legal and regulatory support for labour rights, Resources Administration calls for programmes including passing new laws and signing interna- to support labour force planning. Education and tional conventions, will be important for dealing training programmes must meet the needs of the

154 Qatar National Development Strategy 2011–2016 a h c pter 4 workplace. There are strong positive returns associ- Improving labour market flexibility ated with an additional year of postsecondary education, for example, but Qataris often do not pur- The rapid growth of Qatar’s economy has created sue diploma or degree courses. While this could be many challenges for labour market policy and the due to an underestimation of the returns to educa- institutions that formulate the policies. tion, increasing the realized returns should encourage more Qataris to pursue a higher education. An efficient labour market can reduce transaction costs for employers and encourage talented work- Human Resources Master Plan for identified sectors ers to come to Qatar—and remain there. Public sector employment is regulated by the 2009 Law To achieve this outcome, the government will: on Human Resources Administration, which pro- • Coordinate an annual training and development vides a range of benefits for Qataris, including plan for the public sector, through the General preferences in government hiring and various Secretariat of the Council of Ministers, that calls allowances, bonuses, leave and severance benefits. on government entities to structure staffing in accord with actual needs. This requires a for- Qatari men start to retire from the labour force at ward looking perspective on the employment around age 40, much earlier than in most other needs of both Qataris and expatriates. countries (figure 4.20). Among the contributing • Prepare a Human Resources Master Plan to factors are the generous public sector pension coordinate the needs of the economy, govern- system—accessible at reduced levels as early as age ment strategy and the labour market, which has 40—and the availability of highly rewarding alter- become more diversified, and to inform stake- native sources of income (from business and prop- holders of the direction in which the labour erty rents, for example). force is moving. The master plan will identify bottlenecks and define required labour force Improved labour market legislation skills and capabilities by sector, the type of higher education and training needed and the appro- To achieve this outcome, the government will: priate mix of expatriate workers for each sec- • Revise the 2009 Law on Human Resources tor. In defining the required number and type Administration to reduce the discouraging of employees the government will combine the effects on Qatari labour force participation and perspectives of the Ministry of Labour, industry on the recruitment and retention of expatriates. leaders (such as Qatar Petroleum) and govern- • Review the pension law with the aim of improv- ment sectoral leaders (such as the Supreme Edu- ing its efficiency and eliminating unintended cation Council) and publish an action plan for negative impacts on the labour force. Qatar’s future labour force requirements. Asso- ciated education and training requirements will Target also be defined. The Master Plan will: • Increase Qatari labour force participation rates • Delineate labour force needs by sector in from 63% to 66% for men and from 36% to the short and medium term. 42% for women. • Specify the education and training requirements to meet Qatari labour force needs. Building the capacity of key labour • Describe the expatriate labour required by market stakeholders the economy. • Include a management strategy for main- Governance of the labour market needs to be taining the relevance of the Master Plan. strengthened, and the Ministry of Labour would benefit from increased capacities, including Target some internal restructuring. Improved coordina- • Implement a comprehensive Human Resources tion mechanisms are needed between and within Master Plan. authorities dealing with labour-related sectors.

Fostering a capable and motivated workforce 155 Figure 4.20 Qatari men start to retire from the labour force earlier than men in most other countries

% 100

Selected developed countries, 2008

75 Qataris, 2001

Qataris, 2009 50

0 15–19 20–24 25–29 30–34 35–39 40–44 45–49 50–54 55–59 60–64 Age group

Source: ILO, Economically Active Population Estimates and Projections, 5th edition (2009).

Labour market efficiency needs to rise, through Target improved capacity, coordination, legislation and • Strengthen the capacity of key market stake- regulations. Key aspects are motivating men to holders and improve coordination between stay in the labour force longer by revising the them. 2009 Law on Human Resources Administration, to ensure that it achieves regulatory efficiencies; Strengthening evidence-based improving education outcomes; reforming the policy-making pension law; improving the working environment and increasing the capacity for strategic labour Labour market data, information and research market planning. are essential for evidence-based decision-making. However, Qatar lacks the comprehensive labour Increased capacity of key labour market market data and research needed for effective stakeholders labour policy-making. No single data source consolidates information on the labour market, so To achieve this outcome, the government will: stakeholders have difficulty accessing relevant • Increase the capacity of the main govern- data. For example, the primary source of data on ment stakeholders, improving their structure the Qatari labour force is held by the Ministry of and promoting more efficient organization Labour, that for the expatriate labour force by through the interministerial body to coordi- the Ministry of Labour and that on public sector nate labour market policies. Ensuring stronger employees by the Cabinet Office. These databases coordination requires considering the partner- need to be linked to better inform labour market ship between government agencies and the pri- policy. Sharing labour market databases and infor- vate sector. mation will require improved coordination among

156 Qatar National Development Strategy 2011–2016 a h c pter 4 the many stakeholders in Qatar’s labour market proposed Human Resources Master Plan. It will policies (figure 4.21). identify the variables needed by different parties, establish a methodology for sharing infor- A national labour market information system mation, provide guidelines to ensure the pri- could build on parallel efforts already taking place vacy of individual data records, and facilitate in Qatar. The most extensive source of labour mar- operational policy research on factors affecting ket data is the Qatar Statistics Authority’s annu- the labour market. al Labour Force Survey. The survey is a rich data source but does not capture certain features of the Target labour market, such as the participation of Qataris • Develop and implement a comprehensive in income-generating activities. labour market data system for use by relevant stakeholders. Labour market information system Enhancing employment and career To achieve this outcome, the government will: counselling services • Develop a labour market information system on a user-friendly electronic platform to aid Modern employment services are critical for a flex- labour policy-makers. The system will comple- ible and efficient labour market. The only labour ment other related projects, especially on the intermediation service in Qatar, provided by the

Figure 4.21 Key stakeholders in Qatar’s labour market governance and links

General Secretariat of the Ministry of Labour Council of Ministers

Issues and implements laws and policies Issues and implements laws and policies Monitors and inspects worksites to enforce 2009 Law of Human Resources legislation Administration Decides on work visas in the Permanent Monitors government ministries and Committee for Employment Studies departments to ensure implementation of Monitors companies to ensure employment the Law of Human Resources for Qataris Administration by getting relevant reports Collects and keeps data on the labour force Collects and keeps data on the workforce within the government

Labour market governance Others and links Ministry of Interior

Institute of Administrative Development Decides on work visas in the Permanent Public sector capacity building Committee for Employment Studies General Secretariat of Development Planning Collects and keeps data on the workforce Macro planning and coordination Decides on, regulates and monitors the Supreme Council of Health nationality quotas Enforces occupational safety Issues exit visas General Retirement and Social Insurance Authority Pension-related policies Supreme Education Council Qatar Petroleum and Qatar Foundation Have their own human resources policies, Supply of graduates standards and monitoring mechanisms Capacity building through technical and Qatar Chamber of Commerce and Industry vocational training

Fostering a capable and motivated workforce 157 Ministry of Labour, enables unemployed Qataris select the model of ownership of these labour to register at the ministry’s manpower department. intermediation companies and the design of the services to be provided. Information on training and employment oppor- • Launch an awareness campaign on the high tunities for job seekers, especially for young returns to tertiary education and the availa- adults, and career counselling and mentorship bility of career counselling services, including are not readily available. Qatari youth are not well through the use of electronic media. informed about the high economic returns to post-secondary education, and few continue their Target education beyond the secondary level (table 4.3). • Establish labour intermediation services. An awareness campaign for Qatari youth and their parents on the benefits of higher education Implementation challenges is needed. Achieving Qatar’s ambitious development goals The low levels of post-secondary education may requires investing in the education and skills of be partly responsible for poor schooling choices. the Qatari people in line with industry needs. It International studies also suggest that a failure to also requires introducing the necessary labour progress to higher levels of schooling may be due market reforms to achieve a world-class talent to the lack of the decision-making skills that more base. And because not all young Qataris have the schooling helps improve. capacity, or ambition, to pursue higher education and seek professional, managerial and leader- Special needs groups, particularly women, the ship positions, Qatar will need to meet substantial unemployed and people with disabilities, are not demand for technical and vocational workers by sufficiently supported by current labour market providing appropriate pathways to technical edu- institutions and employment services. cation and vocational training.

Effective labour intermediation system for Qataris The Ministry of Labour oversees labour issues for both the Qatari and the expatriate labour forc- To achieve this outcome, the government will: es. However, many other public and private stake- • Design and implement a system of labour inter- holders have a big interest in labour market policy. mediation services. The Ministry of Labour has Participation by relevant private sector institutions primary regulatory and policy-making respon- and civil society will be important for successful- sibilities. Operational intermediation servic- ly implementing the sector strategy and achieves could therefore be undertaken by a broad- ing the goals of QNV 2030. Stakeholders will need er range of stakeholders. The government will to be kept informed of progress, for example

Table 4.3 Benchmark marginal rates of return for Qataris are high at the post-secondary level (%)

Education level Male Female Primary (6 years)a 0.7 Intermediate (9 years) 3.1 2.5 Secondary (12 years) 5.2 } Diploma (14 years)b 13.8 14.6 University (16 years)b 10.8 8.7

a. Accumulated years of schooling. b. Compared with income at the secondary level. Note: Data may be interpreted to mean the percentage of extra income earned as a result of one more year of schooling at the given level.

158 Qatar National Development Strategy 2011–2016 Figure 4.22 A capable and motivated workforce is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for labour market sector

Reduce rent-seeking Provide right skills Sustainable opportunities economic Education and competencies prosperity and training

Enforce Capable and Safety and Promote healthy lifestyles occupational motivated Healthcare among the labour force safety standards security workforce

Family cohesion and women’s Environmental Support balance of women’s empowerment sustainability Improve living roles in labour force environment to attract and family higher skilled workers

Goal Enabler

Labour market sector as an enabler for other sectors

Identify needs of labour market and increase capacities of Ensure higher teaching and scientiﬁc research labour productivity Sustainable economic Education professionals prosperity and training

Enhance capacities Reduce reliance Capable and throughout system; Safety and motivated Healthcare on foreign labour security workforce Qatari healthcare professionals

Family cohesion Environmental and women’s sustainability Inculcate values and empowerment Provide skills and work ethics; effective knowledge for managing participation of Qatari the environment women in the labour force

159 through e-newsletters and a dedicated website. In particular, education and labour force partic- Chapter 5 Engagement should include workshops, seminars ipation are highly correlated, with higher educa- and conferences. tion levels associated with higher participation rates. To achieve Qatar’s labour market goals, the To lead implementation of the sector strategy, the education and training system must be relevant to An integrated approach to Ministry of Labour will need to build its techni- the needs of the workplace. Increasing the realized cal capacity by recruiting labour market experts. returns to education and training could encour- sound social development Capacity enhancements can also be achieved age Qataris to stay in school longer and improve through knowledge sharing and networking with their educational performance and attainment. experts at the national, regional and international Information on training and employment oppor- levels. In addition, ministry staff will need train- tunities for job seekers, especially for young adults, ing in project management and implementation and career counselling and mentorship need to be to build capacity. more readily available, both to increase education and training and to better inform Qatari youth Fostering cross-sectoral links about the economic returns to post-secondary education. Successfully implementing the strategy is critical not only to developing human capital and increas- The links between education, training and ing labour market efficiency, but also to achieving employment policies require that policy-making other QNV 2030 goals (figure 4.22). Investing in and decision-making in the sectors also be linked. quality education and training, including lifelong Appropriate institutional arrangements must be learning opportunities and changing mindsets, will in place to provide policy guidance for the labour help Qatar achieve its chosen development path. market and for education and training.

160 Qatar National Development Strategy 2011–2016 Chapter 5 An integrated approach to sound social development 5 An integrated approach to sound social development

Qatar National Vision 2030 (QNV 2030) builds on a society that promotes justice, benevolence and equality. It embodies the principles of Qatar’s Permanent Constitution, which protects public and personal freedoms; promotes moral and religious values; safeguards traditions and cultural identity; and guarantees security, stability and equal opportunity. Social development requires broad participation of all citizens and the government, working together to fulfil the basic rights of individuals and the needs of the state.

Many countries link social policies to social ser- Qatar’s social development pillar encompass- vices, such as education, healthcare, law enforce- es a wide range of stakeholders in an expansive ment and assistance to the needy. Qatar does the manner—from childhood to old age, from early same—but the government extends the defini- education to retirement, from private family life tion of social policy beyond the provision of basic to international relations. It encompasses the gov- amenities and services. As stated in QNV 2030, the ernment’s responsibility to its citizens and citizens’ country promotes social tolerance, benevolence, responsibility to their families and communities. constructive dialogue and openness towards other A progressive and modern social policy, therefore, cultures. Most important, it seeks to ensure justice must help individuals deal with the requirements and equality for all men, women and children of of the time in which they live. The modern era in current and future generations. By broadening Qatar is a period of incredible growth and oppor- the traditional parameters of social policy, Qatar tunity but also of unprecedented social change. is able to enhance the government’s role in foster- The government will need effective measures to ing a caring and cohesive society. promote tolerance and maintain compassionate values as the country’s population grows and diver- Qatar’s social policy, therefore, may be defined sifies, as a new generation ages in a more open as the activities of government and civil organi- society and as private and international interests zations that together promote social and human invest in Qatar’s future. development in a welfare society that is economically and environmentally sustainable. This defini- An integrated social development policy must tion underscores the interrelated links of the QNV always take into account the well-being of Qatar 2030 pillars while ensuring that all elements of the and its citizens. By building a safe, secure and sta- national vision are aligned and moving towards ble society through strong and effective govern- common goals, both across all pillars of society ment and family institutions, Qatar will achieve and within each pillar. Given Qatar’s rapid social the QNV 2030 outcomes of effective social care and economic transformation, promoting shared and protection, sound social structure and inter- responsibilities for common goals through inte- national cooperation. The National Development grated social development is critical to maintain- Strategy 2011–2016 will lay the foundation for ing stability and cohesion. these goals with a social development strategy that

162 a h c pter 5 seeks to enhance individual well-being without between all segments of government and society compromising Qatar’s cultural identity. This strat- is imperative. Successfully involving the numerous egy will integrate the following elements: ministries, government agencies and civil society • Establishing strong cohesive families that care organizations will be a key success factor. for their members and maintain moral and religious values and humanitarian ideals. By creating an enabling environment for an inclu- • Establishing an effective social protection sys- sive society, including digital inclusiveness, that tem for all Qataris that ensures their civil offers fair employment opportunities to everyone, rights, values their contribution in society and such as the disadvantaged and vulnerable, the ensures an adequate income to maintain a government is also enriching the labour force. By healthy and dignified life. providing debt-burdened families with the tools • Establishing a secure and stable society oper- to better manage their finances, the government ating on the principles of justice, equality and is also strengthening the economy. By developing the rule of law. programmes to promote participation in sports • Increasing active lifestyle practices among the and athletic activity, the government is contribut- population to improve health outcomes and ing to a stronger, healthier population and, even- to use sports participation to forge friend- tually, lower healthcare costs. By fostering a cre- ships and improve relations between countries ative learning environment through enhanced worldwide. culture and arts programmes, the government is • Establishing Qatar as a hub of Arab culture building a stronger education system. All these through a distinctive national identity, strong activities will make for a comprehensive social community cohesion and a vibrant and creative development policy, but they will also enable effec- cultural sector. tive outcomes for Qatar’s human development, economic and environment goals. This cohesive approach to a social development strategy will cut across all elements of society The fundamental elements of Qatar’s nation- while enabling related economic, environmental al vision for social development revolve around and human development goals. It will preserve a sound social structure that guarantees social and enhance the quality of service expected by care and protection for all members of society. individuals and businesses, be dictated by prop- Only through the kind of cross-sectoral frame- er adherence to cultural values and offer sus- work identified above can those goals be achieved, tainable solutions to targeted goals for 2016 and since all segments of society must work together beyond. for the betterment of everyone’s well-being. By ensuring the individual well-being of all Qataris, Qatar’s social development policy requires coordi- whether through increased career opportunities nated and comprehensive integration of five inter- for women or through stronger occupational safe- related social sectors. The aim is to bring different ty standards, the government can expand the tra- types of programmes, target groups and modes of ditional role of social policy to incorporate equity provision under a single social development policy and justice as identifiable outcomes across multi- framework. An integrated approach to wide-rang- ple sectors. ing objectives will maximize outcomes and ensure better coordination between different stakehold- In forming a comprehensive action plan for imme- ers working towards a common goal. diate social development, the government is keen- ly aware of the consideration that must be given Given the nature of the social development pro- to long-term concerns alongside more immedi- jects to be implemented under the National Devel- ate goals. Many of the targets presented for the opment Strategy 2011–2016, close cooperation National Development Strategy 2011–2016 will be

An integrated approach to sound social development 163 implemented with the dual purpose of addressing and beyond as well as the more immediate goals current challenges facing Qatar while laying the for 2011–2016. groundwork for sustained excellence. Resources, programmes and commitments made now must Taken together, these objectives form an integrat- not infringe on the well-being of future genera- ed blueprint to realizing the QNV 2030 ideal for tions. Rather, current initiatives will aim to create social development—a safe, secure and caring a better society through addition not subtraction, society built on a sound social structure of effec- by building social equity and increasing social captive institutions and cohesive families. Taken indi- ital without reducing the country’s resources or vidually, these goals offer separate but related diminishing its historical heritage. frameworks for identifying challenges, establishing baselines and proposing solutions to enhance This mission of sustaining a fair and just use of the well-being of all Qataris and to provide clear resources over multiple generations supports all sectoral targets for the National Development social development goals for the national vision Strategy 2011–2016.

164 Qatar National Development Strategy 2011–2016 a h c pter 5 Family cohesion: the core of Qatari society

Qatar will preserve “a strong and coherent family that an indispensable role in upholding traditional enjoys support, care and social protection. Women will familial and cultural values. They also exemplify assume a significant role in all spheres of life, especially the new opportunities available to all Qataris as a through participating in economic and political decision result of the country’s rapid economic growth and making.” —Qatar National Vision 2030 social transition. As Qatar implements a sustainable and integrated social development policy over The family is the basis of Qatari society. It is the the next six years, it is critical to ensure that the foundation on which rest all aspects of Qatar’s policy moves outward, not inward, and that it is social architecture. The Permanent Constitution rooted in the core of Qatari society—families. protects the family, supports its structure, strengthens its ties and protects maternity, childhood and The family cohesion and women’s empowerment old age. Similarly, QNV 2030 aims to preserve sector of the National Development Strategy 2011– strong and cohesive families as the fundamental 2016 social development pillar thus supports a element of the country’s long-term social develop- strong family structure that cares for its members ment strategy. The Qatari family is the first and and maintains moral and religious values and most influential educator and inculcator of values. humanitarian ideals. At the same time, the govern- The well-being of families is therefore crucial to a ment will show an increased dedication to enhance sound social structure, and it is necessary to build women’s capacities and empower them to par- an effective social care and protection system. A ticipate more fully in the political and economic dedicated commitment to marriage, a keen under- spheres. This obligation to Qatari families, women standing of personal responsibility, an apprecia- and the national vision will be carried out in the tion of traditional values, a strong bond between National Development Strategy 2011–2016 through parent and child, a sense of mutual respect among 8 overarching outcomes and 12 priority family all men, women and children—these are vital cohesion projects in which the government will: characteristics of healthy, cohesive families. • Strengthen the Qatari family as a pillar of society. • Strengthen parental responsibility and reduce Qatar’s strong Arab and Muslim identity pervades dependence on domestic helpers. all aspects of family life and continues to inform • Reduce family violence and establish a protec- the family structure through extended household tion and support system for victims. makeup, traditional kinship ties, ethnic affiliations • Provide support systems for families with spe- and a tribal authority that determines the behav- cial circumstances, such as the families of peo- iour of sons and daughters. But changes brought on ple with disabilities and juvenile delinquents. by external pressures and internal evolutions are • Reduce economic and social vulnerability and im- rapidly altering the family dynamic. Some of these prove Qatari families’ financial management skills. changes are undesirable, leading to rising divorce • Increase child well-being, child welfare and rates and increased domestic violence. But many child protection. changes point to a society that is expanding its cul- • Improve support for working families, particu- tural imprint while staying true to its Arab identity. larly for women. • Increase the number of women in leadership Women are central to the evolving Qatari family. and political decision-making positions. Even as they maintain an adherence to valuable • Reduce stereotyping of women’s roles and traditions, women are adapting to the impacts responsibilities. of modernization. Through their nurturing of language, codes of ethics, behavioural patterns, All family-related projects targeted for the devel- value systems and religious beliefs, women play opment strategy are closely interrelated. It is also

Family cohesion: the core of Qatari society 165 supported by the National Family Strategy 2008– marriage among Qatari men and women. On aver- 2013. They are intended to strengthen Qatar’s age, men marry at age 27, women at age 24. long-term social care and protection outlook and to embody the common social development theme Marriage is the foundation leading to the forma- of increased well-being—the stronger the family tion of Qatari families. In Qatari society premari- structure’s well-being, the stronger Qatar’s social tal relationships are prohibited, and most marriag- core becomes for future generations. es are arranged by parents according to Islamic Sharia, culture and traditions. A majority of men Reinforcing family cohesion and 60% of women have married by ages 25–29; only 1% of men and 6% of women marry before In the past decade or so Qatar has experienced age 20. Based on the information collected by rapid development progress. Yet most Qatari various family support institutions, three leading households remain relatively large (figure 5.1). reasons for these delays include the high cost of More than 80% of households comprise 5 or more wedding ceremonies, higher selectivity in suitable people, and 20% comprise 10 or more. Two-person marriage partners and, for men, easier access to households are rare, and one-person households illicit sexual relationships. are even rarer. But some of the more traditional aspects of family life are changing. With the later ages at which Qatari women are marrying for the first time, they are having their Two of the most prominent trends are the sharp- first child at a later age than in the past. Qatari ly rising proportion of Qatari women who never women are also having fewer children than they marry and steadily increasing divorce rates, which did a generation ago (figure 5.2). are particularly high among couples married for a short time. A long-term trend that levelled and The number of divorces per 1,000 married Qataris slightly reversed after 2005 is the rising age at first increased from 17.4 in 1995 to 19.2 in 2009 (figure 5.3), especially among younger couples. In 2009, Figure 5.1 Qatari households remain relatively large 61% of divorces took place within the first five years of marriage, and 29% of divorces happened before Thousands of households the consummation of the marriage. Knowledge 5 pertaining to the impact of divorce on the Qatari 17 family and on children’s well-being is limited, but empirical evidence shows that divorced household 4 14 heads are more than twice as likely as married 13 household heads to live on a relatively low income. 11 3 Ensuring the continuity of cohesive families and 9 large households is crucial to the national vision, 2 8 7 since families are the core of Qatari society and 7 6 have a moral and religious obligation to care for 5 1 their members. The government will strength- 3 en family cohesion by developing a programme to focus on solidifying the role of marriage and 1 0 family ties within Qatari society through marriage 987654321 11–1210 13 or more counselling and by increasing support to divor- a Number of people in household cées. The government will expand the social safety Note: Values in bars are percent of all households. net for those in need of extra help, even as efforts a. Excludes domestic workers. are made to reduce the number of Qatari couples

166 Qatar National Development Strategy 2011–2016 a h c pter 5

Figure 5.2 Qatari women are having fewer children than they did a generation ago

Total fertility rate (births per woman) 6 5.7

5 5.1

4.6 4.5 4.5 4.5 4.4 4.3 4 4.2 4.1 4.0 3.9

0 1990 1995 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

Figure 5.3 The divorce rate per 1,000 married Qataris rose from 17.4 in 1995 to 19.2 in 2009

Number of divorces Divorces per 1,000 married Qataris 1,000 20 19.8 19.2 17.4

750 15

704

549 500 10

343 250 5

0 0 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

Note: Divorce numbers are three-year moving averages. The denominators for the rates for years other than 2001, 2004 and 2006–2008 are estimates. seeking divorce. These efforts are also being sup- and education programmes on the obligations ported by Qatar’s 2009 population policy. of marriage and importance of family formation. The programmes will act as a precondition A programme to strengthen marriage and family ties for the receipt of the marriage fund that the government provides Qatari couples. The premarital All Qatari couples will be required to attend and courses will also support efforts to increase cou- complete a series of pre-marriage counselling ples’ awareness of potential problems that face

Family cohesion: the core of Qatari society 167 married people. In Malaysia a similar programme especially women. Divorced women are currently requires all Muslim couples to pass a set of cours- eligible for monthly benefits (QR 2,250) from the es on marriage prior to receiving a certificate of Ministry of Social Affairs, but to further reduce completion, which is used as a licence to author- the effects of divorce, the government will cre- ize the marriage. ate an alimony fund as an additional safety net for women who lack financial support from their Since the development of Qatari families is also ex-husbands. governed by legislation, in particular Law 22 of 2006, laws relating to the family will be reviewed Target and revised to reflect societal changes in Qatar • Reduce the number of Qatari couples seeking and international commitments made under the divorce before consummation by 20% and after United Nations Convention for the Elimination of consummation by 40%. Discrimination Against Women. Such measures have been used by other countries in the region Strengthening parental roles to improve family cohesion. In addition, a specialist media unit will be developed within the Qatar Beyond changing patterns of family formation Media Corporation to support key messages on and dissolution, there are concerns about the the importance of the family, and a new subject expanded role of domestic helpers in Qatari on marriage and family ties will be included in the households, particularly those engaged in child academic curriculum. care. Most have limited education and difficulties communicating in Arabic. Heavy dependence on Targets domestic helpers is leading to weakened family • Implement a programme to strengthen family ties, affecting traditional family values and child cohesion, with at least four projects completed. well-being. • Reduce the proportion of Qatari women who are unmarried by ages 30–34 by 15%. This reality raises three key impact concerns: weakened bonds between parent and child, A system of marriage counselling and support for adverse impact on child safety and development, divorcées and negative effects on Qatari heritage and culture. The government will strengthen paren- The services of the Family Counselling Centre will tal roles through a social programme intended be expanded throughout Qatar to provide strate- to change attitudes and strengthen parent-child gic intervention in an attempt to reduce divorce relationships, through enhanced early childhood rates, while the government will aid the establish- education on the importance of meeting family ment of private counselling services. Efforts will responsibilities and through stronger regulations also be made to expand the number of psycho- governing the recruitment and management of logical and counselling specialists in the area. domestic helpers. More access to highly trained specialists will help couples proactively address difficult issues before A programme to enhance parent-child deciding to separate. These issues include social relationships inequality of spouses, behavioural deviations, relationships away from marriage, negligence of mari- This programme will raise awareness of the poten- tal and family responsibilities, bullying, mistreat- tial dangers to family cohesion from increased ment, domestic violence and financial pressures. reliance on domestic helpers. The key messages will focus on the adverse effects of heavy depend- The government will take steps to strengthen ence on domestic helpers and the need to share the social safety net for those facing divorce, responsibility among family members, taking

168 Qatar National Development Strategy 2011–2016 a h c pter 5 into account that each Qatari nuclear family has particularly in relation to clearer demarcation of four levels of ties that bind them to an extended responsibilities and duties. In addition, the gov- family. In addition, home science courses will be ernment will establish a support centre for domes- included in the school curriculum. These courses tic workers, including an office and helpline to will extend beyond the instruction of chores such report abuse and exploitation. An induction pro- as cooking and sewing; they will also teach chil- gramme intended to educate domestic workers on dren how to share family responsibilities and how Qatari culture will provide additional support to to properly look after their family and homes. domestic helpers.

Target Target • Reduce by half the average number of domestic • Put in place regulatory guidelines on recruit- helpers per household. ment and management of domestic helpers.

A system to regulate domestic helpers Reducing domestic violence

The government will devise a set of regulations, A primary responsibility of any family member is including standards and conditions, to better man- to contribute to a caring, supportive and safe envi- age the recruitment and employment of domestic ronment for everyone. But since 2004 Qatar has helpers. This way forward will be supported by seen a significant jump in the number of report- new legislation covering the legal rights of domes- ed domestic violence incidents against women tic workers. Inclusion of domestic workers into and children (figure 5.4). Such violence has dev- national labour laws is already being explored in astating consequences not only for the victims but Kuwait, Saudi Arabia and the United Arab Emir- also for society as a whole. Gender-based violence, ates. Stronger regulations will improve the rela- which includes physical, emotional and sexual tionship between the family and domestic helpers, abuse, has economic and social costs that directly

Figure 5.4 Domestic violence cases are prevalent in Qatar

Cases of children and women referred to the Qatar Foundation for Child and Woman Protection since 2004 ...... supported by other studies on Qatar Number of cases 600 In 2007 a SCFA study surveyed 2,778 citizen and noncitizen 459 Children (total 1,204) Women (total 1,185) female students: • 63% reported they had been victims of physical abuse. • 52 individuals reported cases of “strong violence” (such as rape). 400 145 111 154 • 120 individuals reported they had been victims of sexual 190 harassment.

299 A 2008 study surveyed more than 1,000 married Qatari 266 259 women: 200 197 • Consistent with earlier studies—an estimated 28% of married 145 women reported having experienced domestic violence. 139 • Domestic violence was most frequently carried out by husbands (the main source), brothers or fathers.

25 0 2004 2005 2006 2007 2008 2009

Family cohesion: the core of Qatari society 169 undermine Qatar’s goal of providing social care In addition to legal initiatives, efforts will be made and protection for all its citizens. Domestic vio- to establish a broader network of community and lence is currently not classified as an offence social support services, including multiple one- under criminal law, although there is a range of stop centres to provide protection assistance, a legislation that does not condone violence against community-based awareness programme to call women and children. more attention to prevention methods, a thorough review of current shelters and facilities to ensure Qatar faces two primary challenges in reducing they meet international best practices and stand- domestic violence: the lack of a systematic data ards, and the creation of family-friendly police collection system and incomplete investigations units and an emergency hotline to improve the of suspected cases of abuse or neglect. Formal reporting culture. reporting of violence in the family is culturally unacceptable, and victims tend not to report Target because of the fear of shame in a relatively small • Put in place a comprehensive domestic violence society. Additionally, a lack of awareness of rights protection system. often prevents family members from disclosing violence or seeking help. There is also fear of An early detection system for child abuse and repercussions in terms of the social, legal and neglect political consequences for victims and their families. A formal child protection programme is outlined under the draft child law, which will ensure that The government will reduce domestic violence by Qatar meets its obligations under the United establishing a comprehensive protection system Nations Convention for the Rights of the Child. that ensures privacy, protection and support for Additional efforts by Qatar’s Child Abuse Com- victims as well as anyone reporting violent inci- mittee, which was initiated by the medical com- dents, establish help centres, streamline data col- munity and is currently operational, will be lection methods and, most important, criminalize encouraged, though an immediate agenda is domestic violence. In addition, an early detection already in place. Those plans include the estab- mechanism for child abuse and neglect will be lishment of a data registry centre for child abuse implemented in schools. and neglect, child advocacy programmes, a public awareness campaign and improving the lines A comprehensive domestic violence protection of communication between hospitals and rele- system vant authorities.

With no process for tackling domestic violence and These activities will intersect with the holistic child protection issues currently in operation, a approach to child well-being that is an additional full-scale programme will be developed, starting component to the family cohesion sector strategy with the review and adoption of legislation to crim- for the National Development Strategy 2011–2016. inalize domestic violence and the creation of fol- This approach will be centred on developing a low-up policies (in coordination with law enforce- mechanism to detect early child abuse and neglect ment) to protect victims. Current methods of data by increasing the number of social workers in collection will be reviewed to consolidate proce- schools, youth awareness programmes and school dures and establish a formal reporting and moni- hotlines to ease and encourage reporting. toring system that guarantees confidentiality. And formalized legal protection for those who report Target cases of violence to authorities will be established. • Install and operate an early detection mechanism for child abuse and neglect.

170 Qatar National Development Strategy 2011–2016 a h c pter 5 Supporting families with special Development Strategy 2011–2016 social develop- circumstances ment pillar. Protection and support for people in need and their families are vital measures of how Qatar has a generous social protection system pro- inclusive and caring a society truly is. vided by multiple stakeholders, including the government, civil society organizations and the private Target sector. However, some families face special circum- • Increase the number of facilities providing sup- stances that require additional social care. These port for families facing special circumstances circumstances include caring for and protecting a from zero to three. family member who faces challenges related to age, health or social conditions, such as being elderly, Reducing economic and social having a disability, having been in prison, being a vulnerability and improving financial drug addict or being a juvenile offender. The gov- management ernment will support families with special needs by increasing the range of assistance facilities availa- Qatar does not have a personal income tax or value ble to Qataris within their communities, improving added sales tax, and a number of noncontributory the focus of data collection to establish a stronger government transfer programmes exist, with ben- evidence base, and reviewing and updating current eficiaries ranging from disadvantaged groups to legislation to provide stronger legal protections. newlyweds through the marriage fund. But three- quarters of Qatari families are in debt, with most Assistance to families that face special burdened by large loans exceeding QR 250,000. circumstances This statistic is linked to weak economic and social empowerment of vulnerable families and a prevail- To address the additional problems of families ing culture of extravagance and conspicuous con- that face special circumstances, the range of sup- sumption (figure 5.5). There is a weak financial port facilities available to Qataris within the com- culture among families overall, and in some cases munity will be increased, the focus of data collec- this results in taking out loans without fully under- tion will be improved and relevant legislation will standing the costs of repayment. Although Qatar be reviewed and updated if necessary. Families provides free healthcare and education, data sug- will be able to receive informal support and assis- gest an increasing number of families are incur- tance from community-based centres without fear ring debt to cover costs of private sector service proof stigmatization. This positive model will also viders. Vulnerable families, especially those in the build awareness of the difficulties faced by some low-income category, will be more susceptible in families and how they can be helped or how they these conditions. Families likely to be affected are can support and help each other. The centres will those headed by women, especially divorced and take the lead in establishing local civil society asso- widowed women, families with retired and unem- ciations to provide additional support. ployed heads and families headed by employed people with lower education levels. A review and revision of laws relating to the status of children belonging to Qatari women married to To reduce more severe, longer term financial secu- non-Qatari men will be undertaken to ensure that rity threats, especially among the vulnerable, the all children receive the necessary essential services government will support measures to improve the to guarantee their well-being. And existing legis- financial management practices of Qatari fami- lation relating to people with disabilities will be lies through a programme to increase education, comprehensively enforced, including their inclu- awareness and financial planning skills. Chang- sion in the workforce, which is a key part of the ing attitudes towards debt and promoting sound social protection sector strategy of the National spending and investment practices will be critical

Family cohesion: the core of Qatari society 171 Figure 5.5 More financial responsibility and less indebtedness are needed

Increasing pressure from inﬂation and . . . aggravated by high levels of indebtedness spending . . . among Qatari households

Income and inflation 2001 2007 A 2007 study covering a sample of 1,368 Qatari households Average income (QR; nominal) 19,912 41,483 showed an increased focus on indebtedness due to pursuit of lifestyles potentially beyond their means: Average income (QR; real) 19,912 27,000 • Loans for speculation in the stock market reached QR Consumer price index 297,000 per household. (2000 = 100) 100 151 • Loans for entertainment, travelling and touring reached QR 203,000 per household. • The average value of a car loan was approximately QR 111,000 per household. Basic goods and services 2001 2007 Residence, water, electricity 17.6% 29.3% Loans are also taken to pay for health and education Transportation 16.5% 13.8% services, indicating a shift towards private sector Food and beverages 17.5% 11.2% services due to changing socioeconomic conditions: • Loans for healthcare services reached QR 256,000 per household even though healthcare is free in Qatar. • Healthcare expenses probably cover payments for treatment abroad. Income and expenditure 2001 2007 • Loans for educational pursuits reached QR 167,000 per Average income (QR) 19,912 41,483 household, most likely to cover students who did not benefit Average expenditure (QR) 22,366 40,757 from the student exchange system or government-provided subsidies or scholarships. to the financial well-being of current and future expenditure—the government will enact a com- generations. prehensive health insurance system for families and provide an education allowance or vouchers Capacity, awareness and support for family for private education. These measures provide finances cross-sectoral alignment with the National Devel- opment Strategy 2011–2016 human development A comprehensive, supportive approach to curb the strategies as well. desire to live above one’s means will begin with awareness and counselling programmes as a pre- Targets marriage requirement and will include an easi- • Reduce the number of Qatari families bur- ly accessible financial advisory service that offers dened by large loans (QR 250,000 or more). legal advice on loan rates and payments. A thor- • Halve the number of Qatari families in debt. ough campaign against indebtedness will require legislative action, including setting limits on max- Adopting a holistic approach to child imum allowable loans based on an individual’s well-being income. This will provide some level of protection for individuals and subsequently improve the A solid social structure depends on sustainable financial status of families by improving finan- health and education measures to strengthen its cial management, reducing extravagant and non- future generations—a key focus of the human necessary expenses now being financed through development strategies for the National Develop- loans. Since data support the desire for Qataris ment Strategy 2011–2016. But the prominence to seek private sector healthcare and education of health and education in QNV 2030 requires —two sources of potentially large financial careful, cross-sectoral considerations of Qatar’s

172 Qatar National Development Strategy 2011–2016 a h c pter 5 investments in today’s children, including the cru- to significant health problems in the next gen- cial elements of children’s social development. eration, such as vitamin deficiencies and obesity. Other health risks come from kinship marriages, Though certain family-specific issues have already which have led to increased rates of congenital been identified, the government will adopt a holis- birth defects, and smoking and drug abuse. Smok- tic approach to child well-being as well. Although ing rates among children ages 13–15, for instance, international child measures indicate Qatar is in a are 13% for girls and 25% for boys. fairly good position in relation to other countries in the region, Qatari children face threats ranging A holistic approach to child well-being from health to education to risk-taking behaviours (figure 5.6). Reversing negative trends and improving the quality of life of children will require a series of activi- Qatar has already taken major steps to strengthen ties that work in unison across all sectors of gov- its commitment to children’s welfare, safety and ernment to provide a just, healthy quality of life health. The comprehensive draft child law will for Qatar’s current and future generations. This ensure that Qatar complies with the most impor- work will also require changing behavioural atti- tant piece of internationally accepted legislation tudes and ensuring that personal pride and vir- in relation to children’s rights. But the National tue are instilled in Qatari youth. The govern- Development Strategy 2011–2016 provides the gov- ment will promote active citizenship and provide ernment the opportunity to do more to enhance opportunities to develop necessary life skills in the well-being of children, as recent data point order to develop Qatar’s future leaders. A youth

Figure 5.6 Qatar will adopt a policy-making approach in the best interest of children’s well-being

Qatar’s child development index score is in . . . but well-being of children remains a the top bracket . . . rising concern Child development index score, 2000–2006 Significant health and nutritional issues among Qatari 14 (worst) children were identified in recent Aspetar Hospital study: Country (rank) • 90% of girls showed vitamin D deficiency. Sri Lanka (74) • 46% of girls were osteopenic, and 27% had osteoporosis. 12 • Average body mass index among Qatari boys ages 10–13 was 22 kilogrammes per square metre (in 90th percentile), 10 Kuwait (64) indicating severe obesity. Saudi Arabia (62) United Arab Emirates (61) • 50% of Qatari boys are in the 22–36 kilogrammes per square metre range. 8 Egypt (50) The best interests of children are affected Jordan (47) by changes in family cohesion: Syria (44) 6 Mexico (40) • The impact of divorce on Qatari children is not fully known, Qatar (34) China (32) but children in divorced households are more likely to be Russia (31) Tunisia (27) Bahrain (26) low-income. 4 Malaysia (24) United States (23) • Reliance on domestic helpers who are not experienced child caregivers has potential detrimental effects on children’s emotional and cognitive development. 2 • Violence has multiple adverse effects on children. Italy (4) Canada (3) Spain (2) 0 (best) Japan (1)

Source: Save the Children UK, The Child Development Index: Holding Governments to Account for Children’s Well-Being (2008).

Family cohesion: the core of Qatari society 173 “parliament” will be formed to teach the concepts Improving work-life balance for women of democracy and strengthen children’s sense of civic and personal responsibility, justice and lead- While implementing methods to provide strong- ership. And training programmes will be created er social care for children and families and to to strengthen intergenerational relationships. strengthen marriages, the government must be aware of a delicate balancing act—to preserve and In all legal and policy decisions the state will adopt enhance the traditional Qatari family core while “best interests of the child” criteria, especially in empowering women to participate in all spheres custody and child protection cases. A children’s of society, especially in economic and political court, separate from the regular adult court pro- decision-making. The national vision calls for cess, will be established, while the age of criminal enhanced capacities and more prominent societal responsibility for children will be increased from roles for women, and the National Development age 7 to age 12 or older. Once enacted, the draft Strategy 2011–2016 will seek to improve on the child law will provide a comprehensive framework gains already made by women in recent years. within which all activities relating to children will be implemented and measured. These activities More Qatari women are joining the labour force will cut across multiple National Development (figure 5.7), a trend that is consistent with women’s Strategy 2011–2016 sectors. rising educational attainment. As learning opportunities continue to increase, women’s participa- Targets tion in the workforce will also increase. By 2016 the • Reduce the number of under-18 drug addicts government expects Qatar’s rising female labour to 1%. force participation rate to stand at 42%. To be bet- • Reduce the number of under-18 smokers to 10%. ter prepared for this cultural shift, the government • Halve the incidents of under-18 reckless driving. has taken numerous measures, especially through

Figure 5.7 The labour force participation rate of Qatari women rose sharply from 2001 to 2009

Female labour force participation rate (%) 60 Sample of eight developed countriesa 58%

Kuwait 44%

40 United Arab Emirates 42%

Bahrain 32% 35 36 36 34

Oman 25% 29 27 Saudi Arabia 21% 20

0 2001 2004 2006 2007 2008 2009

a. France, Germany, Japan, Norway, Singapore, Sweden, the United Kingdom and the United States. Data are weighted by the working population ages 15 and older. Source: ILO, Economically Active Population Estimates and Projections, 5th edition (2009).

174 Qatar National Development Strategy 2011–2016 a h c pter 5 the 2009 Law on Human Resources Administra- members, improved regulation of domestic work- tion, to improve women’s working conditions, ers and enhanced support systems for families including provisions for a 60-day maternity leave, with members who need special care. allotted time (two hours a day for a year) to breast- feed a baby and extended care leave for women Target with disabled children under age 6. • Put in place measures that support working women, including revising the current human However, the extent to which women are able to resources law and maternity leave policy. participate and remain in the labour market is intrinsically linked to the support available to help Increasing women’s empowerment women balance family and professional responsibilities. The government will improve support There is a collective recognition of women’s edu- for working families, particularly for women, cational ability and qualification to assume polit- by expanding child care facilities and family- ical and leadership positions, but there is also a friendly employment practices and by encourag- culturally conditioned underestimation of scope ing gender-sensitive working environments. and ability overall. While legislation has helped increase Qatari women’s participation in the Measures to help women balance work-life labour force (figure 5.8), traditional views about responsibilities appropriate avenues for women’s employment (educational, administrative or clerical) prevail, The availability of high-quality, affordable and despite the new opportunities created by Qatar’s accessible child care is the most significant fac- economic development. Statistics show that in tor in improving personal and professional bal- 2009 only 3% of economically active Qatari ance. Even more important, a well planned women had leadership posts. Over the past 10 approach can contribute positively to the devel- years this number has ranged between 2% and opmental outcomes of children. Kindergartens 4%. Although women have higher average educa- and workplace nurseries are operational, but tional attainment level than men, there appears to they will be enhanced, while the number of pri- be a “glass ceiling” in employment and promotion vate and public day nurseries and kindergartens for women. (currently 137 private and 12 independent) will be increased. Transferring responsibility of day Another hurdle in increasing women’s empow- nurseries from the Supreme Council of Educa- erment is overcoming the stereotyping of wom- tion to the Ministry of Social Affairs will allow en’s roles and responsibilities in society. Over the a more comprehensive plan to be created and last decade voting participation has increased implemented to improve workplace child care. among women, and there is now female repre- New legislation will set minimum standards for sentation on the Municipal Council. The total nurseries and kindergartens and ensure proper number of women in decision-making positions staff qualifications. has increased, but women still face barriers to political life, such as a lack of awareness of the The government also will build on best practices significance of the political process and adverse from other countries to adopt more family-friendly social and cultural attitudes. In a 2007 survey work measures, such as flex time, part time and 28% of Qatari men and women opposed female special leave. In addition, the work-life balance for participation in politics. Women are no doubt women will be improved as other National Devel- central to the evolving character of the Qatari opment Strategy 2011–2016 family cohesion out- family, but there is much more that women can comes are achieved, such as programmes to raise contribute to society apart from their role in the awareness on shared responsibility among family home.

Family cohesion: the core of Qatari society 175 Figure 5.8 Qatari women with a university education are employed mainly as professionals

Employed Qatari women, by occupation (%)

100 1.6 1.8 0.4 2.7 4.0 55.8 4.3 4.9 8.4 77.4 47.2 15.7 79.2 14.7

76.5 75 75.1

50 4.4 43.5 11.5

31.1 25

7.8 9.2 12.1 6.7 1.1 2.0 0 2001 2009 2001 2009 2001 2009 Below secondary Secondary University Education level Elementary occupations Service, sales, craft and operators Clerks Technicians and associate professionals Professionals Senior of cials and managers

A women’s leadership programme A programme to change public perceptions of women The government will establish a women’s leadership centre to build women’s capacity and increase The perception of women’s roles in Qatari culture the number of women in political, organizational will be enhanced through civil society organiza- and business-related decision-making positions. tions’ advocating for women’s issues and through At the same time, an awareness programme will awareness campaigns and educational media pro- promote the role of women across all National grammes that promote women as positive role Development Strategy 2011–2016 sectors. Other models and professionals. countries are implementing similar initiatives, including Malaysia, where a range of gender stud- Also, gender-sensitized legislation will be devel- ies, skills training and sensitization programmes oped to encourage more women to take active were proposed in the recent Tenth Malaysia Plan, roles in society, and a thorough review of gender 2011–2015. Such measures are intended to remove equity in public sector employment will serve as a cultural barriers and obstacles blocking women’s first step in removing existing social and cultural progress and to create an enabling environment barriers. for professional and personal growth. Target Target • Establish a civil society organization that pro- • Increase the number of women in leadership motes women’s issues. positions by 30%.

176 Qatar National Development Strategy 2011–2016 a h c pter 5 Fostering cross-sectoral links The family cohesion and women’s empowerment sector will be key in meeting the goals of the social The institution of the Qatari family, with its strong development pillar by enhancing Qatar’s sound Arab and Islamic identity, is an integral force in social structure and by contributing to the coun- economic and social progress. QNV 2030 supports try’s social care and protection. But given the the maintenance and continued development of influence that family and women’s issues can also strong and cohesive families with an expanded have on economic, environmental and human role for Qatari women in national development. development policies, several cross-sectoral links Investments in women’s advancement and empow- can be identified that demonstrate how family erment have been shown internationally to lead to cohesion and women’s empowerment is both a many positive development outcomes and to sup- goal and an enabler to achieve the aspirations of port economic growth. QNV 2030 (figure 5.9).

Family cohesion: the core of Qatari society 177 Figure 5.9 Family cohesion and women’s empowerment is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for family cohesion and women’s empowerment

Ensure continued access to education, particularly for people with disabilities, Support well-being of with curricula that enhance social families living near values; provision of nurseries and industrial areas kindergartens to support families Environmental Education and sustainability training

Provide support to address Manage economy to support domestic violence through a changes that affect the standard Economic Family cohesion responsive health system; support management and women’s Healthcare reduction of genetic diseases; and quality of life, including empowerment household indebtedness support the well-being of women and children

Population, labour Institutional force and Qatari Develop effective institutions to development employment Provide career support for the Qatari support sound social structure family; employment of people with that includes government, civil disabilities; women’s economic society organizations and the participation; youth and unemployment private sector

Goal Enabler

Family cohesion and women’s empowerment as an enabler for other sectors

Improve behaviour for Build strong, cohesive families environmental sustainability with healthy children; improve (for example, use of water education outcomes and electricity) Environmental Education and sustainability training

Provide families with Promote healthy effective ﬁnancial Family cohesion lifestyle among families; Economic and women’s management and management Healthcare ensure child well-being, increased consumer empowerment welfare and protection protection knowledge

Population, labour Institutional force and Qatari Strengthen governance, development employment Support effective with the Supreme Council participation of Qatari for Family Affairs as a key women in the labour force institution for family affairs and women’s empowerment

178 a h c pter 5 Social safeguards for a caring society

Qatar “aspires to advance and develop the social In general, there is a perceived decline of social dimensions of its society by nurturing Qatari citi- capital within Qatari society. As Qatar’s economic zens capable of dealing effectively and flexibly with the and global stature increases, so do the challeng- requirements of the age they live in”.—Qatar Nation- es to traditional values that accompany this new al Vision 2030 prosperity. A strong common value system is thus needed to ensure that the social capital network The social capital of a society includes the insti- will encourage confidence building and social tutions, relationships, attitudes and values that cohesion. govern interactions among people and contribute to economic and social development. With- Improving and strengthening the social in that network Qatari families are an important protection system and critical link. But families are complemented by the wider community, public institutions and The National Development Strategy 2011–2016 the more malleable aspects of social capital, such recognizes that an effective social protection sys- as relationships, attitudes and values. During peri- tem requires a coordinated, multistakeholder ods of rapid modernization and development, approach whereby responsibility does not rest in social capital can change, potentially affecting any one ministry or agency (table 5.1). An ongo- those vulnerable to falling into low-income situ- ing effort is necessary to ensure national legisla- ations. Protecting individuals from risks that may tion and initiatives remain consistent with Qatar’s affect their ability to contribute to society and rapidly transforming socioeconomic context. assisting individuals in need are the central components of Qatar’s commitment to community The current system, led by the Ministry of Social care and career support. Affairs, provides generous support to citizens through various means, including a noncontrib- QNV 2030 takes a holistic approach to develop- utory cash transfer system for disadvantaged and ment, foreseeing that sustainable development vulnerable groups, economic empowerment pro- will embody an effective social safety net for all grammes, job-matching services and more (fig- Qataris. In providing a medium-term framework, ure 5.10). Various charitable organizations and the National Development Strategy 2011–2016 will civil society organizations also provide services, in make a firm commitment to establishing a social addition to the Zakat Fund and Endowment Fund protection system that preserves the civil rights (table 5.2). of all citizens, values their contribution to society and ensures an adequate income for them to The social protection system is comprehensive, maintain a healthy and dignified life. Qatar will but it needs to be progressively improved in line meet this commitment to its people through three with the country’s development. The government overarching outcomes and 10 priority social pro- must be certain that its social safety net is reach- tection projects in which the government will: ing everyone in need, and it must be proactive in • Improve and strengthen the current social pro- ensuring that benefits are aligned to Qatar’s rap- tection system. idly changing economy (figure 5.11). • Create an enabling environment to integrate and mainstream the disadvantaged and vulner- Though recent efforts have been made to able groups into the workforce and society. strengthen the social protection system, such as • Broaden participation through smart partner- the establishment of a rehabilitation programme ships, including the private sector, in support for released Qatari prisoners, much more work of the social protection system. will be done. For example, more work-training

Social safeguards for a caring society 179 180 Figure 5.10Figure Table 5.1

Widowed, separated People with disabilities and divorced Main groups 100 100 100 Payments madetobene ciaries(%) Payments madetobene ciaries(%) Payments madetobene ciaries(%) Qatar National Development Strategy 2011–2016 Development National Strategy Qatar 50 50 50

0 0 0

Key components charitable organizations charitable and organizations society Civil capital Social insurance Social Social Security services Social Q atar’s social protection system is supported by multiple institutions and organizations and institutions by multiple is supported system atar’s protection social A n oncontributory cash transfer system targets vulnerable groups vulnerable targets system transfer cash oncontributory Other Domestic helpers People withdisabilities Family group Single Widowed, separated, Widow andorphans Children withoutparents Elderly Physical andmental Mental handicap Physical handicap Physical andmental Mental disability Physical disability Divorced woman Abandoned wife Prisoner’s wife Widow divorced group handicap disability • • • • • • • • • • Subcomponents organizations s civil by groups vulnerable for programmes protection–related Social like and the institutions family, religious through Support Unemployment benefits corporations forPensions private companies government-linked and servants civil for Pensions orphans) breadwinner, no with families women, widowed example, (for groups vulnerable to transfers cash Noncontributory groups target of empowerment economic for Programmes services and Goods Education Healthcare ociety organizations and charitable and charitable organizations ociety

Domestic help Family Children without parents 100 100 100 Payments madetobene ciaries(%) Payments madetobene ciaries(%) Payments madetobene ciaries(%) 50 50 50 0 0 0 • • • • include: Examples • • • • • • • • • • involved Institutions Qatar Red Crescent Red Qatar Protection Women and Child for Foundation Qatar Centre Rehabilitation Social Social Development Centre Affairs Islamic and Endowment of Ministry CouncilSupreme for Family Affairs Authority Insurance Social and Retirement General Affairs ofSocial Ministry Affairs Islamic and Endowment of Ministry ofLabour Ministry Affairs ofSocial Ministry Council Education Supreme Hamad Corporation Medical Health of Council Supreme Domestic helper Domestic helper Domestic helper Families ofthemissing Prisoners’ families Needy families Unknown parents Unknown father Children inneedy families Children ofprisoners Children ofthemissing Orphans Fatherless allowance—disability allowance—elderly allowance—handicap a h c pter 5

Table 5.2 Various civil society organizations support Qatar’s social protection system

Civil society Funding organization Programmes Key target groups information Social • Income support (cash transfers) • Persons with disabilities, elderly, low • Qatar Development • School fees support and scholarships income Foundation Centre • Support dialysis and kidney treatment • Expatriate low-income students, orphans • Philanthropists • Support fertility treatment • Expatriate kidney patients, Qataris, • Loan repayment support to women expatriate low-income families • Women imprisoned due to debt Social • Treatment and rehabilitation of behaviour • Persons with behavioural disorders • Government Rehabilitation disorders • Youth Centre • Support youth development programmes • Drug addicts in and out of prison (such as Message to All Youth programme) • Second Chance Programme for drug addicts Reach Out to • Adult English literacy programme for low- • Key beneficiaries include Qataris (as per • Sponsors Asia income migrant workers Social Security Law) and expatriates • Ramadan Project to support and assist (low income, women and persons with communities, build capacity of community disabilities) partners, increase understanding of value of • Migrant workers community service Qatar • Psychological treatment and social • Victims of domestic violence, especially • Government Foundation rehabilitation for victims of domestic children and women for Child and violence • Awareness campaigns on human rights and Women’s violence against women and children Protection • Capacity building programmes on violence against women and children

Figure 5.11 Benefits must be regularly reviewed against inflation to maintain annual purchasing power

QR thousands True value of payment in 2006 QR Eroded value of payment due to in ation 30

27,000b 3,316 6,389 5,400 5,571

23,684 21,600 21,429 20 20,611

13,500a 10

0 2005 2006 2007 2008 2009 2010 Consumer price index 100 114 131 125 126c (2006 = 100)

a. Previous cash benefits of QR 1,125 per month. b. Revised cash benefits of QR 2,250 per month. c. Estimated. Source: Consumer price index, estimated from IMF, World Economic Outlook Database (2010).

Social safeguards for a caring society 181 programmes for people with disabilities are need- protection goals and National Development Strat- ed, as are better vocational rehabilitation institu- egy 2011–2016 projects to be accomplished. tions to prepare vulnerable people to be integrated and mainstreamed into the workforce. A committee to coordinate project implementation

Also, there is currently no effective social protec- In support of the multidimensional characteristics tion level measurement system to provide detailed of the social protection system, a multistakeholder and accurate accounting of the needs of the disad- committee will be set up to coordinate the imple- vantaged and vulnerable. A national poverty line mentation of the National Development Strategy to help determine a monetary social protection 2011–2016 social protection projects. Its tasks will floor for Qataris is one solution (table 5.3). include providing policy guidance, making key decisions related to social protection issues and Such evidence-based measurements will provide conducting monitoring and evaluation. The com- more empirical measurements to inform future mittee will lead a cross-sectoral approach to poli- social policy and help identify primary charac- cy-making to ensure that unintended consequenc- teristics of needy households, such as educational es of policies and programmes in other areas of attainment or household size (table 5.4). government can be identified and appropriate responses made. The committee will carry out its Through its commitment to community care and work with an initial target of overseeing the imple- cohesion, Qatar will put in place a better integrat- mentation of social protection projects within ed social protection system by improving the cur- the first three years of the National Development rent structure to address all aspects of social inte- Strategy. gration and to lay the foundation for other social Target Table 5.3 A threshold-relative national poverty line • Establish a functioning multistakeholder com- helps identify those in need, 2006/2007 mittee to oversee and implement nine social protection project projects. Category Incidence (%) Household 9.2 A review and revision of existing social protection laws Individual 12.0 Child (under age 14) 13.7 To ensure progressive improvement towards an Elderly (ages 60 and older) 13.4 effective and sustainable social protection sys- Other individuals 11.0 tem, the government will put in place a systematic mechanism to review and update the wide-ranging

Table 5.4 Evidence shows that low income is a particular problem for larger households—relatively few income earners support many dependents, 2006/2007

Number of people Frequency Incidence Intensity in household (%) Incidence share (%) Intensity share (%) 1–2 4.5 3.3 1.6 0.1 0.3 3–4 12.3 3.9 5.2 0.6 3.5 5–6 28.2 3.1 9.4 0.7 8.9 7–8 26.7 9.4 27.3 2.4 31.4 9 or more 28.2 18.4 56.5 4.1 56.0 All households 100.0 9.2 100.0 2.1 100.0

182 Qatar National Development Strategy 2011–2016 a h c pter 5 set of laws that govern Qatar’s social protection and related stakeholders to better monitor trends system. Revision of Social Security Law 38 of 1995, and patterns among the disadvantaged and vul- for example, will help ensure that benefits are nerable. The key component of this project will aligned with changes in the economy. A monthly be the development of a national poverty thresh- benefit of QR 2,250 received in 2006 has a value old. Adopting a national relative poverty line will of QR 1,786 in 2010, after accounting for inflation. help determine a monetary social protection floor The mechanism will take into account such factors for Qataris and provide a baseline to monitor and as political commitment and domestic resources. evaluate programmes and projects established to support the needy. Currently, the government Target does not have a comprehensive supporting evi- • Adopt a mechanism to review and update social dence base for social protection measurements in protection laws. place.

A plan to ensure social inclusion for people with Target disabilities and the needy • Devise a set of tools that provides evidence- based measurements for income-related statis- The government will identify measures to support tics, such as a relative national poverty line. independent living and the social inclusion of people with disabilities in the community through an Making the workforce and society more expanded network of vocational training institu- inclusive tions and other assistance centres that help support independent lifestyles. This plan will aug- Varying degrees of disability extend throughout ment existing facilities, such as the Qatar Assistive the Qatari population, including children, with Technology Centre (MADA), established in 2010 prevalence rates remaining fairly constant between to improve access to information and communi- ages 10 and 50. About 4% of Qatari households cation technology for people with disabilities. An include a disabled member. But people with dis- expanded network of vocational training institu- abilities often face discrimination, remain less tions will help identify training and occupational educated and have insufficient access to the main- therapy programmes to foster greater independ- stream labour market. In 2008 Qatar ratified the ence among disadvantaged and vulnerable groups. United Nations Convention on the Rights of Per- Such actions support the United Nations Conven- sons with Disabilities and is a participating mem- tion for Persons with Disabilities, ratified in 2008, ber of the committee that monitors its implemen- which promotes independent living and enhanced tation. Although Qatar has made major efforts community inclusion with access to social sup- to promote and protect the rights of people with port services. Further, awareness programmes to disabilities, the government recognizes the need increase community responsibility towards inclu- to do more through stronger advanced job place- sive development will be implemented. ment measures and enforcement of current law.

Target In addition to people with disabilities, other mem- • Increase the number of vocational training and bers of society face special circumstances that occupational therapy and rehabilitation cen- require support from the social protection system, tres from three to at least five. including treated addicts, former prisoners and women in challenging situations, such as divorcées A social protection evidence base and unsupported widows—two groups at high risk of falling into relative poverty. Anecdotal evidence A two-year project will be initiated to strength- suggests that many pensioners also are vulner- en the capacity of the Ministry of Social Affairs able to relative poverty, as a large portion of the

Social safeguards for a caring society 183 elderly are either not in the retirement system or Target do not receive sufficient income to sustain them in • Expand the job-matching database to include retirement. all categories of the disadvantaged and vulnerable. In general, challenges remain in raising awareness of the importance and need for mainstream- An awareness campaign on the importance of work ing disadvantaged and vulnerable people into society and of the value of productive contribu- The awareness campaign will focus on three pri- tions to society. Welfare to work programmes mary clusters: unemployed people, vulnerable and need to be developed together with an aware- disabled people and Qatari society at large. Basic ness-raising campaign to ensure their effective- Islamic principles state that care and respect must ness. This is particularly relevant for Qatar, where be given to the vulnerable and that individuals the younger generation needs to be made aware must proactively contribute to a productive society. of the importance of work and individual contri- So it is critical that the wider Qatari society adhere bution to national aspirations. Evidence suggests to this aspect of national identity. The govern- that many unemployed Qataris, especially women, ment will raise societal awareness about including turn down job offers because they are perceived vulnerable groups in the labour force while pro- to be incompatible with their family lives or per- moting workforce participation among all target sonal expectations. groups. Current available programmes, such as the Productive Families Programme, will be pro- As outlined in QNV 2030, Qatar’s social protection moted, especially among Ministry of Social Affairs system should ensure the civil rights of all citizens beneficiaries. and value and enhance their contribution towards the country’s economic and social development. Target The government will make the workforce and • Instil a more positive social mindset among citi- society more inclusive and ensure that it proactive- zens on the importance of work and different ly addresses the concerns of those most in need types of jobs. through expanded employment opportunities, improved economic empowerment programmes An enhanced economic empowerment programme and a comprehensive pension enhancement plan. Currently, most participants in the Productive A jobs database for the disadvantaged and Families Programme are not beneficiaries of the vulnerable Ministry of Social Affairs. The government will expand this programme (which aids Qatari fami- Stronger partnerships between the Ministry of lies and individuals with job training, support and Social Affairs and the Ministry of Labour will access to markets) to include a wider group of par- help provide targeted groups access to informa- ticipants, primarily targeting current beneficiar- tion on available jobs and positions in the labour ies of the Ministry of Social Affairs and women. market. The planned Labour Market Information For example, recent data show a willing attitude System that is a component of the National Devel- among Qatari women to manage private enterpris- opment Strategy 2011–2016 labour strategy will es catering to other women, such as hair dressing provide a cross-sectoral foundation for this initia- salons, perfume stores and accessories retailers. tive by matching potential employers and the target groups. Based on lessons from other countries, In addition, the Social Development Fund pro- any successful welfare to work programme should posed by the Council of Ministers could provide be based on the principle of improving individual support for this outcome by enabling the oppor- employability. tunity for more Qataris to become self-reliant and

184 Qatar National Development Strategy 2011–2016 a h c pter 5 productive through micro-enterprises, by promot- self-employed people and people in the private ing active and effective partnerships with civil sector. The General Retirement and Social Insur- society organizations and by helping integrate dis- ance Authority is in the early stages of planning advantaged groups into the labour market. an expansion of the pension system to include Qataris working in the private sector, but the gov- Target ernment will conduct a thorough review of the sys- • Increase by 50% the number of participants in tem. Possible options for reform include improved Productive Families Programme from among governance of the existing system and the intro- beneficiaries of the Ministry of Social Affairs duction and testing of voluntary systems or non- benefits system. contributory pensions.

An enabling environment in the workforce for Targets people with disabilities • Expand coverage of the pension system. • Halve the percentage of low-income households. Stronger enforcement of the Qatari law that supports the recruitment of people with disabilities in Extending social responsibility to the the workplace will be instituted. Article 5 of Law 2 business community of 2004 mandates an employment rate for disabled people of at least 2%, but no current moni- The role of the private sector in social protec- toring or enforcement system ensures that this tar- tion is growing as businesses increasingly recog- get is being met. Given that Qatar has ratified the nize that corporate responsibility extends beyond United Nations Convention on the Rights of Per- the workplace. Business decisions have both posi- sons with Disabilities, the government is obligat- tive and negative impacts on people’s welfare and ed to follow through on recommendations made. well-being. As corporate social responsibility gains With a quota system already adopted, the National momentum globally, Gulf countries such as Egypt Development Strategy 2011–2016 provides a plat- and Saudi Arabia have taken steps to institution- form for enhanced enforcement. Reform meas- alize corporate responsibility through legislation ures could include enacting a quota-levy system, and institutions that govern business activities. whereby a levy is imposed on companies that do not meet the quota. Countries that have enforced Corporations within Qatar, especially in the energy legislated levies have more success in integrating sector, are initiating corporate social responsibility persons with disabilities into the workforce. programmes and projects, and some have already started to align their corporate strategy with QNV Target 2030. The government will extend social respon- • Enforce the active workforce quota of 2% for sibility to the business community by broadening persons with disabilities. participation of the private sector in the social protection system and by creating a corporate respon- A comprehensive pension enhancement plan sibility framework that will formalize an enabling environment for the private sector to further con- The core objectives of a pension system will be tribute to the well-being of Qatari society. to provide protection against poverty in old age and to ensure a smooth transition from work to A framework to develop stronger partnerships retirement. Currently, Qatar’s formal pension system, which covers public sector and government- This framework will formalize an enabling envi- owned company employees, lacks a cost-of-living ronment for the private sector to further contrib- adjustment, so pension incomes do not keep pace ute to the well-being of Qatari society through with inflation. And the system does not cover various instruments and interventions, including

Social safeguards for a caring society 185 awareness raising (creating alignment among An effective social protection system will not only stakeholders), partnering efforts (bringing public guarantee the well-being of Qataris, it is also a pre- and private sectors together), application of soft condition to the effective functioning of the coun- laws (nonregulatory promotion of measures) and try’s labour market, where distortions are likely mandates (establishing minimum standards for to occur, jeopardizing the country’s stability and responsible behaviour). A six-step model can be economy, if certain categories of workers are not applied to guide the process (figure 5.12). protected. This concept is also a prominent fea- ture in the subsequent sector strategy concerning Target public safety and security. • Implement a corporate responsibility framework suited to the country’s economic, politi- The social protection sector of the National Devel- cal and social context, including a monitoring opment Strategy 2011–2016 will play a key role in system. meeting the goals of the social development pillar by enhancing Qatar’s sound social structure and Fostering cross-sectoral links by contributing to the country’s social care and protection. But given the influence that communi- Social dialogue between the government and all ty care and career support initiatives can also have stakeholders—including individual ministries, on economic, environmental and human develop- agencies, civil society organizations and the pri- ment policies, a number of cross-sectoral links can vate sector—is essential to progressively develop- be identified that demonstrate how social protec- ing a national social protection strategy in order tion is both a goal of, and an enabler of, QNV 2030 to ensure a balanced and sustainable approach. (figure 5.13).

Figure 5.12 A six-step model to guide the development of Qatar’s corporate responsibility policy framework

Brief description Supporting Qatar’s corporate responsibility

Understanding corporate Corporate responsibility policy should take into account National Development Strategy 2011–2016 sector strategies responsibility–relevant context economic, political and social factors of the country provide the economic, political and social context of corporate responsibility policy

Clear de nition of corporate responsibility required in both local Current corporate responsibility activities, especially in energy De ning corporate context, as well as in line with what end goal is expected by sector, help inform understanding responsibility government of companies’ contribution Aims and objectives of social responsibility as de ned by Social Protection Task Team

Important to consider overall placement As a starting point, the proposed central social protection committee, Situating corporate Corporate responsibility competency (lead entity) led by the Ministry of Social Affairs to drive corporate responsibility responsibility within Integration of stakeholders Engagement of multiple stakeholder in National Development Strategy government structure preparation and Social Protection Task Team

Government should de ne the rationale behind the corporate The National Development Strategy 2011–2016 sector strategies De ning corporate responsibility policy framework provide the rationale for the corporate responsibility policy framework responsibility public policy Rationale could focus on poverty reduction or integration into rationale the broader global economy

Need to clearly align on which types of mechanisms and Expected output of the National Development Strategy 2011–2016 Identifying types of policy initiatives (for example, awareness, soft law, mandating) are most social protection sector strategy intervention effective in tackling the issues and delivering on the rationale

Monitor and assess impact of interventions against goals Expected output of the National Development Strategy 2011–2016 Monitoring and impact Results from monitoring should be used to de ne strategy or social protection sector strategy, tied in to the overall National directional updates Development Strategy monitoring and evaluation framework assessment

186 Qatar National Development Strategy 2011–2016 Figure 5.13 Social protection is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for social protection

Ensure access to education, particularly for the vulnerable Promote social and people with disabilities; responsibility; support provide a curriculum that corporate responsibility enhances social values Environmental Education and sustainability training

Manage the economy to Provide comprehensive support changes that Economic Social Healthcare healthcare, especially affect the standard and management protection for vulnerable groups quality of life

Population, labour Institutional force and Qatari Develop effective institutions to development employment Provide career support for the support sound social structure vulnerable; employment of people with that includes government, civil disabilities; women’s economic society organizations and the participation; youth and unemployment private sector

Goal Enabler

Social protection as an enabler for other sectors

Promote social Promote good social responsibility values through the community care pillar Environmental Education and sustainability training

Create an enabling Promote a healthy environment for inclusive Economic Social lifestyle among development and support a management protection Healthcare families secure and stable society

Population, labour Institutional force and Qatari Strengthen governance, development employment Support effective participation with the Ministry of Social of the vulnerable, including Affairs as a key institution people with disabilities, in the for social protection labour force

187 Public protection for a stable society

“Qatar will seek to build a safe, secure and stable soci- are safe and secure in their communities. It moves ety based on effective institutions.”—Qatar National away from the traditional security concept to one Vision 2030 that embraces the concept of human security and expands the scope of protection to include a The process of providing a social development broader range of threats, including risk reduction pathway for the well-being of all Qataris has been from natural and non-natural disasters. identified thus far through objectives targeting improvement on a personal or individual level— Qatar will fulfil its commitment to human secu- family cohesion, career support, community wel- rity and to fulfilling the national vision through fare and women’s empowerment. But just as Qatar five overarching outcomes and five priority public has a duty to provide its citizens with a secure and safety and security projects in which the govern- stable society based on strong families and per- ment will: sonal safety, Qatar has a duty to provide its cit- • Improve knowledge management of criminal izens with a secure and stable society based on information and data. effective public institutions and public safety. A • Reduce the number of road traffic accidents society that offers its people safety and security in resulting in deaths and major injuries. a respectful and dignified way and that demon- • Strengthen the national approach to occupa- strates a duty to care for its citizens is a society tional health and safety. that operates on the principles of justice, equality • Improve building safety, including regular and the rule of law. monitoring of regulations. • Establish a high-level coordinated approach to Qatar is committed to sustainable development national disaster management. where there is harmony among economic, human and social development and environmental pro- These public safety and security outcomes reflect tection. In an urban environment such as Qatar’s, priority issues where timely action is essential and any sustainable policy should be accompanied by multiagency integration is required. They serve a policies that promote safety and security to sup- common purpose of enhancing the well-being of port planning and development, making Qatar an all citizens, and they will aid Qatar in building a attractive place to live. sound social structure supported by effective institutions that operate under justice, equality and Qatar’s recorded crime rates are among the world’s the rule of law. lowest, despite a massive increase in the country’s expatriate population. In 2010 Qatar ranked first Improving crime management within the Arab region, and 15th globally out of 149 countries, on the Global Peace Index (GPI) Qatar’s recorded crime rates are exceedingly low. of the Institute for Economic and Peace. The GPI Qatar’s robbery and motor vehicle theft rates takes into account 24 indicators, including several are the lowest among Gulf Cooperation Council related to public safety and security, as well as fac- countries. tors in the country’s external relations. Not surprising, given the large increase in the The Public Safety and Security sector of the number of expatriates, there has been an increase National Development Strategy 2011–2016 social in immigration and residency violations. Leaving development pillar plays a key role in enhancing immigration and residence violations aside, crimes and improving the quality of life and well-being “against the human body” and “drugs and drinks” of all citizens, particularly in ensuring that people constitute the largest share of crimes (table 5.5).

188 Qatar National Development Strategy 2011–2016 a h c pter 5

Table 5.5 Crime has been relatively stable over time, but violations in immigration laws have increased markedly

Overseas Security Advisory Supreme Judiciary Ministry of Interior Council Council Type of crime 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 Committed by public servants 68 73 46 40 49 35 70 114 29 Against human body 151 148 11 94 118 60 957 1,278 798 Sexual and moral crimes 218 208 356 396 264 131 147 173 113 Against others’ money or property 263 192 142 180 225 168 130 70 — 3,976 Drugs and drinks 416 397 440 431 320 205 1,026 994 669 Against public trust 1,000 727 547 632 879 808 96 206 336 Subtotal 2,116 1,745 1,542 1,773 1,855 1,407 2,426 2,835 1,945 Immigration/residence violations 192 153 127 136 44 62 9,222 6,882 8,164 Total 2,308 1,898 1,669 1,909 1,899 1,469 3,976 11,648 9,717 10,109

— not available. Note: Excludes traffic violations. Data refer to criminal court cases, not police-recorded crimes. Source: Overseas Security Advisory Council, Qatar 2010 Crime and Safety Report (2010).

When immigration and residency violations are citizens may sometimes prefer handling incidents excluded, crime totals show a more even pattern at a family level. for 2007–2009. The recording of crime data needs to conform to Compared with global levels, Qatar consistently has international standards that specify detailed cross- much less of all major types of crime (table 5.6). The classifications. This entails, for example, clear cate- low rates of crime and high levels of public security gorization of recorded crime by suspect, victim and reflect in particular the country’s sociopolitical sta- type. To further enhance the effectiveness of the bility coupled with its effective security services. criminal information system, routine crime data could be systematically shared across government Low national crime rates in some categories, how- ministries and agencies. To maximize public safety ever, may reflect in part Qataris’ unwillingness, and security efforts, the government will improve especially among women, to report certain inci- its criminal knowledge management system dents to law enforcement officials. Further, in a through a centralized database to eliminate gaps society where the family unit is paramount to its and enhance policing procedures. A knowledge- structure, such as in Qatar and other Gulf States, sharing committee will guide its development.

Table 5.6 Qatar’s crime rates are well below global average levels (incidence per 100,000 people)

Type of crime 2007 2008 2009 Global average Intentional homicide 2.0 0.5 0.4 6 Assault 1.6 3.8 1.7 100 Rape 1.6 0.9 1.7 25 Kidnapping 0.3 0.6 0.7 25 Robbery 86.0 25.0 11.0 100 Arson 0.9 0.3 0.1 25

Source: United Nations Surveys of Crime Trends and Operations of Criminal Justice Systems (2009).

Public protection for a stable society 189 A criminal knowledge management system Improving road traffic safety

This integrated system will eliminate data and Road safety has been given high priority for some information gaps, enable identification of emerg- years in Qatar through extensive safety and aware- ing trends, strengthen policing efforts, reduce the ness campaigns and more aggressive law enforce- time taken to prepare files for court and expedite ment, which over the last three years has helped case resolution. It will enable court administrators, reduce fatalities to their lowest mark in two dec- criminologists and others in law enforcement to ades. But road accidents involving at least one adjust operations and strategies based on accurate, vehicle and resulting in damage and injury have timely and up-to-the-minute crime information. been increasing for the last five years (figure Specifically, the new management system will: 5.14) as population growth has led to more con- • Establish a knowledge-sharing group. gested roads. While the 2008 fatality rate of 15.9 • Standardize crime definitions and classifications. deaths per 100,000 people is a fair national result • Develop a centralized crime statistics database. for Qatar, it is still markedly higher than the aver- • Establish training programmes for criminal age for high-income countries (table 5.7). Qatar’s justice agencies and staff. pedestrian death rate (32% of all fatalities) has remained steady over five years but is still very An open-door policy for users will be essential to high by international standards. the success of the system; an accessible system will enable more frequent cross-agency and interna- The main causes of road accidents have remained tional collaboration, leading to better outcomes much the same over time, with reckless driving, for those in the criminal information system and crossing the median strip, insufficient distance to a safer society. and lane changing errors (at roundabouts and on higher speed roads) responsible for more than The government will create a central coordinating 90% of accidents. Pedestrian fatalities and acci- body for criminal intelligence and information to dents are of particular concern in Qatar, with 32% administer the system and ensure that strict privacy of casualties being pedestrians, compared with a is maintained, that confidentiality and other safe- worldwide average of 17%. These pedestrian acci- guards are in place and that consistent regulations dents are closely related to the number of safe are applied to the treatment of classified materials. crossing points; more needs to be done to reduce The system will be preceded by legislation and writ- the likelihood of road trauma for pedestrians and ten guidance on the gathering, storage, analysis drivers alike (table 5.8). and dissemination of criminal intelligence or information by or for the purposes of law enforcement. The number of heavy vehicles using roads has also increased, causing additional safety issues due to The management system will be the first step towards either insufficient oversight or ignored laws (a lack a holistic approach that encompasses a one-stop of dedicated truck routes, overloaded vehicles, shop for police, prosecution, defence lawyers, courts exceeded size restrictions, illegal parking in resi- and correctional facilities, all of which currently have dential neighbourhoods and the like). Until further individual, nonintegrated information management public bus routes are opened or other public trans- systems. This future holistic system will, in turn, be port options come into effect, traffic congestion the forerunner to an eventual e-justice platform. will continue to increase if additional capacity is not added to the road network or if vehicles are not Target taken off the road. The government will improve • Have in place a comprehensive criminal knowl- road traffic safety with a safe-system approach that edge management system based on interna- will reduce risk behaviour, improve pedestrian safe- tional standards. ty, enhance roads and strengthen law enforcement.

190 Qatar National Development Strategy 2011–2016 a h c pter 5

Figure 5.14 Road accidents involving at least one vehicle and resulting in damage and injury have been increasing since 2003

Number of accidents Deaths Major injury Minor injury Exponential annual growth 5,000 rate, 2002–2008

230 +12% 570 4,000

3,795 +4%

3,000 +23% 199 518

2,000 270 2,011 206 114 164 462 150 455 452 313 410 1,000 1,171 966 1,058 1,054 881

0 2002 2003 2004 2005 2006 2007 2008

Table 5.7 Qatar’s road traffic injury fatality rate is markedly higher than the average for high-income countries (deaths per 100,000 people, 2008)

Eastern Mediterranean region World Qatar High income 28.5 10.3 15.9 Middle income 35.8 19.5 na Low income 27.5 21.5 na Total 32.2 18.8 15.9

na is not applicable. Source: WHO, Global Status Report on Road Safety: Time for Action (2009).

Table 5.8 Slightly more than a third of Qatar’s traffic fatalities in 2008 involved pedestrians

Age group Drivers Passengers Pedestrians Total 0–1 0 0 0 0 1–9 0 0 1 1 10–19 10 4 3 17 20–29 36 4 4 44 30–39 21 15 14 50 40–49 13 19 20 52 50–59 8 14 21 43 60–69 3 8 11 22 Not stated 0 1 0 1 Total 91 65 74 230

Public protection for a stable society 191 A safe-system approach to road traffic safety Strengthening occupational health and safety The National Development Strategy 2011–2016 will reduce traffic accidents and improve safe- Just as residents of Qatar should be protected with ty through a comprehensive strategy of intra measures that guarantee their safety while driving, governmental cooperation, raised awareness, biking or walking, Qatar workers should feel safe improved safety measures and stronger laws that and secure while in the workplace. The National accomplish several basic, necessary objectives: Development Strategy 2011–2016 provides the gov- • Reducing risk-based behaviour. ernment an opportunity to strengthen the occupa- • Instilling courteous driving behaviour. tional health and safety of workers—by protecting • Improving the safety of pedestrians. employees from potential work-induced disease, • Better protecting children and young people injury or death—and to better address the dangers who are greatly overrepresented in casualty associated with risky jobs. Noncompliance with statistics. health and safety measures can negatively affect • Facilitating intergovernmental cooperation the economic and social development of Qatar in traffic safety, particularly in urban plan- through direct losses in physical resources, employ- ning, municipality management, traffic polic- ee productivity and reputational damage. The gov- ing, public works design and construction and ernment will look to mitigate those impacts. education. According to the Ministry of Labour, 22 work- The safe-system approach makes better use of related deaths and 173 injuries were reported police resources (and adds extra capacity where in Qatar in 2008 and 2009. The Supreme Coun- required) to reduce motorist risk through bet- cil of Health regularly and randomly visits more ter enforcement of speed limits, seatbelt laws, than 500 worksites and workplaces annually, but mobile phone bans while driving. The govern- the country’s labour law does not impose specif- ment will identify and target the roads most in ic industry standards and excludes casual and need of upgrade and ensure that roads are well domestic workers from its scope. Further, Qatar’s lit and sufficiently signed. An address system industrial mix is dominated by heavy industries, based on GIS Qatar Mapping will be studied to such as oil and gas, metals manufacturing and minimize driver distraction while searching for construction. These sectors typically present a locations. The system will also be used to cat- more dangerous or riskier work environment than egorize roads as major, secondary or local and other sectors and require a strict and comprehen- to identify problem areas in order to improve sive safety framework. The National Development future planning. Strategy 2011–2016 will build on recent efforts to improve workplace safety by strengthening stand- The safety strategy will also analyse and study the ards as part of a new governance system. number of stop signs, traffic lights, road mark- ings, road shoulders and footpaths, vehicle safe- A national occupational safety and health ty regulations, provisions for pedestrians and governance system cyclists, driver licensing systems, driver training procedures and punishment standards for To harmonize and unify workplace regulations violations. and practices, Qatar’s Council of Ministers has approved in principle the establishment of the Target National Occupational Safety and Health Com- • Reduce the annual number of road accidents mittee, to be composed of representatives from from 300 per 100,000 people to 250 and relat- across government ministries and the oil and gas ed fatalities from 14 per 100,000 people to 10. sector. This committee is the first step towards a

192 Qatar National Development Strategy 2011–2016 a h c pter 5 national set of laws, regulations and standards completion by 2016. More experienced person- on occupational health and safety. The regula- nel are needed and more government authorities tions will be specific and strict and will include should have a role in supervising the building pro- all sectors and workers in the country. The gov- cess and in issuing permits in order to strength- ernance system will create a centralized interac- en the institutional knowledge gap and improve tive database of incidents, accidents and diseases building safety. Of central concern are fire-relat- and require mandatory reporting of all workplace ed accidents, which peaked during the 2007–2008 incidents and accidents. The government will also construction boom and remain a primary cause of strengthen laws to better enable the legal enforce- building accidents (figure 5.15). ment of regulations and to ensure that all line managers in key sectors are held responsible for A national building safety strategy accidents and are punishable for neglect. This strategy will begin with a comprehensive Target review to determine common causes of construc- • Establish a national set of regulations, laws, tion site fatalities over the last five years and to and standards on occupational health and safe- examine which government agencies are best posi- ty for all sectors. tioned to help reduce future accidents. A national committee for fire prevention will be established Enhancing building safety standards to lead several initiatives aimed at reducing the prevalence of fires, beginning with stronger stand- Concurrently, the government will better regu- ards to regulate appliances and equipment, instal- late the safety architecture of Qatar’s construction lation and maintenance of electrical systems, and sector, which also continues to flourish. The glob- certification for technicians. Procedural guides al financial crisis has somewhat slowed the pace will offer instructions for working with voltage of building in Qatar, but projections show more lines and underground cables and for establishing than 120 major construction projects targeted for escape and rescue operations.

Figure 5.15 Fire-related accidents peaked in 2008 during the construction boom

Incidents of re 1,200

1,089

994 900 922

652 600 623 585 560 550 521

300

0 2001 2002 2003 2004 2005 2006 2007 2008 2009

Public protection for a stable society 193 Other sectors as enablers for public safety and security In addition to stronger fire-related regulations, measures in the event of any situation that disrupts the safety strategy will include capacity building normal socioeconomic activities. and enhancement components for the Ministry of Establish regulations to Support promotion and awareness of Labour’s Work Inspection Organ, which will be A coordinated disaster management policy reduce environmental issues related to public safety and hazards security strengthened with more health and safety inspec- Environmental Education and tors. These inspectors will be empowered to issue The National Policy on Disaster Management will sustainability training fines, conduct follow-up audits and recommend develop a framework for sustainable efforts towards revoking operating licences in the event of multi- a unified plan for all stages of a national disaster— ple safety violations. In addition to safety inspec- prevention, preparedness, response and recovery. tors, trained officers must enforce the law through The framework will support a holistic and integrat- Ensure safety of public Ensure sound economic infrastructure; work together to routine and random checks. Tougher penalties ed approach to include quantitative elements such reduce impact of trafﬁc accidents; management towards a Economic Public safety Healthcare secure and stable society management and security improve worker safety and building will be considered, including lengthier imprison- as research and development and will ensure that safety to reduce strain on the ment where fatalities occur. disaster risk reduction policies are included in soci- health sector oeconomic planning and programmes. Civil soci- Targets ety participation in creating the policy will involve • Create a comprehensive approach to building local communities, raising awareness on the impor- safety, and halve the number of fire accidents. tance of disaster management and risk reduction. Population, labour Institutional force and Qatari Develop effective institutions to development employment Improve worker safety; recruit support a sound social structure the right mix of expatriate Coordinating national emergency Target that includes government, civil labour preparedness • Establish a national policy on disaster manage- society organizations and the ment. private sector In most instances the development outcomes for the National Development Strategy 2011–2016 Fostering cross-sectoral links involve improved results for the directly tangible aspects of everyday life—family support, career The government recognizes the imperative need to Goal Enabler training, police protection. But a critical compo- promote safety and security within Qatar’s urban nent of establishing a secure and stable society environment, which is undergoing rapid change Public safety and security as an enabler for other sectors for current and future generations is also consid- due to robust economic development and socioec- eration of how to best ensure long-term human onomic shifts. These and other factors, including protection. globalization and increased use of digital technolo- Improve child well-being through protection from domestic violence; gy, will make public safety and security an ongoing Coordinate response to awareness of security issues, such as Although Qatar may be at low risk of natural dis- challenge in the years ahead. To best make citizens environmental hazards Environmental Education and cyber crimes asters, such as earthquakes, tornadoes and hurri- feel secure in their communities, which include sustainability training canes, it remains exposed to medical and health both home and the workplace, efforts must include hazards and its own extreme climate conditions. multiple stakeholders across all social sectors. Furthermore, Qatar’s location, its natural resourc- Support changes to public es and its industrial sector puts the country at risk. The public safety and security sector will be key in Create an enabling safety, especially occupational environment for economic The Permanent Emergency Committee, consisting meeting the goals of the social development pillar Economic Public safety safety and health, and provide growth through a secure and management and security Healthcare emergency services trafﬁc of representatives from 17 Qatari organizations, by enhancing Qatar’s sound social structure and stable society accidents has been in operation since 1998 to deal with emer- by contributing to the country’s social care and gency threats, but a more coordinated approach to protection. But given the influence that issues such disasters will reduce the potential human, social, as crime prevention, law enforcement and occupa- economic and environmental impact that would tional safety can also have on economic, environ- Population, labour result in extended societal disruptions. In order to mental and human development policies, several Institutional force and Qatari Strengthen governance, with the development employment Respond to impact of ensure the long-term social development and sta- cross-sectoral links can be identified that demon- Ministry of Interior as a key institution changing socioeconomic bility as envisioned in QNV 2030, the government strate how public safety and security is both a goal for public safety and security conditions will coordinate national emergency preparedness of, and an enabler of, QNV 2030 (figure 5.16).

194 Qatar National Development Strategy 2011–2016 Figure 5.16 Public safety and security are both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for public safety and security

Establish regulations to Support promotion and awareness of reduce environmental issues related to public safety and hazards security Environmental Education and sustainability training

Ensure safety of public Ensure sound economic infrastructure; work together to reduce impact of trafﬁc accidents; management towards a Economic Public safety Healthcare secure and stable society management and security improve worker safety and building safety to reduce strain on the health sector

Population, labour Institutional force and Qatari Develop effective institutions to development employment Improve worker safety; recruit support a sound social structure the right mix of expatriate that includes government, civil labour society organizations and the private sector

Goal Enabler

Public safety and security as an enabler for other sectors

Improve child well-being through protection from domestic violence; Coordinate response to awareness of security issues, such as environmental hazards Environmental Education and cyber crimes sustainability training

Support changes to public Create an enabling safety, especially occupational environment for economic Economic Public safety safety and health, and provide growth through a secure and management and security Healthcare emergency services trafﬁc stable society accidents

Population, labour Institutional force and Qatari Strengthen governance, with the development employment Respond to impact of Ministry of Interior as a key institution changing socioeconomic for public safety and security conditions

195 Sports as inspiration for an active and healthy society

Qatar will “develop a spirit of tolerance, constructive dia- the common sporting principles of teamwork, fair- logue and openness towards others at the national and ness and aspirational excellence. international levels”.—Qatar National Vision 2030 In January 2011 Qatar successfully hosted the cov- Qatar aspires to build a safe, secure and stable eted Asian Football Confederation’s Asian Cup. society and firmly commits to creating a vibrant Qatar’s winning bid to host the FIFA World Cup and prosperous future for the country. Fulfill- 2022 will support not only the achievement of ing that vision begins with strengthening fami- development programmes and projects in other lies and ensuring that all citizens are protected sectors, but also the enhancement of social devel- in their homes, jobs and communities. Next is opment in general and sports in particular. Host- to ensure long-term excellence beyond the essen- ing regional and international sporting events tials of family and finances by enhancing the encourages greater Qatari participation and inter- physical, emotional and intellectual well-being est in sports and enhances the nation’s regional of society through sports and culture. Physi- and international image in promoting cultural cal activity occupies a central role in enriching and sporting interchange. lives, with participation in sports being a source of health and enjoyment for those who join as The sports sector of the National Develop- players, volunteers, coaches, observers, officials ment Strategy 2011–2016 social development pil- or administrators. It is often a binding element lar, therefore, plays a key role in enhancing and in the social and cultural fabric of society, at the improving the quality of life and well-being of all community level as well as on the international citizens by providing the necessary foundation for stage. active lifestyles and athletic development. Qatar will advance its sports policy through three over- Qatar has enjoyed unprecedented global recogni- arching outcomes and five priority sports projects tion in sports in recent years. Qatar invests heav- in which the government will: ily through the Qatar Olympic Committee and its • Educate and engage the public on the impor- partner clubs, sports federations and other stra- tance of healthy and active living and increase tegic allies to provide sports and recreation facil- opportunities for people of all ages and abili- ities, develop athletes, host international com- ties to participate in physical activity. petitions and raise awareness of the benefits of • Ensure adequate, appropriate and accessible sports and physical activity. Qatar will continue to sports and recreation facilities. emphasize sports, especially to meet the challeng- • Increase sports talent and enhance talent devel- es presented by a growing population undergoing opment and athlete sponsorship programmes significant cultural change. Qatar is committed for improved sporting success. to increasing sports participation and active lifestyle practices among its population to improve A sound management framework for sports devel- health outcomes and to forge global friendships opment is essential for building a modern and and improve relations with countries around the progressive state. Cross-sectoral alliances are also world. essential for maximizing the benefits that a physically fit and athletic society will yield. A coordi- By developing an array of first-class sports facilities nated interagency approach that gives public and and continuing to host regional and international private agencies a shared responsibility in sports competitions and events, Qatar will be well posi- development will yield great success, as will aware- tioned to meet QNV 2030’s goal of a spirit of toler- ness of the need for a knowledge-based approach ance, constructive dialogue and openness through to capacity building for both officials and coaches.

196 Qatar National Development Strategy 2011–2016 a h c pter 5 Promoting healthy and active living involved an audit of teaching and learning quality, through sports followed by a comprehensive needs analysis. A new physical education framework was subsequently Sports is a powerful tool for building a healthy implemented. Physical education is now compul- and cohesive society. Being physically active pro- sory in all schools from kindergarten through year vides people with a range of physical, social and 12. A strategic plan for improving the quality of mental health benefits. In particular, children and physical education taught in schools was also pre- young people can gain more from physical activity pared in order to address the challenges faced by than just improved physical health. Involvement in policy-makers, school leaders, teachers and par- sports from an early age helps build character and ents in promoting sports among Qatari youth. discipline in children that can be applied in other aspects of their lives. Qatar has a growing, young Women play a critical role in promoting healthy and increasingly affluent population with ample lifestyles through their influence on their children’s leisure time, but participation in sports and phys- health and well-being. Concerned about the fitness ical activity is low. Chronic diseases are a major and health of Qatari women and how this affects cause of death, accounting for 49% of classified their children, in 2009 the Qatar Olympic Com- deaths in 2008 (figure 5.17). The primary drivers mittee initiated an in-depth study on their partici- for the chronic disease burden are inactivity and pation in sports and physical activities. The study sedentary lifestyles, which pose an increasingly found that just 15% of Qatari women ages 15 and serious health risk for individuals and families. older regularly participated in sports (figure 5.18).

In 2007 the Supreme Education Council under- To improve the overall health of the population, took a major review of the national physical educa- there must be a mutual commitment between tion curriculum and related activities in independ- the state and its citizens to appropriately modify ent schools and community centres. This review lifestyles. There must also be a commitment for

Figure 5.17 Lifestyle change through sports education and awareness is key for a healthier population

Cause-speciﬁc death rate A number of worrying population trends % are evident 100 Cardiovascular diseases High caloric intake Cancer • 39% of adults are overweight Respiratory system • 32% of adults are obese or morbidly obese Endocrine (diabetes, etc.) 75 Digestive system Injuries Smoking Congenital malformations • 37% of male adults smoke Genitourinary system • 22% of male youths smoke Perinatal related 50 Ill-de ned causes Other Sedentary lifestyle • Over 50% of population do not engage in regular physical activity 25 Health illiteracy • Limited knowledge of health issues • Limited awareness of management of diseases 0 1997 2000 2002 2004 2006 2008 Note: Changes in disease classification in 2002 resulted in the ill-defined category growing at the expense of the cardiovascular and cancer categories. Chronic diseases include cardiovascular, endocrine (such as diabetes) and respiratory diseases as well as cancer.

Sports as inspiration for an active and healthy society 197 Figure 5.18 Social and community influences limit Qatari women’s participation in sports

Regularity of participation in sport and physical activity of Qatari women ages 15 and older, 2009 Factors inhibiting participation of Qatari women Regularity of participation Distribution (%) Sociocultural constraints Regularly 15 • Social codes and traditions and family requirements Sometimes 36 • Time constraints and family responsibilities Seldom 32 Never 17 Access constraints Number of responses 959 • Availability and appropriateness of facilities and programmes Type of sport that Qatari women ages 15 • Lack of information and guidance and older participate in, 2009 Type of activity Distribution (%) Physiological constraints Walking 58 • Physical weakness and health status Running 12 • Old age Aerobic exercise 14 Swimming 6 Interpersonal constraints Other 10 • Lack of interest and motivation Number of responses 959 • Lack of networks and supportive environments all sectors of the government to work in unison Curriculum guidelines will be developed to inte- to promote healthy and active living to the pub- grate co-curricular activities and intended health lic by incorporating sports and physical activity outcomes and will include suggestions for more into a broader preventive health agenda. A series effectively managing physical education proof activities will be implemented to champion the grammes in schools. Examples could include well- many benefits of active lifestyles to individuals, being teams to develop a positive school culture or families and communities and to increase sports the appointment of student leaders as sports and participation across all age groups and segments recreation coordinators. In addition, guidelines of society, including those with special needs. The will be created to focus on activities for students physical education curricula in schools will be with physical or learning disabilities. For teach- strengthened to improve the learning experience ers, professional development opportunities will of students and to ensure teacher quality. be offered to improve skills, and a teacher certification programme will be implemented to ensure More youth programmes to encourage that all teachers are properly prepared. In order participation in sports to review the overall strengths and weaknesses of a school’s curricula and to ensure that it aligns with Given that the school community has a unique role national standards, the government will develop a in promoting diverse physical activity opportuni- monitoring and evaluation system. And a review of ties for young people, a national sports curriculum school sports facilities and equipment will ensure project will be implemented to improve the physi- that all schools have the sufficient infrastructure to cal education learning experiences of students and support physical education needs. to ensure they are receiving proper guidance from well trained teachers. The activities within the pro- Targets ject will complement the ongoing efforts by the • Develop curriculum support materials, includ- Supreme Education Council to improve the quality ing physical education guidelines for students of physical education in schools. with disabilities.

198 Qatar National Development Strategy 2011–2016 a h c pter 5 • Ensure that all physical education teachers are clinical conditions such as obesity and diabetes. certified. The design, implementation and evaluation of the Active Qatar campaign, as well as the prioritization Healthy and active lifestyle interventions of resource allocation, should be guided by and integrated with the participation survey. To champion the many benefits of sports and to increase participation across all age groups, a Targets healthy and active lifestyle project will be imple- • Collect baseline information on society’s sports mented based on two key components: a sports behaviour. participation survey and the Active Qatar cam- • Increase participation in sports and physical paign. The participation survey will collect infor- activity by Qatari men, women and children. mation on the frequency, duration, nature and type of physical activities that individuals under- Equipping the country with accessible take. These data will provide an evidence base on sports facilities which to develop informed policies that increase community participation in sports and physical For people to engage effectively in sports and phys- activity and that enable the government to set tar- ical activities, Qatar must ensure adequate access gets for sports participation. to sports and recreation facilities that provide an enriching learning environment. As sports par- The Active Qatar campaign will be carried out to ticipation increases, more facilities must be made educate and engage the public on the importance available so that everyone can easily take part in of healthy and active living. Given that participa- physical activity, anytime and anywhere. tion levels are low across the entire population, the campaign will initially promote active lifestyles for A national infrastructure-building programme has everyone. This first stage will be followed by tar- been in place since 2004 to provide more compe- geted campaigns for priority groups whose level tition fields, neighbourhood playgrounds and cul- of activity is very low or who have a higher risk tural centres. Sports infrastructure owned by the of inactivity-related diseases, such as people with Qatar Olympic Committee and ASPIRE consists disabilities, women, the elderly and people with of various facilities around the country (table 5.9).

Table 5.9 Sports infrastructure owned by the Qatar Olympic Committee and ASPIRE consists of various facilities around the country

Total Total Facility 2008 2010 Facility 2008 2010 Sports stadium 10 12 Horse racetrack 1 1 Football playground 71 90 Car racing track 3 3 Swimming pool 18 18 Indoor bicycle track 0 0 Indoor hall 32 35 Equestrian field 4 4 Basketball court 8 9 Shooting gallery 11 11 Volleyball court 8 11 Table tennis hall 20 20 Handball court 11 12 Tennis court 23 23 Billiards hall 11 11 Squash court 21 23 Chess hall 3 3 Hockey field 3 3 Athletic field/track 12 13 Golf course 1 1 Camel racetrack 0 0 Sailing club 1 1

Sports as inspiration for an active and healthy society 199 These facilities, except for facilities at schools under specified times, with caveats on insurance cover- the purview of the Supreme Education Council, age and fees. are open for use by the general public, with various degrees of access, and are occasionally used for Target multipurpose events, such as concerts and plays. • Complete a national sports and recreation facilities master plan, including a database of Countries wishing to develop effective sports infra- all sports and recreation facilities in Qatar. structure also face the pressure of finding enough land near residential zones and easily accessible to Propelling the country to sporting spectators and athletes alike. This problem is exac- excellence erbated in Qatar by its rapid population growth and increasing urbanization. While the country’s Modern, accessible and appropriate sporting facili- major sports venues are located in populated areas, ties are crucial to the long-term investment Qatar restrictions on use and access, as well as incomplete is making in developing a society that is both physi- information, are limiting the demand and poten- cally fit and nurturing of elite competitors. Sports tial of sports development among the general pub- excellence is integral for generating interest in lic. Additionally, urbanization pressures are increas- sports and building national pride. A key challenge ing competition for land and boosting land prices. for Qatar is to improve the performance of Qatari sportsmen and sportswomen at regional and inter- The government will equip Qatar with adequate national championships. National sporting heroes and accessible sports facilities by developing a can inspire Qatari youth to participate in sporting national sports and recreation facilities master activities and motivate them to adopt a healthy and plan to systematically collect and analyse data nec- productive lifestyle in pursuit of their dreams. essary to develop a network of accessible, high- quality open spaces and recreational facilities. In 2006 Qatar hosted the Asian Games, the premier multisport continental-level competition in which A cohesive plan for developing sports facilities Qatar participates. Long before then, however, Qatar’s youth had demonstrated their excellence rel- A national sports and recreation facilities master ative to other Gulf countries. While Kuwait was the plan will be implemented to identify integrated first Gulf Cooperation Council country to win a gold policies for the development and land use in sup- medal at the 1982 Asian Games, Qatar has proven to port of sports and active recreation. The govern- be the most consistent and successful (figure 5.19). ment will undertake an audit of current facilities to analyse supply against present and projected Qatar’s growth at the Olympic level is further evi- future demands. The plan will also include spatial dence of the country’s growth as a global sports maps to show the locations of current and future competitor. After sending a team of 17 athletes to sports stadiums and competitive venues as well the 1984 Los Angeles Olympics, Qatar’s first, the as dedicated areas for casual recreational activi- country boasted a delegation of 31 athletes just ties. Through systematic collection and analysis of eight years later in Barcelona, where it won its first data related to existing facilities, the government medal. Qatar has since added another Olympic will create an up to date electronic database of all medal, a testament to the improved international sports and recreational facilities to better manage standing of Qatari sportsmanship. work towards end goal—a network of accessible, high-quality open spaces and facilities that meet A key challenge for sports administrators in Qatar, public needs and are economically and environ- therefore, is to continue improving the perfor- mentally sustainable. In addition, before deciding mance of Qatari athletes at regional and inter- on whether to build new facilities, the government national competitions. To meet this goal for the will consider sharing existing private facilities and National Development Strategy 2011–2016 and opening school sports facilities to the public at beyond, the government will enhance talent

200 Qatar National Development Strategy 2011–2016 a h c pter 5

Figure 5.19 Qatar is the best performer among Gulf Cooperation Council countries in the Asian Games

Cumulative gold medals at the Asian Games 25 Qatar

Kuwait 15 Saudi Arabia

Bahrain 10

5 United Arab Emirates Oman 0 1974 1978 1982 1986 1990 1994 1998 2002 2006 development for improved sporting success by cre- for athletes, as will achieving the committee’s prior- ating effective development models to nurture ath- ity 4 area on athlete pathways development as stated letic growth from the stage of early training to the in its 2008–2012 strategic plan. A central database level of elite competition. In addition, a strategic will be set up to track the performance of the coun- management plan will be created to support the try’s sports talents, and all sports federations will be employment, retention and development of coach- compelled to share and transfer knowledge as neces and technical sports officials to better promote essary for a more efficient use of resources. the growth of Qatar’s sports sector. Besides good athletes, sports development necessitates capacity The project will also explore athlete development building of professional coaches and a well organ- models for women and put in place a structure to ized coaching system (table 5.10). take practical steps towards addressing the under- representation of women in elite sports. In addition, A comprehensive plan for athletic development athletes with disabilities will be provided with appropriate opportunities and access to sporting pathways. This plan will develop a sound and rigorous process to identify and develop young sporting talent. Targets The Qatar Olympic Committee and its federations • Produce an athlete development model, includ- and clubs, as well as the Aspire Zone Foundation, ing specific models for women and people with will coordinate their talent identification and man- special needs. agement processes to ensure a seamless transition • Create a national database of athletes. between pathways. These agencies will work together to define the development requirements of each A strategic management project to develop categorized sport and to formulate a common set professional career paths of criteria and protocols that reflect athletic ability among young children. This plan will also benefit A strategic management project will be imple- from the Qatar Olympic Committee’s initiatives in mented to identify the systemic resources support of a long-term national development model required to support the employment, retention

Sports as inspiration for an active and healthy society 201 Table 5.10 The ratio of registered athletes to coaches has declined in most sports activities

Athletes Coaches Ratio of athletes to coaches Sport 2003 2008 2003 2008 2003 2008 Athletics 1,182 1,208 21 16 56 76 Basketball 685 747 25 45 27 17 Billiards and snooker 142 305 5 8 28 38 Bowling 163 251 6 8 27 31 Fencing 100 208 4 20 25 10 Football 3,255 3,960 182 217 18 18 Gymnastics 158 137 6 14 26 10 Handball 1,313 1,692 36 80 36 21 Martial arts 209 1,763 8 71 26 25 Shooting 125 151 11 16 11 9 Swimming 136 310 13 29 10 11 Table tennis 364 400 13 18 28 22 Tennis and squash 96 297 25 29 4 10 Volleyball 745 1,235 26 60 29 21

and development of coaches and technical sports health and mental well-being. These personal human resources, while increasing the overall benefits contribute towards broader national out- knowledge base and capacity of all sports develop- comes, including a healthier and more physically ment officials. fit society with lower healthcare costs and a stronger, more productive labour force. Quality sports A benchmarking exercise will determine interna- facilities and services, including outdoor recreational best practices for optimum coaching ratios, tion facilities, also make Qatar a more attractive while gaps in the country’s current athlete man- place to work, live and visit. At the international agement practices will be identified. level, sports events and athletes help raise Qatar’s regional and global profile and enhance national Target pride. Sports is also a powerful tool for interna- • Develop a strategic plan for coaches and tech- tional engagement and diplomacy through tour- nical human resources. ism, aid and trade.

Fostering cross-sectoral links A sporting culture cannot take root overnight. The sports sector of the National Development The Qatar Olympic Committee’s experience in Strategy 2011–2016 will be key in meeting the engaging multiple stakeholders in its work is evi- goals of the social development pillar by enhanc- dence of the importance of cross-sectoral links in ing Qatar’s sound social structure and by gener- sports. Much can be leveraged from the partner- ating momentum for a future whereby people ships that have been formed between the commit- will embrace sports as a way of life. But given the tee and other entities, including both the public influence that active lifestyle initiatives can also and private sectors. At the community level sports have on economic, environmental and human helps build social and family cohesion by bringing development policies, several cross-sectoral links people together in a friendly and active way. At the can be identified that demonstrate how sports is individual level participation in sports raises peo- both a goal of, and an enabler of, QNV 2030 (fig- ple’s confidence and skills and improves physical ure 5.20).

202 Qatar National Development Strategy 2011–2016 Figure 5.20 Sports is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for sports

Encourage greater appreciation and awareness of sports Family cohesion Support talent development and women’s Education and empowerment training

Focus on preventive Environment and Create a healthy and healthcare to improve Healthcare Sports natural resource inspirational living wellness management environment

Economic diversi cation, Population, labour private sector growth force and Qatari Ensure economic and economic employment Provide a wide talent prosperity and higher infrastructure pool for sports standards of living development

Goal Enabler

Sports as an enabler for other sectors

Develop stronger Support a healthy and families and strengthen active learning community cohesion Family cohesion environment and women’s Education and empowerment training

Encourage a healthy and Environment and Provide green spaces for active lifestyle Healthcare Sports natural resource recreation management

Economic diversi cation, Population, labour private sector growth force and Qatari Support growth of tourism and and economic employment Encourage a healthy sports-related industries infrastructure and productive workforce

203 Cultural growth for a creative and exceptional society

The state of Qatar will “preserve national heritage and balance between modern life and the country’s enhance Arab and Islamic values and identity”.— Qatar cultural and traditional values. National Vision 2030 Qatar is meeting this challenge in many ways, Across the world countries are attempting to recon- through cultural programme exchanges, inter- cile the forces of globalization and the preservation national film festivals, athletic competitions, of national culture. While the increasing influence enriched academic curricula targeting artistic of popular culture in societies is inevitable, some development and more. The Doha Capital of Arab features of national culture will persist, despite Culture 2010 is a successful, year-long event cele- global pressures, because of their unique ability to brating the arts, music and film through confer- provide a meaningful sense of national identity. As ences, cultural summits and mutual knowledge- Qatar works towards achieving QNV 2030 aspira- sharing. Additionally, Qatar is increasing attention tions, finding the right balance between moderniz- to its own history through enhanced preservation ing and preserving the country’s culture and Arab practices. By thoroughly embracing its cultural identity is a sizeable challenge. identity in the context of its increasingly diverse population, Qatar will be well positioned to pro- Qatari society has undergone a rapid change in tect its unique character while continuing to foster a relatively short period of time. The transforma- a creative and exceptional society. tion from natural pearl production to the global fossil fuel industry has affected almost all aspects However, a country’s culture should be assessed of everyday life, from family life to the national not only on its artistic achievements but also on workforce and to Qatar’s enhanced status among how much it contributes to the social structure. the international community. In some way all com- The culture sector of the social development pil- ponents of the social development sector of the lar, therefore, plays a key role in enhancing and National Development Strategy 2011–2016 reflect improving the quality of life and well-being of all actions necessary to strengthen Qatari society as a citizens, particularly in fostering creativity and result of this unprecedented socioeconomic trans- promoting cultural activities around the world. formation. New developments in communication, Qatar will enable the cultural growth of its people, transportation and technology are creating new forge new international relationships and meet forms of cultural production, allowing for higher the obligations of QNV 2030 through six overarch- flows of cultural products into and out of Qatar. ing outcomes and seven priority projects in which Qatar’s huge expatriate population represents a the government will: variety of cultures and includes practitioners of • Use culture as a platform for building national many other religions. This shift, which has taken pride and encouraging intercultural under- place in a single generation, has resulted in the standing. need for an active policy on cultural diversity. • Safeguard and develop Qatar’s cultural heritage to preserve its national identity and Despite the many changes, Qatari society has strengthen family cohesion. maintained the essence of its culture and a con- • Use culture to enhance young people’s learn- siderable degree of continuity from the past. This ing, build their self-esteem and help them real- continuity includes observing the fundamental ize their full potential. principles of Islam, maintaining the inherited sta- • Attract and nurture high-quality talent to inspire tus and prestige of the leading families and pre- and stimulate the growth of the culture sector. serving the connectedness of family affinities. The • Encourage greater interest in culture by pro- primary, persistent challenge is to maintain this viding research and information on the growth

204 Qatar National Development Strategy 2011–2016 a h c pter 5 and potential of the culture sector, as well as to increase their participation in cultural activi- the benefits of being involved. ties and will enhance the values of gender equal- • Raise Qatar’s profile and standing as a lively ity. It will also increase the knowledge base on the cultural destination and a centre for cultural impact of foreign cultures and its link to societal exchange. changes, especially on the Qatari family.

Achieving these outcomes will enhance the cul- Rich cultural programmes to engage the community tural well-being of all citizens and solidify Qatar’s standing as a centre of Arab culture through its A cultural grants initiative will encourage develop- distinctive national identity. ment in Qatar by providing support for: • Cultural projects, including a wide range of Increasing demand and support for activities such as festivals, exhibitions, new pro- diverse cultural activities ductions, translations, tours, workshops and conferences. Although Qatar’s rapid modernization has resulted • Cultural organizations and artist development. in a certain amount of Westernization, distinctive • Cultural research and development, which elements of traditional culture remain, particularly will include support for studies and analyses in music, poetry, dance and storytelling. Across the on cultural cooperation and cultural policy country, different agencies, including grassroots and development, as well as the collection and dis- community-based groups, are promoting Qatari cul- semination of information that promotes the ture, as well as foreign cultures, encouraging cul- exchange of best practices. tural exchange and intercultural dialogue. This outreach has enabled Qatar to raise its sphere of The project will use an interdisciplinary approach, influence worldwide. But to maximize impact, these involving key culture stakeholders in a collabora- various activities need to be enhanced, integrated tive, participatory process. The grants will be tar- and promoted within a national framework, which geted to artists and institutions but will be avail- will be used as a platform for building national pride able to a broader audience, particularly young and encouraging intercultural understanding. people, women and the socially disadvantaged. Grants will be implemented on a yearly basis, and The government will increase demand and sup- each cycle will carry a different theme to inspire port for diverse cultural activities by establishing thought on specific social causes or issues (“Cul- a grant programme to support cultural projects ture and the family,” “Culture and women” and (such as festivals, exhibitions, tours, workshops the like). and conferences), cultural organizations and artist development, and cultural research to collect An information technology platform will be built and disseminate information that promotes the to support implementation and administration exchange of experiences and best practices. Con- (for collecting data, allowing applications to be currently, Qatari media, which is important in submitted online and promoting programmes), shaping policies and identity, will take a larger and the entire project will be supported by a com- role in promoting cultural objectives. munications plan that will include annual reports. The grants programme will be managed by a mul- The programme to increase demand and sup- tisectoral committee chaired by the Ministry of port for diverse cultural activities will provide Culture, Arts and Heritage and will include rep- opportunities for the country to develop the cul- resentatives from throughout Qatar’s cultural tural and innovative capabilities of young people leadership community. The committee will devel- and children, will encourage the elderly and vul- op and oversee all details relating to administra- nerable people (such as people with disabilities) tion of the project. For greater transparency and

Cultural growth for a creative and exceptional society 205 accountability, the grants programme should be Improving management of heritage audited by an independent third party. resources

Target Throughout Qatar’s recent socioeconomic trans- • Launch a culture grants programme support- formation, the country’s cultural heritage has ing at least 15 initiatives. increasingly been seen as an important stabilizing force, representing a common bond among citi- Media resources as instruments of cultural zens and acting as a counterbalance to rapid social promotion change. Heritage is an irreplaceable resource, so cultural resources must be safeguarded for future As part of a new culture and media project, the generations. government will encourage ongoing engagement between the culture sector and the media for the Currently, Qatar’s laws and regulations do not mutually beneficial outcome of greater cultural effectively support cultural preservation, nor is the awareness throughout society. The culture sec- tourism and educational potential of archaeologi- tor will be more proactive by formulating unique cal and heritage sites optimized. Most of the more media strategies for different cultural events, by than 200 estimated archaeological sites in Qatar developing a more systematic method of commu- have not been legally registered to guarantee pres- nication through press releases and news con- ervation of their antiquities. Meanwhile, Qatar’s ferences and by embracing and adapting to new heritage sites date from the 17th century and con- media technologies. The media will be more sist of ruins of small villages, forts, palaces, houses, proactive by undergoing training for reporting castles and towers. Many of these sites are deterio- on cultural issues so that reporters, producers rating and in need of repair. and other media professionals will become better educated partners in cultural development. Under the guidance of the Qatar Museums Training will be extended to include effective Authority, established in 2005, the country has use of new media platforms, such as Facebook opened numerous museums to display artwork and and Twitter, in an effort to better reach Qatari artefacts, with at least eight more being planned. youth. Still, the need for a more dedicated and integrated management process is apparent to meet the The training activities and enhanced collaborative goals of QNV 2030. To safeguard Qatar’s cultur- partnerships should lead to jointly created con- al identity, the government will improve manage- tent that promotes Qatar’s culture, such as special ment of heritage resources through enhanced laws features on unique cultural activities like Qatar and regulations to better preserve the country’s National Day or the Eid celebrations, as well as archaeological past and through a programme regular columns or documentaries in newspapers, to develop the tourism and educational potential magazines and online media formats. In addition, of Qatar’s many archaeological and heritage sites the website for the Ministry of Culture, Arts and (figure 5.21). Heritage will be upgraded to better serve as an interactive platform for education and promotion. A governance system for heritage resources The new website will emphasize information sharing and collaboration in keeping with modern A cultural heritage governance project will be technology trends. implemented to review and update laws and regulations that affect cultural preservation and Target archaeological heritage. This process will include • Implement at least five culture-related projects measures to regulate site safety, property remov- with media partners. al, building permit processes and ownership of

206 Qatar National Development Strategy 2011–2016 a h c pter 5

Figure 5.21 There are about 200 archaeological sites across Qatar, with more than 900 varieties of petroglyphs

Legend RAS ABU AMRAN AL JUMAIL AL GHRIYAH Palaeolithic sites AL FURAIHAH FUWAIRAT Neolithic sites JEBAILAT AIN MOHAMMED JUSASIYAH Chalcolithic and Bronze Age sites Iron Age sites MURWAB AL THAKHIRA UMM AL MA Ubaid sites Rock carvings (petroglyphs) AL KHOR Years Archaeological period Major sites Cairns or burials RAS ABURUK Earliest times Paleolithic Dukhan, Al Khor BIR HUSAIN SUMAISIMAH RAS AL URAKALAT to 8000 BCE BIR ZEKRIT AL WUSAIL DUKHAN 8000 BCE Early Neolithic Al Wakra, Al Jubeigib, Dukhan AL DAASA UMM TAQA AL KASSAR DOHA ZGAIN AL BAHATH 5000 BCE Late Neolithic Al Jubeigib; Shagra B, C and ACILA D; Al Khor UMM BAB AL WAKHRAH JUBEIGIB 2000 BCE Bronze Age Al Da’asa, Ras Abaruk 1000 BCE Iron Age Murwab, Ras Abaruk UMM SAID

SHAGRA NAKSH

AL HURAITHI SALWA KHOR AL ODEID

SAUDA NATHIL

heritage buildings. At the same time, the gov- • Establish at least one archaeological site. ernment will seek to expand tourism and educational opportunities of historical sites by develop- Investing in young people ing a strategic promotional plan, beginning with enhanced international recognition through inclu- Just as preserving the past is an integral compo- sion on the United Nations Educational, Scientific nent of a society’s cultural awareness, so too is cul- and Cultural Organization’s World Heritage list. tivating a dynamic artistic future. The government can lay the groundwork for a more robust nation- In addition to site preservation, the government al programme, but real cultural sustainability will will seek to manage and maintain Qatar’s cultur- be achieved only through intergenerational aware- al heritage in other ways. The country’s Cultural ness. Qatar’s youth are key stakeholders in cultur- Development Centre will complete a digitization al development, because they are the current and project in which hundreds of books, maps and future consumers and creators of culture. manuscripts of great value to the Arab world will be made available through an online repository. As Qatar diversifies its economy, there is an The centre is also developing an Arab and Islamic increasing emphasis, especially in higher educa- heritage library with rare collections that exhibit tion, on subjects that propel a knowledge econ- the depth and wealth of the Arab and Islamic civi- omy, such as math and science. However, there lizations. And as part of the Qatar National Muse- is great value for an equal emphasis to be placed um Project, the museums authority will organize on subjects such as culture and arts. The Nation- an oral history programme. al Development Strategy 2011–2016 will ensure that Qatar’s youth are educated to appreciate Targets aesthetics and to take an interest in their cultur- • Review and update relevant laws and regula- al heritage, leading to more interesting learning tions on cultural preservation and archaeologi- experiences and more opportunities for creative cal heritage. development at a young age.

Cultural growth for a creative and exceptional society 207 Programmes to enhance youth participation in community of artists living and working locally, culture but a thriving culture sector needs to be supported by a highly qualified talent pool, and there are A culture and youth project will enhance learn- several aspects of the arts workforce that present ing opportunities for Qatari children by promot- challenges to professional development, such as ing young people’s understanding and appre- limited opportunities for specialized training and ciation for culture at all levels, especially in negative public perception on the value of an arts enhancing national, Arabic and Islamic identi- career. ty among young people. It will also foster their creativity and imagination from an early age While Qatar has the capacity to build the neces- into adulthood, nurturing well balanced young sary infrastructure to support artist development talents with inquisitive, analytical and creative efforts, an immediate challenge is how to gen- mindsets, strong communications skills and a erate sufficient interest in the sector to address strong grounding in culture. the shortfall in promising creative careers. The Ministry of Culture, Arts and Heritage is trying Qatar’s cultural leadership groups will strengthen to develop and promote Qatari theatre, but the their own partnerships to improve the teaching of local scene is being held back by limited oppor- culture in schools and to leverage the country’s tunities for artists to pursue specialized training, many cultural and heritage sites into enhanced limited venues for practice and staging and a lack learning experiences. of playwrights, directors and producers. Through the National Development Strategy 2011–2016 the A visual arts and design high school will be estab- government will develop high-quality artistic tal- lished with a focus on developing skills, improving ent to inspire and stimulate growth by expand- techniques and enhancing creativity. The school ing its knowledge base on the arts industry and by will give students practical exposure to the arts implementing a comprehensive artist development and design industry and include elective subjects project to create a more enabling environment for such as film, photography, digital media, design aspiring artists. and technology. Together with the Virginia Com- monwealth University in Qatar, which provides A framework for artist development tertiary arts education, the establishment of this school will ensure that a culture and arts educa- A comprehensive artist development project will tion is systematically and comprehensively promot- be implemented to strengthen professional capa- ed in the country. bilities in theatre. Experiences from this project will be adapted and applied in the context of other Targets art forms, such as music, film, dance and others. • Develop pilot programmes in experimental The project will focus on three primary goals— learning opportunities in culture in at least five developing a dynamic and collaborative commu- schools. nity of theatre artists, generating greater interest • Establish a visual arts and design high school in theatre and the arts overall and creating a sup- with an enrolment of at least 50 students. portive environment to ensure an individual’s full artistic potential is reached. A capability develop- Developing high-quality artistic talent ment programme will be established to take artists from one phase of growth to the next. By reaching the country’s children at an early age, the government will be taking the first, crucial A baseline study will be conducted to better steps in cultivating a dynamic, sustainable artistic understand the key players in the theatre industry, foundation for the future. Qatar foresees a vibrant the level of support currently provided to theatre

208 Qatar National Development Strategy 2011–2016 a h c pter 5 groups and artists, and the venues and facilities Better information and communications on culture available for practice and staging. The capability development programme will build on this base- Developing a comprehensive cultural statistics line study to provide Qatar a roadmap for discov- framework will be the first step in a long-term ering and grooming talent, enhancing profession- cultural information project process intended to al competencies and recognizing achievements improve the quality and range of statistical data through awards and special functions. Designing on Qatar’s cultural sector. The development of a comprehensive artist development programme the framework will involve considerations of such will take time, so the government will imple- issues as a working definition for culture, the classi- ment various “quick-win” initiatives to begin gen- fication of cultural activities, measurements of the erating interest and momentum for the overall economic and social dimensions of culture and programme. data collection processes. Once the framework is established, a regular publication on Qatar’s cul- Targets tural statistics will be produced, giving a more • Develop a better understanding of the theatre holistic picture of the country’s culture scene. An scene through a baseline study, and create a additional source of information sharing will be capability development programme for artists. the upgraded Ministry of Culture, Arts and Herit- • Implement at least two “quick-win” initiatives age website, identified as part of the Culture and for artist development. the Media Project. The redeveloped website will serve as an interactive portal for dissemination and Providing better information for discussion of the country’s cultural information. cultural advocacy Targets As Qatar looks to further develop its own artistic • Improve the framework for measuring the level talent pool, the country is cultivating its reputa- of cultural activity in Qatar, including production as a leader in international Arab culture by ing a publication with key cultural statistics and hosting such high-profile and influential events indicators. as the Doha Tribeca Film Festival and the Doha • Improve communications on cultural activities Capital of Arab Culture 2010. Qatar has also through an upgraded Ministry of Culture, Arts invested heavily in developing its cultural sec- and Heritage website. tor through the establishment of the Museum of Islamic Arts, the Cultural Village and the Qatar Strengthening Qatar’s cultural Philharmonic Orchestra. While these attrac- diplomacy tions obviously enhance Qatar’s cultural cachet, their impact on the country’s social and eco- Qatar has invested heavily in developing home- nomic outcomes is unclear due to fragmented grown cultural initiatives and in attracting inter- and incomplete information, making it difficult national institutions and events to the country. to form a coherent national picture of cultural Examples include expansion of the Al Jazeera activity. Since cultural data and information are broadcasting network; dynamic bids to host the required to support policy planning and develop- Olympic Games and the World Cup; internation- ment, there is an urgent need to improve infor- al sporting events in golf, tennis, squash, cycling, mation and communications on cultural activi- gymnastics and motor sports; and the higher ties in Qatar. To close this knowledge gap, the learning institutions of Education City, which have government will provide better information for attracted students from numerous countries. cultural advocacy by developing a cultural statistics framework to enhance the range and quality At the regional and international level Qatar plays of data available. a key role in promoting dialogue and religious

Cultural growth for a creative and exceptional society 209 tolerance through various regional and interna- • Invest in the necessary supportive infrastructure. tional initiatives, such as the annual U.S.-Islamic • Create a rich calendar of cultural activities. World Forum, which is hosted in partnership with • Implement an innovative and creative market- the Brookings Institution to strengthen relation- ing and promotions campaign. ships between the United States and the Islamic world. The country also hosts the annual Doha Following this blueprint will allow Qatar to con- Interfaith Conference to encourage constructive tinue to attract key international cultural events, dialogue between religions for greater mutual symposiums and conference to Doha, provid- respect and cooperation. QNV 2030 foresees Qatar ing the country with a platform for its activities playing an increased regional and international and attract visitors who view Qatar as a cultural role economically, politically and culturally, par- destination. ticularly within the framework of the Gulf Coop- eration Council, the Arab League and the Organi- Target zation of Islamic Conferences. • Improve the country’s national image region- ally and globally to strengthen Qatar’s position An intensification of cultural exchange with the as a cultural hub. Arab community and with other countries in general will create a positive image for Qatar and Fostering cross-sectoral links enhance international relations, so the government will improve branding of the country’s global As Qatar and its people become more global in image, using cultural exchange programmes and their outlook, the need to develop a stronger regional arts initiatives to promote Qatar’s culture. sense of national identity will intensify. Culture, In addition, continuing to attract key internation- arts and heritage are a common bond that will al cultural events and showcases to Doha will rein- promote stronger social cohesion and a greater force Qatar’s image as a cultural hub and better sense of individual contribution to the growth of position the country to assume a larger leadership society. Perhaps in no other area of government role within global society. is the need to properly balance modernization with the preservation of traditions so great, yet Regional and international cultural exchange the challenge of finding that balance is consistent- activities ly present across all sectors of social development strategy. A Qatar global branding project will be implemented to improve the visibility of Qatar’s culture A vibrant community culture is fundamental to sector through international showcases that allow the well-being of society and critical to the contin- local artistic talents to become cultural ambas- uation of a healthy societal value system. The cul- sadors for Qatar. Through other cultural sector ture sector of the National Development Strategy projects under the National Development Strate- 2011–2016, therefore, will play a key role in meet- gy 2011–2016, support will be given to artists and ing the goals of the social development pillar by arts group to enable them to participate in pres- preserving Qatar’s national heritage and enhanc- tigious events and to collaborate with foreign arts ing the Arab and Islamic values on which Qatar’s groups and artists. Not only will artists’ audienc- social structure is based. But given the influence es be broadened, but artists’ work will help rein- that cultural enhancement initiatives can also have force Qatar’s image as a cultural hub. To further on economic, environmental and human develop- the cause of extending Qatar’s image, the government policies, several cross-sectoral links can be ment will also: identified that demonstrate how culture is both a • Develop distinctive cultural content. goal of, and an enabler of, QNV 2030 (figure 5.22).

210 Qatar National Development Strategy 2011–2016 Figure 5.22 Culture is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for culture

Encourage greater Support talent development appreciation and and improved cultural awareness of culture Family cohesion awareness and women’s Education and empowerment training

Encourage a healthy Create a healthy Environment and Healthcare Culture natural resource and inspirational population management living environment

Goal Enabler

Culture as an enabler for other sectors

Provide interesting learning Strengthen family and experiences and opportunities community cohesion Family cohesion for creative development and women’s Education and empowerment training

Nurture a well Environment and Encourage greater balanced and Healthcare Culture natural resource environmental conﬁdent population management consciousness

Economic diversi cation, Population, labour private sector growth force and Qatari Encourage growth of and economic employment Develop creative mindsets tourism and related cultural infrastructure and cultural sensitivity to industries working in multicultural settings

211 Moving social development forward

One of the key challenges of QNV 2030 is balanc- also broad opportunities for social development ing preservation of traditions and modernization. through increased exposure to the arts, culture With Qatar developing at an unprecedented speed and active lifestyles. Just as all elements of a fam- and becoming ever more globalized, the tension ily must work together to build a solid and stable of balancing these opposing elements intensifies. household, all elements of a social structure must Greater freedoms, more choices and increased work together to build a solid and stable society. wealth from economic and social progress are challenging the deep-rooted social values high- The objectives for a forward-looking integrated ly cherished by Qatari society, creating stress- social development policy will be achieved only es and strains. Nowhere are these pressures felt through careful, cross-sectoral strategies with the more broadly than in the social development pil- human development, economic and environmen- lar, as literally every segment of society and every tal pillars. Enhanced labour opportunities for all age group—regardless of gender, race, wealth or citizens will contribute to a more just and equita- occupation—will be affected by the direction and ble society, in addition to a stronger national econ- effective management of social policy. To reach omy. Active participation in exercise and sports the goal of a caring and cohesive society, Qatar programmes will lead to healthier children and will need to be diligent, comprehensive and inclu- adults. More advanced building and occupational sive in its implementation of the social develop- safety regulations will contribute to better human ment plans laid out here. development through improved health and safety, land management and environmental practices. Integrating the policies of multiple, interrelated As Qatar continues to grow and change culturally sectors into one framework will benefit Qatar in and economically, integrating social development many ways as it pursues a progressive social agen- practices ever more closely with all government da in a highly traditional society. This approach policies will lead to stronger and more sustainable will ensure that careful consideration and proper outcomes. respect is given to traditional values and cultural sensitivities, even as necessary advancements The individual sector strategies that together cre- are made in social equality, protection and jus- ate a cohesive and integrated social development tice. Qatar’s families, for instance, must remain strategy are separate in name and designation strong and cohesive and provide a supportive only. The National Development Strategy 2011– environment for all members. At the same, how- 2016 offers a golden opportunity for all stake- ever, women must be given more opportunity to holders in Qatar’s social sector to raise the level contribute to the economic and cultural world at of cooperation and integrated teamwork to even large without diminishing their role within the greater heights in order to ensure maximum ben- family structure. Children must be guaranteed a efits on the government’s investment in Qatar’s nurturing family life with close parental ties but current and future social structure.

212 Qatar National Development Strategy 2011–2016 Chapter 6 Sustaining the enviroment for future generations 6 Sustaining the environment for future generations

Qatar’s natural resource endowment creates a unique mix of benefits and stresses. Significant wealth in hydrocarbons has generated one of the world’s highest per capita incomes, but extreme scarcity in water and arable land has created equally unusual vulnerabilities and deficits. The government’s first National Development Strategy sets out a plan for 2011–2016 that balances economic growth and environmental protection. The overarching goal is a sustainable framework that assures future generations’ prosperity but with a quality of life unconstrained by shortages or inherited ecological damage.

Managing resources and protecting urbanization have gone hand in hand with a four- opportunity for future generations fold increase in population since 1990. The increasingly affluent and growing population, 1.7 million The dichotomy of wealth and scarcity plays out at in mid-2010, has raised demands on scarce water all levels of Qatar’s economy and ecology. Between resources, heightened land-use pressure, increased 2004 and 2009 the economy grew in real terms at a automobile traffic and generated tons of household record average of 17.1% annually, raising individu- and industrial waste each day. al incomes to the highest level in the world. Steady investments have established Qatar as the world’s Environmental points of stress largest exporter of liquefied natural gas and a major force in global energy markets. Development of pet- Key environmental stress points include: rochemicals and metallurgy, combined with entry • A rising water table in Doha, which is raising into new sectors such as financial services, has moved construction costs, multiplying the city’s environ- the country towards economic diversification. Mean- mental challenges and threatening marine life. while, Qatar has used the significant returns on its • Increasing salinity in groundwater sources hydrocarbon sector to invest in its people through for agriculture, which has degraded soil qual- programmes in health, education, social protec- ity. This rise has lowered farm productivity, tion and infrastructure (see chapters 3 and 4). which is already poor as a result of local farming methods, inappropriate mixes of crops and The National Development Strategy 2011–2016 livestock, and government subsidies. calls for continued diversification and an expanded • Declining air quality, which results from chron- productive base, along with forward-looking man- ically high levels of dust mixing with chemical agement of environmental challenges. As in any pollutants. Air pollution contributes to high fast-growing economy, economic activity introduces rates of asthma and respiratory illnesses. certain stresses into the surrounding environmen- • Climate change, which presents special chal- tal and social systems. A surging economy and rapid lenges. As a major energy producer, Qatar’s

214 a h c pter 6 carbon dioxide emissions contribute to green- development. The government also recognizes the house gases. As a small coastal country, Qatar imperative of cultivating a sense of environmen- is vulnerable to predicted rising sea levels. tal responsibility within industry, while building a • Threats to biodiversity, which have left 31 iden- legal system and effective institutions that support tified species vulnerable to extinction. environmental protection over time.

A forward-looking vision, new commitments The transition to sustainable environmental management will involve shifts at all levels. Many exist- The National Development Strategy 2011–2016 for ing national structures, institutions and practices the first time explicitly aligns the growth of nation- are not oriented to take into account the needs of al prosperity to the realities of environmental con- future generations or to balance the sometimes straints. The strategy for improved environmental conflicting priorities of economic expansion and management draws on extensive consultations car- environmental protection. ried out throughout society, including interviews with individuals from government, industry, nongov- The new framework—with intergenerational equi- ernmental organizations and academia. The strate- ty at the centre—is a balanced programme of eco- gy also incorporates the spirit of Qatar National Vision nomic growth and environmental protection in 2030 (QNV 2030), which warns that overly aggressive which neither drives out the other. To avoid or economic development could result in many nega- minimize harmful consequences for the environ- tive risks, including harm to the environment. ment, QNV 2030 calls for economic growth “at a pace that is consistent with the realistic expecta- By establishing a programme of strengthened envi- tions of sustainable improvements in livelihoods ronmental management across economic and nat- and in the quality of life.” ural resource sectors, the government strategy sets out a framework for continued economic growth Systemic changes that avoids penalizing future generations. Advanc- ing specific actions to conserve water, manage Qatar’s strategy for environmental management waste and discharge, improve air quality and pro- calls for 11 interrelated actions that cut across all tect biodiversity, the strategy adheres to the foun- areas of environmental management. Setting spe- dational concept of intergenerational justice. This cific targets to be achieved by 2016, the strategy calls for “a process that seeks to meet the needs of establishes a comprehensive programme to pre- the present generation without compromising the serve the quality of life for future generations. ability of future generations to meet their needs.” Water will be better conserved and protected from degradation. Expanded recycling will greatly The forward-looking strategy, a “bridge to the improve solid waste management. Careful moni- future,” lifts environmental concerns to a new level, toring and regulation will protect vulnerable spe- within a balanced programme of economic growth, cies and broadly preserve Qatar’s natural heritage. social development and environmental manage- Urban spaces, subject to intense construction over ment. While investing in sources of future prosper- the past decade, will be healthier and more live- ity, the government will adopt and adapt the most able as green spaces are added. effective policies and technologies for protecting environmental assets and reducing pollution. The government’s ambitious agenda will require organizational changes and substantial capacity- To ensure continuing progress in environmental strengthening within institutions responsible for management, the government will take steps to the environment. Although many parts of gov- mobilize all citizens. Public awareness-building will ernment and the private sector will be involved, educate the population on the need for sustainable the Ministry of Environment will assume the lead.

Sustaining the environment for future generations 215 Its expanded responsibilities will require recruit- the strategy’s goals. Other countries might hold the ment of scientists and technical specialists to over- same aspiration of ensuring high quality of life for see research, monitoring systems and regulation. future generations but lack the resources to build In addition, the ministry will need to collaborate an integrated platform for sustainable development. closely with other government units. Qatar’s abundant hydrocarbon resources can be leveraged to make sustainable development a reality. Qatar’s emerging commitment to environmental protection will require a virtual revolution in Realizing Qatar National Vision 2030 for information and data-gathering systems. In man- sustainability dating new standards for water, solid waste, airborne pollutants and biodiversity, the government Interventions to be initiated between 2011 and is taking stock of present conditions while defin- 2016 will put Qatar on a path of environmental- ing realistic improvements for the next six years. ly sustainable development. Many of the changes However, decision-makers need more informa- call for new patterns in consumption and production on groundwater levels, biodiversity and the tion, complemented by lasting improvements in health effects of air pollution—to cite just three environmental governance and performance. The areas where information gaps pose a challenge for environmental management strategy envisions a assessing present and future risks and designing broad shift in laws, regulation, management sys- solutions. Similarly, individual challenges—such tems, technologies and attitudes (see chapter 3 for as Doha’s rising water table—will require that offi- the proposed economic measures). cials first gather key information and then fashion a plan for reversing harmful trends. Expertise from around the world will be tapped to ensure that the government has access to the most For example, coordination with health experts promising ideas and innovations. In time, Qatar will be critical to assess the precise health effects will emerge a regional or global leader in environ- of local air pollution, which require more study. mental technologies and applications.

Appeal to long-held values The strategy for improved environmental management involves working towards seven outcomes: The government has anchored the plan for envi- • Cleaner water and sustainable use. ronmental protection in the core value of inter- • Cleaner air and effective climate change responses. generational justice, recognizing that depleting • Reduced waste, more recycling and more effi- finite resources without creating new resources of cient use. renewable wealth jeopardizes the rights of future • Nature and natural heritage conserved, pro- generations. tected and sustainably managed. • More sustainable urbanization and a healthier Respect for the needs of future generations is a basic living environment. religious and moral value among Qataris. In the • An increasingly environmentally aware population. same spirit as equipping the next generation with • Improved governance and regional and inter- skills for future prosperity, the environmental man- national cooperation. agement strategy seeks to spare future generations an unwanted legacy of contamination and scarcity. In each area the government has established measurable targets to be attained by 2016. Five of the Qatar’s strong financial position, supported by a seven outcome areas involve tangible components hydrocarbon-based income stream anticipated to of the physical environment: the water we depend last another century, positions the government to on for all human activity, the air we breathe, the make the extensive investments needed to achieve waste we must dispose of or reuse, the urban

216 Qatar National Development Strategy 2011–2016 a h c pter 6 setting where most of the population lives and groundwater and recycled water, and all three face works and the natural heritage we hope to protect. stresses. Notwithstanding the pressures, Qatar’s consumption and network leakage rates are high. Many outcomes in these five areas involve observable Per capita household water use is one of the world’s changes. For example, water leaks will be sealed, gas highest. People living in Qatar consume on average flaring will be reduced and a robust recycling indus- 310 litres each day, more than double the average try will cut the volume of waste deposited in landfills. for Western European countries (figure 6.1). Changes in the other two areas—involving awareness and governance—are less readily measured but Qatar’s domestic and industrial water demand is are critical to achieving the more tangible shifts. For met primarily through desalination. Annual pro- example, building an environmentally aware popu- duction of desalinated water has more than quad- lation will be crucial to advancing conservation, and rupled over the past two decades to 2009 (figure improved governance will be necessary in designing 6.2). But despite the massive increases, production and enforcing new environmental regulations. per capita has been declining in recent years. At the same time per capita water use has been rising, Cleaner water and sustainable use leading to rising water stress. Reducing network losses, investing in new technologies and adopting Among the various environmental concerns facing energy conservation measures are thus imperatives. Qatar, the most pressing is linked to the country’s most acute scarcity—that of water (see chapter 3). To address the various water-related vulnerabilities, the government will establish a national water With one of the world’s lowest levels of rainfall, Qatar act by 2016, bringing together a fragmented system relies on water from three sources: desalination, of rules and quality controls into an integrated,

Figure 6.1 Reducing network losses and household consumption is key to sustainable water use

Network losses Per capita household consumption Network losses, 2006 (%) Litres per capita per day, 2001–2002 40 400

Loss possibly above 30% 35 Canada Qatar 30 300 30 United States 29 Switzerland Norway Savings potential 26 Qatar, 2009 20 200 (reduction of 83 litres per capita per day; 18 Qatar, 2009 19 130 million cubic metres) (reduction of 12%; 51 million cubic metres) Germany 10 100 10 Turkey 7

0 0 Qatar Germany Denmark United France Italy 0,000 20,000 40,000 60,000 80,000 Kingdom GDP per capita, 2001–2002 (US$)

Note: Network losses include physical losses, apparent losses (water theft and meter inaccuracies) and unbilled authorized consumption. Source: Kahramaa, Statistics Report (2008); Eurostat (2001); IFEN (2002); http://dardel.info/EauConsumption.html (2001, 2002); OECD, OECD Factbook: Economic, Environmental and Social Statistics (2009); EIU, Residential Household Consumption (2001, 2002, 2006) and Country Data Annual Time Series (2010).

Sustaining the environment for future generations 217 Figure 6.2 Production of desalinated water has increased massively but has barely kept pace with population growth

Desalinated water production Million cubic metres Cubic metres per capita 500 250 Production per capita

400 200

300 150

200 100

100 50

Production

0 0 1990 1992 1994 1996 1998 2000 2002 2004 2006 20092008

comprehensive system. Shifts in tariff structures, tariffs (free for Qatari households and low-cost for combined with a broad campaign for public aware- non-Qatari households) that recover less than a ness, will help cut unnecessary water use and waste. third of the costs of water production.

Qatar has become increasingly dependent on Currently available desalination technologies limit water produced from seawater, by means of costly how much new water the country can produce from and energy-intensive thermal desalination, which seawater. A new power and water station to be com- accounts for about half the water used in the coun- missioned in 2011 will increase capacity for desali- try. But with rapid population growth and urbani- nated water to 539 million cubic metres from the zation, the volume is soaring: use of desalinated current 360 million cubic metres. The new facility water has tripled since 1995, reaching 312 million will relieve some pressure, but further expansion cubic metres in 2008. will be difficult. A cogeneration plant takes up a huge area of land, and drawing seawater from shal- Increasing demands on desalinated water are low areas can result in poor quality intake water. projected to continue—with heavy water losses, High seawater salinity on the west coast and lack of a growing population and higher household use. space in the heavily populated east coast are sub- Based on current trends, consumption through stantial constraints. Adding to the threat of future 2020 is expected to increase 5.4% a year for shortages is the expected 2020 decommissioning Qataris and 7% a year for expatriates. As of 2009, of a Ras Abu Fontas cogeneration plant that will however, studies show that Qataris consumed have reached the end of its technical life. 1,200 litres per person per day, while expatriates consumed 150 litres per person per day. Com- All countries experience network losses in their pared with other countries, Qatar has low water water systems—from unmetered use and leaks.

218 Qatar National Development Strategy 2011–2016 a h c pter 6 But Qatar’s losses of desalinated water are unusu- 24% of total freshwater supplies, compared with a ally high, and given the overall pressures on water 16% average among Gulf states. supplies, costly (see figure 6.1). The system loses an estimated 30%–35%, compared with an Organisa- However, Qatar lacks the infrastructure to deliver tion for Economic Co-operation and Development recycled water to every potential user. Partly because country average of 18%. The Qatari strategy for of this constraint, the supply of recycled water improved water management calls for an aggres- exceeds consumption, leaving about 40% of treat- sive five-year programme to cut network losses. ed sewage effluent to be dumped into vast septic lagoons, creating problems for nearby communities. Groundwater supplies also are critical, accounting for about 36% of water use, predominantly in agri- Qatar’s strategy will address other water-related culture. But these sources are being rapidly deplet- stresses, including improvements in the sewage ed, mostly by increased irrigation. An estimat- treatment network and controls on wastewater ed 250 million cubic metres of groundwater are dumped into the sea. extracted each year, five times the 50 million cubic metres of freshwater recharge that comes from Rising groundwater, a problem for many cities Qatar’s meagre rainfall plus flows from Saudi Ara- around the world, is an acute challenge for Doha, bia. In the foreseeable future Qatar’s freshwater where about a third of Qatar’s desalinated water, reserves may begin to be used up as water demand or 110 million cubic metres, leaks into the city’s continues to grow. water table each year (figure 6.3). The inflows to the Doha water table come from two sources: leak- Groundwater supplies are also subject to high lev- ages from Kahramaa’s clean water distribution els of waste and loss. Some are used for flood irri- network and leakage from Ashghal’s sewage col- gation of open fields, a practice with high levels lection network. As a result of rising groundwater, of loss to evaporation. By contrast, farms in the some septic tanks are overflowing, posing serious United Arab Emirates rely mostly on the more health hazards—and costs for building projects water-efficient “drip and soak” irrigation meth- are rising because construction teams must pump ods. Farmers in Qatar pay a small pumping charge out large quantities of water and waterproof the but otherwise have free use of groundwater, which foundations of new structures. The main response provides little incentive for conservation. to the problem has been regular pumping of excess water into the sea, but that practice may be Meanwhile, quality of the groundwater system is a harming the marine environment. A study is now growing concern. Brine produced by certain farm under way to assess the possible impact. processes is discharged back into the ground, raising the salinity of the remaining groundwater. The government aims to reduce to zero the net Since this water is later deployed for irrigation and inflow to the Doha water table. In the short term other agricultural uses, it increases the salinity of this will increase water discharges into the sea the soil. Substantial parts of groundwater reserves but under safeguards that minimize the harmful show salinity levels above what is considered suit- effects on marine life. The long-term plan envi- able for irrigation. sions greater use of the excess flow for irrigation, wetland habitats and recycling. Wetlands can play Recycled water, or treated sewage effluent, is the a significant role as a biological filter, allowing less only water source in surplus. It is used mostly in polluted water to recharge aquifers or flow into the irrigation, accounting for 14% of water use. Treat- sea with minimal damage to the marine ecosystem. ed sewage effluent can play a significantly larger role in industrial processes, district cooling and Critical to Qatar’s strategy for sustainability is that watershed management. Qatar now reuses about some patterns can change if a mix of policies,

Sustaining the environment for future generations 219 Figure 6.3 About a third of water produced leaks into the water table each year

Untreated septic lagoons ~95 million cubic metres Small industry waste water ~18 million cubic metres

Disconnected homes dump untreated sewage ~75 million cubic metres Excess treated sewage ef uent Treated septic ~70 million cubic metres lagoons ~70 million cubic metres Desalination 312 million cubic metres Sewage network Treated sewage ef uent Fodder ~96 million ~96 million cubic metres ~25 million cubic metres Municipal use cubic metres ~200 million cubic metres Septic tank over ow

Irrigation ~1 million cubic metres Leakage of untreated sewage Runoff in transmission ~0.5 million cubic metres ~20 million cubic metres

Leakage in transmission ~100 million cubic metres Water table ~120 million cubic metres

Out ows pumped to sea ~50 million cubic metres information and technology can be brought to followed by a system of integrated regulation. The the challenge. In some areas, the government has overarching goal is a set of policies and regula- already launched measures to alleviate recognized tions through which the government will align problems in water use. In other areas, the govern- consumption and supply over time while protect- ment has taken stock of particular stresses and ing water quality. Quality standards for industrial, set targets for change. Among other changes, the agricultural and domestic uses will be critical to strategy should bring about lower water losses and establish. In addition, controls on water discharge use patterns that are better aligned with the needs will be a crucial form of environmental protection. of a water-scarce country. Target A priority of the National Development Strategy • Enact a comprehensive National Water Act 2011–2016 is to improve the management of water establishing an integrated system of quality resources so that future generations do not face requirements, discharge controls and incen- difficulties meeting basic needs. tives for conservation—in place of today’s fragmented system of laws and regulations. National Water Act Urban water table management plan The presently fragmented patchwork of laws and rules will be replaced by a comprehensive water Kahramaa, the Qatar General Electricity and policy, codified under a national water act and Water Corporation, is investing in piping and

220 Qatar National Development Strategy 2011–2016 a h c pter 6 leak-sealing operations to lower network water on energy consumption. The trend of rising ener- losses to 10% by 2016, from the present 35%. Tariff gy production and consumption generates two structures that encourage conservation, coupled immediate environmental impacts: increased with public awareness campaigns and mandated greenhouse gas emissions and greater local pollut- use of water-efficient appliances, could reduce ants and associated risks. consumption by as much as 40%, according to some estimates. These efforts, together with the Thus, Qatar has two categories of air quality chal- reduced water losses, could add another decade lenges. First, various local pollutants mix with beyond 2020 to Qatar’s desalinated water supply. particulates in the air—including chronically high levels of dust—to cause air quality problems Wastewater treatment facilities will be significant- that contribute to asthma and respiratory ill- ly expanded, and water discharge will be regulat- nesses. Second, carbon dioxide emissions, most- ed for the first time, with standards for industrial, ly from energy production, add to greenhouse domestic and agricultural users. gases and contribute to global climate change. Qatar will develop a national policy to manage The government will establish a system for moni- air pollution, greenhouse gas emissions and the toring diminishing fresh groundwater levels while broader challenges of climate change. All sectors taking stock of the full causes and consequences of society—especially the private sector—have a of Doha’s rising water table. The government will role. work to eliminate excess flows into the Doha water table. Improve air quality management

Challenges abound in shifting Qatar’s water man- Qatar has seen a rise in pollutants that may be cre- agement to a sustainable, integrated plan. Rais- ating health risks. Among them are particulates ing awareness and inducing behaviour change (such as dust), nitrogen oxides, volatile organic are critical components of the strategy. Institu- compounds and ozone. Although average ozone tions such as the Qatar Green Centre, the Friends levels meet international standards, there have of the Environment Centre and the Ministry of been episodes where ozone levels exceeded safe Environment Public Awareness Group will play an levels (table 6.1). Under the government’s strate- increasingly visible role in fostering attitudes and gy ozone levels would be controlled to eliminate consumption patterns supportive of environmen- any periods of excessive levels. The government tally sustainable development. is also committed to regulating volatile organic compounds. Target • Monitor groundwater, conserve freshwater In addition the government will develop an early aquifers where possible and eliminate excess warning tool to determine the sources of ozone water in Doha’s water table. pollution, including those in neighbouring countries. Increased dialogue and information shar- Cleaner air and effective climate ing with neighbouring countries will support the change responses effort.

Qatar’s economic growth builds on the develop- High prevalence of asthma and other respiratory ment of a global energy industry, the world lead- diseases is believed to be caused or exacerbated er of liquefied natural gas operations. Diversifica- by these pollutants. A recent finding that almost a tion into petrochemicals and metallurgy as well fifth of Qatari schoolchildren suffer from asthma as cogeneration facilities providing desalinated is a serious concern. Links will be analysed in a water make Qatar’s economy heavily dependent study on air pollution and human health.

Sustaining the environment for future generations 221 Table 6.1 Daily intervals reveal ozone levels that exceed safe levels in Doha (average number of readings above ambient air quality standards)

Al Comice stationa Qatar University station Pollutant 2007 2008 2009 2007 2008 2009 Sulfur dioxide (daily) 0 0 0 0 0 0 Nitrogen oxide (8 hour) 7 0 0 0 0 0 Carbon monoxide (8 hour) 0 0 0 0 0 0 Ozone (8 hour) 8 0 1 2 9 11 Particulate matter (daily) 76 138 156 135 229 227

a. Near Movenpick hotel on southern end of corniche.

To be effective, the government’s new air quali- 2003–2008, and the number of vehicles per house- ty controls will require across the board upgrades hold now at 3.6. To lessen automobile dependence, of supporting infrastructures and institutions. Air the government is planning a high-speed rail line quality monitoring stations will need to be integrat- connecting Doha, Bahrain and Saudi Arabia, plus ed and unified to support an online database with an underground monorail. More broadly, current real-time readings. Alongside new rules on emis- scrutiny of subsidized prices for fuel could lead to sions, the government will design systems for enforc- shifts that encourage conservation and therefore ing compliance, including penalties for violations. reduce carbon dioxide emissions.

Any comprehensive effort to reduce greenhouse To respond to the challenge of reducing green- gases will necessarily touch on consumption pat- house gases, the government is establishing a terns. Energy consumption grew 57% from 2001 to reporting mechanism to track national carbon 2006 as a result of a rapidly growing population dioxide emissions. and expansion in the energy and industrial sectors. A recently developed modelling tool can be used to Reducing the energy intensity of electricity con- provide advance warning for air quality changes. sumption will require awareness campaigns ori- Qatar will work with other Gulf countries to devel- ented to both the demand and supply sides of the op a predictive regional air quality modelling tool. equation. On the demand side new incentives and the effects of heightened awareness will prompt Target consumers to cut demand. On the supply side plant • Eliminate instances of excess ozone levels capacity can be optimized by allowing seasonal through improved air quality management. shutdowns of one or more plants. Combined, these initiatives can cut power generation by 7% by 2016. Reduction of gas flaring and venting

The Qatar Sustainability Assessment System for Fuel combusted during energy production Green Buildings will establish green building accounts for 67% of Qatar’s carbon dioxide emis- standards to which all government buildings will sions (figure 6.4). Of these emissions, 37% stems have to conform by 2016. Afterward, all new com- from energy expended in basic oil and gas pro- mercial buildings and residential buildings will be duction, about 12% is attributable to gas flaring, brought into the new regime. and another 18% results from petrochemicals and cogeneration of water and power for industrial Automobile traffic has increased, with the number users. Households and commercial users account of registered private vehicles rising 12% a year over for the remaining 33% of total emissions.

222 Qatar National Development Strategy 2011–2016 a h c pter 6

Figure 6.4 Two-thirds of Qatar’s carbon dioxide emissions stem from heavy industry

Share of carbon dioxide emissions, 2007 (%) Levers to reduce 100 carbon dioxide Current Feasibility 6 2 emissions performance of reform 7 Production • Reduce energy Production (67%) 18 production trajectory — 75 • Reduce flaring

10 Consumption (33%) • Capture carbon 8 dioxide released from 50 liquefaction process 12 Consumption • Demand management 37 25 • Energy efficiency initiatives

• Shift to alternative energy

0 Political Reframe argument: a a • Highlight liquefied Flaring Other Transport natural gas as Oil and gas Construction greener than coal Electricity and water Demonstrate commitment: Petrochemical and cementconsumption, industrial domestic and commercial • Purchase offsets with Electricity and water consumption, energy revenue

— Not applicable. a. Data from 2008 Kahramaa Annual Report were split, with 24% going to industrial use and 76% going to domestic use.

Qatar’s carbon dioxide emissions are comparatively emitter (table 6.2). But Qatar would be ranked much low—about 0.2% of the world’s total. But as a major lower if only emissions stemming from consumption energy-producing country with a small popula- were measured. Qatar lacks forests and green areas tion, Qatar is unfairly penalized when carbon diox- to offset the effects of greenhouse gas emissions. ide emissions (from production and consumption combined) are measured on a per capita basis. By Qatar is committed to working with other coun- this yardstick Qatar emerges as the world’s highest tries to address global climate change and to

Table 6.2 Qatar is ranked 58th in total carbon emissions but 1st in per capita carbon emissions (carbon dioxide emissions, 2005)

Per capita emissions Total emissions Tonnes Thousands of Country per year Rank tonnes per year Rank Qatar 16.73 1 13,596 58 Kuwait 10.39 2 25,542 40 United Arab Emirates 7.5 3 33,770 33 United States 5.32 4 1,576,537 1 China 1.16 85 1,514,126 2 Russia 2.87 26 410,290 3

Source: Carbon Dioxide Information Analysis Center (2005).

Sustaining the environment for future generations 223 eliminating inefficiencies that raise carbon Target dioxide emissions. Qatar, like its neighbours, is • Halve gas flaring to 0.0115 billion cubic metres highly vulnerable to the various shifts that may per million tonnes of energy produced from result from climate change. Qatar is among the the 2008 level of 0.0230 billion cubic metres 10 countries that would be most affected by a per million tonnes of energy produced. rise in sea level, which could damage coastlines and marine life. If average temperatures rise, Reduced waste, more recycling and demand for water could increase, along with more efficient use salinity in the groundwater. Climate change scenarios envision more weather extremes, which Globally, affluent societies tend to produce large could mean heavy local flooding and sand- quantities of waste. Qatar is no exception. With an storms. Meanwhile, climate-related stresses in active construction business, extensive hydrocar- other countries could affect the price and avail- bon sector and growing number of high-income ability of food imports. households, Qatar creates more than 7,000 tonnes of solid waste each day. Much of it is crowded into In recent years Qatar has taken major steps to landfills; the underdeveloped recycling industry reduce carbon emissions—especially from gas handles only 8% of the waste. flaring, which accounts for about 12% of total emissions. Emissions from gas flaring are among Domestic waste from households, markets and the most readily reduced. The steps include leg- office buildings accounts for about 30% of the islation to limit emissions, investment in cleaner waste, while nondomestic waste from commercial, technologies and improvements in industrial pro- construction and industrial sites accounts for the cesses. Innovative research is under way on new rest. Currently 91% of nondomestic waste is taken carbon capture technology and sequestration in directly to landfills, and the bulk of what is eventu- carbonate reservoirs for storage of carbon dioxide ally recycled is picked through by companies that from the oil and gas industries. sift through the waste at the landfills. Environ- mentally sound waste management—including In 2007 Qatar introduced its first United Nations the monitoring, collection, transport, processing Framework Convention on Climate Change and disposal of waste materials—is essential in Clean Development Mechanism, the Al-Shaheen protecting human health and livelihoods. Oil Field Gas Recovery and Utilization Project, which reduced flaring by about 80%. Facilities Qatar will adopt a multifaceted strategy to con- to be completed at the Al-Karkara field by 2011 tain the levels of waste generated by households, have been designed to achieve zero gas flaring by commercial sites and industry and to recycle much injecting excess sour gas back into the reservoir. more of what waste is generated. In approaching Transport technology that can carry 80% more the challenge of improved waste management, the liquefied natural gas than current carriers can government recognizes a hierarchy of actions to will substantially reduce energy used per deliv- alleviate pressures on the environment, with the ered unit. most preferable goal being the avoidance of waste (figure 6.5). Where waste cannot be avoided, the The National Flaring and Venting Reduction Pro- preferred goals would be to reduce it, reuse it and ject will further reduce emissions from gas flaring, recycle it, and the least desirable action is to dis- initially targeting the largest companies respon- pose of materials. The measures proposed in the sible for the bulk of flaring-related emissions. By National Development Strategy 2011–2016 will 2016 the government is committed to halving the enable Qatar to progress up the waste manage- volume of gas flaring to 0.0115 billion cubic metres ment hierarchy towards the most preferable out- per million tonnes of energy produced. come of avoidance.

224 Qatar National Development Strategy 2011–2016 a h c pter 6

Figure 6.5 Waste management hierarchy There will be five transfer stations (South Doha, West Doha, Industrial Area, Dukhan and Al-Khor) Most preferable equipped with collection bunkers for separating recyclables such as glass, paper, aluminium and Avoid plastic, which will help reduce the quantity of waste.

Reduce To capture the benefits of source separation, a proposed new material recovery facility will han- Reuse dle pre-separated recyclables from domestic and Recycle nondomestic waste. The facility will further reduce waste sent to landfill to 53% and boost waste recy- Recover cled to 38% by 2016. In the longer term a nondomestic waste management centre will be required Treat to further increase recycling. Dispose New policy initiatives will encourage recycling firms, transport companies, trading firms selling Least preferable recyclable exports and manufacturers that use recycled material. For example, the government may consider providing subsidized land and utili- Establishing a solid waste management plan ties to encourage more firms to enter the recycling business. The Waste Recycling Committee, in part- The critical step will be establishment of a com- nership with the Ministry of Business and Trade, prehensive solid waste management plan to coor- could arrange subsidies to jump start the local dinate responsibilities, activities and planning. recycling industry, subject to review after five years. The plan, to be aligned with the Qatar National Public awareness campaigns will encourage waste Master Plan, will cover households, industry and separation, collection networks and recycling bins. commercial establishments, and construction and demolition. The plan will also provide classi- To generate new recycling activity, the government fications for different types of domestic and non will sponsor demonstrations and public aware- domestic waste, mapping their sources. ness activities. Citizens will be made aware of the opportunity to use recycled products, such as fur- Special attention will be focused on supporting niture made from recycled wood or the 300 tonnes recycling, incentivizing waste reduction, promot- of compost produced daily in Mesaieed. Citizens ing source separation and developing a robust also will be encouraged to see waste reduction and recycling sector. Several initiatives will help build recycling as an ordinary responsibility, adopted up the recycling industry. out of respect for future generations.

The government has established an integrat- Currently, most of Qatar’s nondomestic waste ends ed domestic solid waste management centre in up in a single landfill, at Umm Al Afai, which has Mesaieed that will be operational in late 2011. The become a nuisance for neighbouring communities. centre is expected to reduce the share of domestic The government will formulate plans for closing this waste disposed of in landfills to 3%–5%, thereby landfill at the earliest possible date, once an alterna- reducing the share of total waste sent to landfills tive site for the nondomestic waste is established. from 92% to 64% (figure 6.6). It will also convert waste to energy and raise the level of waste recy- Hazardous waste is a special concern, but there cling from 8% to 20%–25%. are no organized data on the nature and locations

Sustaining the environment for future generations 225 Figure 6.6 Qatar’s existing and prospective plans for waste management

With nondomestic waste (70% of total) still to be With source separation and material recovery to increase addressed and most of it going to land ll recycling to 38% and limit land ll to about half— awareness raising is key to success

Waste generated Waste generated 7,156 tonnes per day 7,156 tonnes per day

91% of nondomestic 75% of nondomestic

70% 70% nondomestica nondomestica 25% 9% of nondomestic c of nondomestic c 4,981 tonnes Recycling 4,981 tonnes 42% of domestic Recycling per day 23% per day 38% of total of total 55% of domestic Material recovery d 31% of 41% of domestic Waste to facilities domestic Waste to energy Landﬁll: 64% of total energy Landﬁll: 53% of total DSWMC DSWMC 30% 2010 Integrated 13% 30% 2010 Integrated 9% domesticb Domestic Solid Waste of total domesticb Domestic Solid Waste of total 25% of 2,175 tonnes Management Centre 2,175 tonnes domestic Management Centre per day 100% per day of domestic 3% of domestic 75% of domestic 3% of domestic

Transport to Domestic Solid Transport to land ll Waste Management Centre Direct to recycle market Transport to waste to energy plant Waste separation point (two bin system)

a. Includes furniture, packaging waste, some electrical appliances and discarded items from construction activities that are described as development or maintenance waste (such as concrete formworks, pipes, ceramics, glass, metal and the like. b. Includes mixed household and commercial (office and market) waste. c. Includes composting. d. A single material recovery facility could be used in place of multiple facilities if a nondomestic solid waste management centre is constructed near the domestic solid waste management centre. of hazardous waste, no capacity for its reduction support system that needs to be protected over or recycling and no treatment capability for com- time. In Qatari culture, natural conservation is bustible or radioactive waste. The Solid and Haz- understood to be a religious and moral duty. ardous Waste Management Framework, adopted in 2009, will yield a detailed and comprehensive In Qatar, as in many countries, biodiversity is plan for coordinated waste management responsi- facing threats from a range of human activities. bilities, taking into account all sources. Population growth and rapid urbanization have put pressure on the delicate balance of natural Targets endowments, crowding out some elements in the • Establish a solid waste management plan, biodiversity mix. Construction and industriali- strongly emphasizing recycling. zation are impinging on fragile coastal habitats • Recycle 38% of solid waste, up from the current 8%. and disrupting marine life. International ship- • Contain domestic waste generation at 1.6 kilo- ping and trade have introduced invasive species grammes per capita per day. that pose threats for indigenous species. Over fishing has emerged as both an ecological con- Nature and natural heritage conserved, cern and a threat to future food supply. As a protected and sustainably managed result of all these trends, some 31 species, ranging from the Arabian oryx to the green turtle Qatar’s biodiversity is equally a part of its herit- and the brown shark, are categorized as threat- age and its future, embedded in the natural life ened with extinction.

226 Qatar National Development Strategy 2011–2016 a h c pter 6 Climate change also has implications for Qatar’s Surveys by the Environmental Studies Center, biodiversity, but scenarios remain imprecise. Nev- Qatar University, the Friends of the Environment ertheless, warmer sea temperatures and higher Centre and private companies have yielded con- sea levels will inevitably disrupt marine ecosystems flicting data on the species present in Qatar. The in ways that could create new strains for future confusing mix of findings underscores the need generations. for a reliable and comprehensive biodiversity database and careful monitoring of changes. Creating a national biodiversity database The National Development Strategy 2011–2016 To support needed analysis and eventual protec- envisions a series of practical steps, beginning tion of the country’s biodiversity, the government with establishment of a central database by 2016 will back detailed surveys that establish biodiver- to inform decision-making, improve management sity baselines to enable decision-makers to build plans and support regional activities. The data- new protections based on solid evidence. base will draw on international best practice in design and could eventually be extended to cover Qatar has already experienced a preview of some the entire Gulf Cooperation Council. Regional of the biodiversity strains brought on by climate databases exist in other parts of the world and change. In 1996, 1998 and 2002 the Arabian Gulf are connected with global information sources, experienced record ocean heat, with tempera- but none currently exists in the Gulf Cooperation tures rising as high as 38 degrees Celsius, that Council (figure 6.7). stressed the marine ecosphere. The turtle populations of Qatar, one of the country’s most famous A few rehabilitation projects can raise awareness and endangered species, are particularly sensi- and demonstrate the value of restoring habitats tive to climate change. If temperatures contin- and protecting vulnerable species. Expanded and ue to rise, experts warn of the potential for mass more actively managed protective areas can help deaths of turtles and fish, coral bleaching, flood- specific mammal or marine populations regain ing of sea turtle nesting grounds and a substan- healthy reproduction patterns away from the tial increase in jellyfish. Systematic monitoring of stresses brought on by human activity. Environ- Gulf sea temperatures, taking into account sea- mental impact assessments that incorporate bio- sonal variations, thus needs to be part of the pro- diversity analyses would be required for any new posed database. industrial, infrastructure or real estate project.

Meanwhile, it is now understood that overgraz- Experts have come to view marine life as a finite ing extensive areas of grassland has resulted in a resource, like oil or water, under pressure from a loss of grasses and plant types and in a general population growing in wealth and size. Since 1995 decrease in vegetation density. This in turn has the total catch in Qatar’s seas has quadrupled, reduced animal life, increased wind erosion and with most of the fish locally consumed. But in a caused losses in soil fertility. trend that highlights a worsening sustainability problem, the total catch in 2006 continued to rise Ensuring that protected zones and national parks —despite a freeze on new commercial licences— function constructively is also a challenge. Qatar while the per capita catch began to drop. has six protected areas, covering 22% of its land surface, but studies conclude that the network has Several fish species are being depleted, though not realized its potential. A national park must precise data are not yet available. More thorough protect and monitor designated species, while pro- regulation and consistent enforcement will be moting safe ecotourism, and, where appropriate, vital to conserving this critical resource. Support- allow hunting and grazing. ive fishing technologies—such as net meshes that

Sustaining the environment for future generations 227 Figure 6.7 Qatar’s biodiversity management framework is contingent on the availability of a comprehensive biodiversity database

Protected areas Environmental impact assessments Managed by the Ministry of Environment. Create, manage and evaluate protected Managed by the Ministry of Environment. areas of Qatar. Frontline assessment of industrial, infrastructure and real estate projects’ impact on biodiversity.

Comprehensive biodiversity databasea Rehabilitation projects

Living marine resources exploitation laws Managed by the Ministry of Environment, with some examples of private programmes. Managed by the Ministry of Environment. Focus on largest pressing issues. Laws pertaining to limits on shing and Projects usually involve public-private direct consumption. partnerships.

a. Database would involve survey of existing species, populations and extinction threat level. Once established, monitoring of data would continue to expose endangered species. allow young fish to swim free—can reverse some • Destruction and bleaching of coral reefs. of the effects of overfishing; aquaculture, which • Increase in red tides, which stem from concen- has helped other countries lessen the pressure on trations of microscopic algae that create toxins fish populations, also holds potential. dangerous to fish and humans. • Increased coastal flooding and erosion of The government will introduce a series of liv- coastal habitats, including nesting areas for ing marine resources laws that limit fishing and turtles. consumption for threatened species. Preventing overfishing is an enormous challenge. Qatar’s The additional stresses brought about by climate Fisheries Department is currently understaffed, change add new challenges. These include accel- contributing to ineffective monitoring systems erated coastal erosion, higher sea-surface temper- and an overall increase in the fish catch despite atures and changes in the distribution of patho- restrictions designed to lessen the pressure on fish genic microorganisms. Together, the shifts could populations. substantially affect marine biodiversity.

Win-win opportunities for economic and environ- Targets mental gains exist. Qatar can benefit from devel- • Establish a comprehensive electronic biodiver- oping effective regulations that will increase fish sity database. stock levels while diversifying its economy through • Expand actively managed protected areas. the creation of a domestic aquaculture capability to meet future demand (see chapter 3). More sustainable urbanization and a healthier living environment Apart from overfishing, stresses on an array of marine species have been evident in recent years: Doha has grown exponentially, supported by a • Mass deaths of turtles and marine mammals. construction boom of striking contemporary

228 Qatar National Development Strategy 2011–2016 a h c pter 6 buildings. But the capital lacks the benefits that plans a network of green spaces as ribbons of urban green spaces provide. Much of the city is tree-lined areas rather than large, open parks. devoid of sidewalks, bicycle lanes and tree-filled areas closed to automobile traffic. People are sur- By 2016 there would be three tree-shaded corri- rounded by buildings and, at peak times, con- dors free of car traffic. Planners will also design gested roadways. To continue Doha’s expansion green spaces within future construction pro- without incorporating greenery and open spaces grammes. There would be two green infrastruc- would increase Qatar’s sustainability challenges. ture plans—a new residential area and a commer- Urban conditions over time would become more cial zone—plus a third parcel for mixed use. City crowded, and more subject to noise and pollu- managers will produce an annotated map showing tion. Bringing a green dimension to urban plan- existing planting schemes. Added to these will be ning could strengthen sustainability and make demonstration planting schemes providing shelter cities more liveable. The risk of respiratory dis- and shade. One inner city green route, between ease and the strain of congested and sedentary high-rise blocks and the City Centre Mall, will pro- living patterns would diminish for future gen- vide shade and greenery. erations. Health problems such as the high rates of obesity, heart disease and diabetes would be A greener capital will support other environmen- lessened. tal priorities. The addition of broad canopied trees should help improve air quality by absorbing The absence of green space is not inevitable. pollutants and trapping windblown sand and dust. Other densely populated cities such as Hong Certain solid waste could be converted into com- Kong, Mexico City and Singapore have spaces set post and used as a planting base. In addition, the aside for greenery and recreation. The world’s surplus water gathering in the city’s rising water best known and most visited cities are as a rule table could be drawn down to maintain the vari- enriched by parks, tree-lined avenues, public gar- ous green spaces. The added green spaces and dens and leafy residential areas. These features trees would likely support the goal of protecting make cities more liveable and attractive and animal habitats, because migrating birds could yield two public health benefits. First, people are nest in the city’s trees. drawn outdoors for recreation and leisure; second, the trees filter pollution and cool the air. In Target addition, greener, more liveable cities are more • Establish three shady greenspace corridors in appealing to high-skilled expatriate families and Doha and monitor their effect on urban air tourists, which Qatar would like to continue to quality and health. attract. An increasingly environmentally aware Functional green spaces population

Significant shifts in the makeup of Doha are Successful environmental management will envisioned. The government is devoting spe- require active engagement through society. Large cial attention to the urban environment, which commercial corporations and policy-makers affects the lives of its citizens. Although Doha’s have important roles to play. And so does every initial design did not incorporate green spac- individual. es, the government’s strategy for improved environmental management calls for the city There has been increased reliance on the automo- to be retrofitted in ways that more effective- bile as well as high electricity and water consump- ly balance the natural and built environment. tion, including frequent car washing and lawn To make Doha a greener city, the government sprinkling using the country’s scarce desalinated

Sustaining the environment for future generations 229 water. Air conditioning accounts for two-thirds of and practice. New construction projects—such as the electricity used for residential purposes. More- the planned airport—could also showcase design over, Doha’s skyscrapers are often continuously features for green buildings. air-conditioned and fully lit. The present patterns of growth and consumption need to be better Targets managed in order to secure health and prosperity • Build an environmentally aware society. for future generations. • Appoint a well known national champion for the environment to raise awareness and com- There is also evidence that a deeper environmen- mitment through demonstration projects and tal awareness is growing. For example, schools have conversation partnerships. added environmental studies programmes to the curriculum. Civil society organizations focused Improved governance and regional and on the environment—including the Qatar Green international cooperation Centre, the Friends of the Environment Centre, the Barwa Qatari Diar Green Buildings Institute, The government recognizes that transitioning to the Qatar Natural History Group and the Qatar sustainable environmental management requires Bird Club—are building membership and sup- effective and accountable institutions. Govern- port. Although these groups do not yet have the ment teams will require unambiguous goals plus clout of similar nongovernmental organizations clear lines of responsibility for delivering on them. in countries where the environmental movement Decision-makers will need to identify areas where is further established, they show that Qatar har- international expertise can be tapped, so that bours an environmental consciousness that can be Qatar can benefit from the most innovative think- strengthened and expanded. ing as it approaches one of the world’s most challenging sets of environmental vulnerabilities. Environmental awareness Government will be making critical decisions on The government will enlist the population in sup- uses of water and power, airborne emissions, waste porting and sustaining improved environmental management and conservation of the natural management. The campaign to protect Qatar’s endowment. A culture of evidence-based policy- environmental endowment can draw on founda- making will be needed, to be backed by informational values embedded in the country’s religious tion systems that ensure both informed decisions and cultural heritage. The notion of protecting at the outset and continuous monitoring to guar- the environment for the benefit of future genera- antee compliance and, over time, to measure tions has broad appeal. impact.

To make the environmental movement more vis- Environmental information database ible and influential, the government plans to appoint a respected national figure to serve as a Comprehensive and accessible documentation champion for the cause. Demonstration projects will be needed at all levels. Knowledge sharing— can also have an impact. A far-reaching schools across ministries and between government and and environment programme can build on the the private sector—will be encouraged. Private United Nations Children’s Fund Ecoschools pro- sector actors, academics and research institutes posal, with links to local initiatives underway at will be fully informed and given incentives to seek the Qatar Green Centre and the Friends of Envi- solutions to particular environmental challenges. ronment Centre. Specific industries, such as office management and communications, will be encour- To make concrete the principles of gathering aged to demonstrate the benefits of green design and sharing better information, the Ministry of

230 Qatar National Development Strategy 2011–2016 a h c pter 6 Environment will mandate new reporting require- Target ments, with all major industrial companies submit- • Create a searchable electronic information ting quarterly environmental performance reports source at the Ministry of Environment. covering their emissions, water discharge and hazardous waste treatment. Policy-makers will pro- Strategic partnerships vide a template for all companies to use for these reports. Addressing environmental concerns is a cross- generational, cross-border exercise. One key func- The ambitious pace of change in management of tion of government in the environmental sector is the environment will place significant demands to forge strategic partnerships with neighbouring on the Ministry of Environment. Despite recent countries as well as private firms and international investments in training, there remain shortages organizations such as such as the United Nations of professionals with needed scientific skills. The Educational, Scientific and Cultural Organization, ministry will need to strengthen capacity so it can the United Nations Environment Programme and fully monitor the environmental impact of a rap- the World Health Organization, which can pro- idly expanding economy. vide key knowledge, human resources and technology. Qatar’s environmental challenges are shared The government will recruit technical special- to some degree by countries in every region of the ists to guide the development of standards for world. Qatar will adopt an outward-looking, inter- resource management and environmental pro- nationalist view to build partnerships that maxi- tection. To advance a practice of “joined-up mize the chance of successfully adapting both government,” the National Development Strat- policies and technologies. The government will egy 2011–2016 envisions stronger interdepart- support several Qatar scholars each year to pre- mental dialogue on environmental issues, pare them for environmental leadership. including interministerial exchanges and staff secondments. Within the Gulf region countries share the challenges of hydrocarbon-driven growth and desert When new investments and projects are under- conditions, including water scarcity. Moreover, taken, sponsors will need to carry out environ- because pollutants do not stop at national bor- mental impact assessments covering foreseeable ders, environmental problems spill over, requiring consequences for the environment, including ani- regional rather than national solutions. Strong mal and plant life, and plans to mitigate negative regional cooperation will require continuous impacts. diplomacy and cooperation at all levels. Just as the national government will require national data- Gathering such assessments in an environmen- bases to support environmental regulation and tal information database, accessible to the pub- policies, the Gulf region will need regional data- lic, could eliminate inefficiencies. Currently, such bases to support regional initiatives. studies are neither centrally stored nor accessible. Companies often undertake studies that others Given its resources and commitment to strong have already completed. environmental management, Qatar has the opportunity to assume a leadership role in the environ- A central information repository could combine mental field. By continuing to work with countries data from Qatar’s Biodiversity Database, its Air in the region through platforms such as the Gulf Quality Management Project and its Waste Man- Green Initiative and through international envi- agement Project. Keeping this information base ronmental protocols, Qatar can build some of the current, coherent and accessible will facilitate critical links with governments, think tanks and links between science and environmental policy. the private sector.

Sustaining the environment for future generations 231 There are specific areas where Qatar could estab- Deepening the national commitment— lish leadership. For example, Doha could be held creating the knowledge base up as a demonstration city for innovation in managing problems related to rising urban water tables. The National Development Strategy 2011–2016 is Other leadership opportunities exist in Qatar’s designed to guide Qatar through a crossroads, bal- establishment of a regional air quality monitoring ancing rapid economic expansion with protection programme and a regional biodiversity database. for the environment and the natural endowment. The environmental programme calls for a range of The National Development Strategy 2011–2016 policies and investments to offset the stresses of rapid calls for the government to lead at least one population growth, industrial activity and urbaniza- regional environmental project by 2016. Such tion (box 6.1). Equilibrium between growth and eco- platforms as the Gulf Green Initiative and other logical sustainability will support the national foun- international environmental protocols and agree- dational commitment to intergenerational equity. ment are opportunities for dialogue and regional leadership. All governments are seeking ways to New policies will require careful analysis of cur- encourage investment in technologies that protect rent evidence, along with modelling of future the environment and to develop strategies for reg- trends. New environmental technologies require ulating environmentally damaging activities. research, regional and global links and adaptation to local conditions. Management systems will need The private sector’s role in environmental conserva- to adjust. Taken together, these requirements tion and preservation is critical and is understood point to a knowledge agenda that underlies the in the context of corporate citizenship. Companies shift to improved environmental management. can be a source of pollution as well as incubators of innovations that can restore the ecological bal- As with any ambitious agenda for governance, the ance. Examples of corporate citizenship should be government will develop new capacities and areas applauded—such as Qatar Petroleum’s sponsorship of expertise, including: of research into sea turtles, a species threatened by • Institutional ability to write and enforce regulations. extinction. To encourage more public-private col- • Mechanisms for tracking the environmental laboration, the National Development Strategy impact of various economic activities and the 2011–2016 calls for at least two projects to be imple- growing economy in general. mented with the private sector by 2016. • Techniques for measuring shifts in the marine environment, water supplies and air. As Qatar diversifies beyond hydrocarbons, there • An approach for monitoring groundwater lev- is clear potential for the country to become a els, because aquifer reserves are being depleted global leader in the environmental sector. Fron- at an unsustainable rate. tier research and development initiatives current- • Models for tracking and monitoring the health ly under way at the Qatar Foundation’s Qatar Sci- of endangered species. ence and Technology Park can help realize this potential. Doha may emerge as a global labora- Longer term, Qatar will need sophisticated envi- tory for addressing urban water tables, creating a ronmental institutions capable of building public biodiversity database and launching a regional air awareness, encouraging the most promising tech- quality monitoring programme. nologies and carrying out environmental research.

Target Knowledge in managing scarcity • Lead one regional environment effort, and launch two environmental projects involving Over time, Qatar will need to become adept at private sector participation. managing scarcity. For example, by substituting

232 Qatar National Development Strategy 2011–2016 a h c pter 6

Box 6.1 Major environmental interventions carry knowledge demands

Qatar will support 11 projects to strengthen national • Targeted recycling: employing public-private environmental management across all key sectors. cooperation to jump start the underdeveloped Through a lens of knowledge building, each interven‑ recycling industry. tion will require study of global experience, assess‑ • National biodiversity database: developing a ment of local economic, social and environmental comprehensive conservation programme to conditions, and careful adaptation. Evidence-based create a benchmark study of local species and policy-making in each area will carry extensive knowl‑ doing more to protect them through conservation edge demands. The 11 projects called for in the areas, rehabilitation of habitats, environmental environmental strategy from 2011 to 2016 are: impact assessments for development projects and new legal guidelines on consumption. • National water act: creating an integrated gover‑ • Functional greenspaces: creating a network of high- nance framework for water regulation. canopy greenways in Doha, equipping the city with • Urban water table mitigation: carrying out re‑ a natural respiratory system that could reduce pollu‑ search, measurement and rule-making to man‑ tion and provide shade and recreation for residents. age Doha’s rising water table. • Environmental awareness raising: making a broad • National flaring and venting: creating systems communication effort to shift public sensibilities for monitoring gas flaring in Qatar, establish‑ with respect to balancing economic prosperity and ing flaring guidelines and developing a plan for environmental protection, critical to building sup‑ reduction. port for environmental management into the future. • Air quality management: establishing a database • Environmental information management: creat‑ and regulatory structure to mitigate unhealthy ing a searchable, electronic data source on the airborne contaminants. environment—fully accessible and kept current • Solid waste management: creating structures within the Ministry of Environment. and guidelines to encourage recycling and reduce • Strategic partnerships: encouraging regional waste generated by domestic and commercial collaboration to mitigate the effects of pollution establishments. arising from development activities.

knowledge or technology for water, all users hazardous materials, and biodiversity. The govern- could get the maximum benefit out of the water ment will build new databases and formulate new they draw from the country’s limited supply. ways of managing knowledge. Understanding tariff structures and demand management will be crucial as the government In some respects, knowledge development has not creates fee structures that discourage waste and kept pace with the country’s unprecedented eco- incorporate at least partial cost recovery. Such nomic expansion, urbanization and population structures can be consistent with the govern- growth. Qatar will emphasize a scientifically astute ment’s concerns for equity, because more water generation, comfortable with technological inno- will be available for everyone when wasteful use vation and change. is discouraged. In many areas, Qatar has demonstrated a capacity Knowledge for sustainability requires a relia- to set goals and achieve them. Its successes in the ble and detailed profile of the present situation energy sector supported investments that helped that takes into account water use and discharge, achieve high human development. Basic and sec- air quality and emissions, solid waste including ondary education are now universal, and over two

Sustaining the environment for future generations 233 decades child mortality was halved and several dis- connect to a balanced programme of growth and eases were eradicated. conservation of resources.

The government has also actively addressed The need for integrated thinking and cross- knowledge and capacity deficits that could sectoral coordination is central in addressing impede development of environmentally sustain- stresses in the water system, for example. Inte- able management systems and a knowledge-based grated water management involves an entire value economy. In 1995 the Qatar Foundation, with chain, beginning with a balanced economic struc- $2 billion in resources, began investing in edu- ture and targeted population growth carrying cation, research and capacity development at all through to a recycling phase (figure 6.8). Stake- levels. It supports a variety of programmes based holders span many corners of government, requir- at international universities operating in Educa- ing the Ministry of Environment, operating at the tion City. The fund also supported the 2009 crea- centre, to develop the skills for cross-sectoral net- tion of the Qatar Science and Technology Park, working, planning and execution. focusing on energy, environment, health sciences and information and communication technology. Culture of information sharing A competitive research programme managed by the Qatar National Research Fund brings togeth- Equally important in the long-term agenda, Qatar er academia, government and the private sector. will develop the capacity and the culture for rou- In 2006 the government committed to spending tinely processing, sharing and interpreting infor- 2.8% of GDP on research, bringing the level of mation. This, in turn, requires an open, trans- government research support up to that of the parent culture where knowledge bases are kept world’s major industrialized economies. current and easily accessible. Enlarging the discussion space for full participation by the private sec- Other countries are embarking on similar strug- tor and civil society will help encourage new solu- gles to establish clear policies for environmen- tions to environmental challenges. tal sustainability, but there is no internationally accepted index for measuring progress or set- The Ministry of Environment collects an abun- backs. For example, loss of marine biodiversity dance of information, but reports come in differ- is not well defined or integrated into any widely ent formats, and few are regularly made available used models. In some areas experts are still debat- to the public. ing which concepts are applicable and have yet to identify the data to be collected. Further off still In establishing functional knowledge systems, is the development of indicators for measuring the government will be in a strong position to improvement. monitor both compliance with and impacts of new policies and regulations. The government Integrated knowledge will employ various vehicles for strengthening the knowledge base for environmental management. In moving to a comprehensive model of sus- Potential approaches include the following. tainable growth, Qatar will nurture analytical approaches that cut across disciplines. Although Pilot projects and demonstrations. Officials can learn many specialized forms of knowledge and tech- from experiences carried out on a small scale nical skills will be needed, the government will before moving to systemic changes. Possible dem- work towards an integrative system, avoiding the onstration projects include: development of knowledge in separate, parallel • A pilot programme testing the use of recy- cylinders. The education system will support a cled, nonpotable water to irrigate urban green more diverse productive base, which in turn will spaces.

234 Qatar National Development Strategy 2011–2016 a h c pter 6

Figure 6.8 Integrated water management across the value chain

Natural Recycle Action in resources Production Distribution Consumption and reuse value chain Evidence-based policy and regulatory considerations Upstream Downstream

• Structure of • Environmentally • Environmentally • Environmentally • Environmentally economic activity friendly technology friendly technology friendly technology friendly technology • Targeted population • Adequate • Adequate • Adequate • Adequate growth and ef cient and ef cient and ef cient and ef cient Cross- • Urbanization, infrastructure infrastructure infrastructure infrastructure sectoral strategic land use • Economic and • Economic and • Pricing, incentives • Sustainable waste dimensions and food security production production and regulations management ef ciency ef ciency • Water use education • Education and • Health and safety • Health and safety and awareness awareness

Environmental conservation

Cross-sectoral coordination by Ministry of Environment • General Secretariat • Ministry of • Ministry of • Ministry of • Ministry of for Development Environment Environment Environment Environment Planning • Kahramaa • Kahramaa • Ministry of Economy • Ashgal • Ministry of Economy • Ministry of • Ashgal and Finance • Ministry of and Finance Municipality and • Ministry of • Supreme Education Municipality and Key • Ministry of Urban Planning Municipality and Council Urban Planning stakeholders Environment • Supreme Council of Urban Planning • Qatar Statistics • Supreme Education • Ministry of Health • Supreme Council of Authority Council Municipality and • Qatar Statistics Health • Civil society • Qatar Statistics Urban Planning Authority • Qatar Statistics • Research and Authority • Qatar Statistics • Research and Authority development • Research and Authority development • Research and institutions development institutions development institutions institutions

• Demonstration projects involving recycling. • A regional biodiversity database. • Tree-planting demonstration projects in Doha. • Demonstration projects to showcase green Knowledge relationships in the region will be par- office spaces. ticularly useful in understanding the realities of climate change. Different regions and countries Research. Specific studies can fill identified infor- can expect different shifts over time. But desert mation gaps. Examples include: coastal countries whose economies depend on • A hydrology study to understand the extent hydrocarbons may face similar challenges and and impact of seawater inflows along the coast. could benefit from pooling information. • A study of urban air temperatures showing the variations between green, leafy areas and Knowledge can be acquired and lodged in elec- blocks filled with buildings and roadways. tronic databases or published studies, but Qatar • Studies of human health and air quality links. will ultimately need a population capable of critical thinking, along with the necessary scientific exper- Partnerships and cooperation. Links allow a form of tise and training to assess environmental challeng- knowledge building that is dynamic and fluid. es and tailor solutions that enable the country to Examples include: honour its obligations to future generations. • An international conference on rising urban water tables. To maintain support for sustainable environmen- • A study of practices in low-flaring countries tal management and intergenerational equity, pol- such as Canada and Norway. icy-makers will need not only to make knowledge • A regional air quality conference. available but also to make it accessible and relevant

Sustaining the environment for future generations 235 to citizens. The effort will require openness as well and environmental impact of production, renew- as strategic awareness-building. Information will able energy applications that lower carbon diox- have to be distilled and presented in formats that ide emissions and alternative transport strategies. nonscientists can grasp—without oversimplifying Building an education system, a network of part- or distorting the content. nerships, a private sector policy and a research strategy that makes such breakthrough innova- Citizens will need to understand what is at stake in tions more likely will be among the government’s the paradigm shift that the government is setting in key knowledge efforts. motion and what they and their families have to gain. Individual commitments to saving water and electric- Fostering cross-sectoral links ity and avoiding unnecessary car travel will require programmes to inform and mobilize. Without such In many respects, tackling environmental chal- efforts, concern for the environment will become lenges lies at the heart of the broader paradigm a preoccupation of only a small circle of elites. shift envisioned in QNV 2030. The goals of a more diverse economy built on knowledge develop- To maintain momentum, the government will ment, a highly trained population and capacity for capture and make known experiences of measur- innovation all feed into improved environmental able progress—for example, restraint in the use of management. In turn, progress in solving Qatar’s desalinated water, new recycling activity, energy- environmental problems would advance the other saving efficiencies in buildings and reductions in development goals. natural gas flaring. Qatar’s strategy for improved environmental man- Building the human capital for sustainable envi- agement is at the centre of the larger National Devel- ronmental management will require a clear assess- opment Strategy 2011–2016 (figure 6.9). The envi- ment of the existing knowledge and current capac- ronmental programme will be supported by other ity needs. Consultations with relevant institutions priorities, such as diversifying the productive base and stakeholders will be part of such an exercise. and creating an education system that supports the principle of sustainable development. At the same Finally, placing Qatar’s resource management time, in achieving the environmental goals Qatar will on a sustainable path for future generations contribute to a more diverse economy and a health- will depend on critical innovations, such as new ier population. The two-way links will add momen- desalination technologies that minimize the cost tum to achieving the full array of strategic targets.

236 Qatar National Development Strategy 2011–2016 Figure 6.9 Environmental sustainability is both a goal and an enabler to achieve the aspirations of Qatar National Vision 2030

Other sectors as enablers for environmental sustainability

Adopt environmentally Establish school curriculum friendly behaviour within containing principles family and household Family cohesion of sustainability and women’s Education and empowerment training and culture

Monitor health and Ensure sustainable and Natural resources safety standards and Environmental efﬁcient natural Healthcare sustainability management safeguard against risks resource use

Economic diversi cation, Population, labour private sector growth, force and Qatari Develop sustainable economic employment Balance population growth economic structure and infrastructure and sustainable green technologies urbanization

Goal Enabler

Environmental sustainability as an enabler for other sectors

Reduce environmental risks Increase environmental awareness and to families living near encourage sustainable production and industrial areas Family cohesion consumption practices and women’s Education and empowerment training and culture

Develop healthier living Environmental Natural resources Encourage sustainable and working environments Healthcare sustainability management consumption of natural resources

Economic diversi cation, Population, labour private sector growth, force and Qatari Foster diversiﬁcation economic employment Create more comfortable into green industries infrastructure and inspiring places to live and work

237 Part 3 Institutions and implementation Part 3 Institutions and implementation Chapter 7 Developing modern public sector institutions Chapter 7 Developing modern public sector institutions 7 Developing modern public sector institutions

Qatar needs strong public sector institutions to reach the goals of Qatar National Vision 2030 (QNV 2030) for social progress, human development, a sound and diversified economy and a sustainable environment. Achieving these goals will require institutional and organizational capacity building, efficient and transparent delivery of public services, fruitful public-private cooperation and partnerships, a vibrant climate for business and a larger space for civil society.

Qatar’s institutions of public administration are six Supreme Councils. The Cabinet is charged evolving rapidly and striving to meet the needs with overseeing policy execution. The Secretariat of citizens and customers of institutional services. of the Council of Ministers (Minister of State for The Public Sector Development Project of 2007 Cabinet Affairs) provides a critical link between recommended changes in the institutional frame- the ministries and the Prime Minister/Council of work. It motivated the government’s 2008 restruc- Ministers. Ministries and other government agen- turing and the move towards a ministry portfolio- cies report to the Cabinet and are responsible for based approach of aligning accountability for a executing the relevant public policies and pro- given policy area within one ministry, improving grammes. The Supreme Councils provide opinion governance, focusing on outcomes, increasing and advice, as well as having regulatory responsi- cross-ministry coordination and reducing frag- bilities. To support transparency, accountability mentation in decision-making. and governance, several central agencies report directly to the Emir and the Heir Apparent, Improved service delivery depends on credible, including the State Audit Bureau, General Secre- client-focused and capable institutions that deliv- tariat for Development Planning (GSDP), Public er timely and accountable services to citizens and Prosecution and the High Committee for Trans- respond to their concerns. Achieving that will parency. About 90,000 employees, Qataris and require an unwavering commitment to moderniz- expatriates, work in the government and other ing all aspects of government that cuts across all public sector institutions. sectors and areas of society. Continuously searching for ways to make institutions more efficient Public sector development and modernization will strengthen Qatar in prosperous times and will focus on developing the capabilities of these buffer it against shocks in recessionary times. institutions of the state and on strengthening institutional collaboration. Building the foun- Qatar’s government structure includes ministries, dations of the future state and ensuring high Supreme Councils and other government agen- levels of government performance will require cies (figure 7.1). Their Highnesses the Emir and extensive collaboration and a culture of team- the Heir Apparent head the executive authority, work among line ministries and agencies at all assisted by the Cabinet and Prime Minister and levels—ministers, department heads and section

242 a h c pter 7

Figure 7.1 Current organization structure of Qatar’s public sector institutions

The Emir The Heir Apparent Supreme Supreme Supreme Qatar Central Council for State Audit Public Council for Council for Bank Economic Bureau Prosecution Supreme General Defence Family Affairs Affairs and Prime Minister Supreme Council for Supreme Secretariat Qatar Education Information and Council of for Investment Council of Council Communication Health Development Authority Ministers Technology Planning

Qatar Statistics Qatar News Qatar Media General Secretariat of the Authority Agency Corporation Council of Ministers Institute of Administrative (Minister of State Development for Cabinet Affairs)

Ministry of Ministry of Ministry of Ministry of Qatar Development Culture, Arts Labour Interior Foreign Affairs Fund and Heritage

Ministry of Social Ministry of Energy Ministry of Business Ministry of Economy Affairs and Industry and Trade and Finance

Qatar General General Authority for General Authority for General Retirement Qatar Financial Qatar Financial Electricity and Water Tourism Civil Aviation and Pension Authority Center Markets Corporation

Ministry of Ministry of Ministry of Ministry of Endowments and Justice Municipality and Environment Islamic Affairs Urban Planning

Legal and Judicial Intellectual Property Recycle General Authority for Studies Center Protection Center Public Works Center Minors Affairs Authority

heads —and strong leadership. Critical in mov- The other is the levers that institutions must apply ing the public sector forward are the support to modernize: policy and planning, budget and of top leadership and greater power for middle financial management, human resources devel- management. opment, organizational alignment, procurement, institutional processes, information technology The drivers and levers of institutional and performance management. development and modernization Formulating the right approach to modernization Two linked concepts—based on benchmarking and successfully adapting and applying the driv- best practices in other countries that have success- ers and levers require understanding the govern- fully modernized their public sectors—underlie ment’s institutional framework. Strengthening the institutional development and modernization. drivers of modernization requires improving the levers (lower part of figure 7.2): focusing on the One is the drivers of modernization, factors that levers to build institutional capability will enable influence performance and the need to modern- an institution to be more efficient and effective, ize and that serve as measures of institutional suc- create more value and so on. Focusing on policy cess: the public sector’s efficiency, effectiveness, and planning, budgeting and financial manage- value creation, transparency, accountability, rele- ment, organization, human resources, institutional vance and customer engagement (figure 7.2). processes, procurement, information technology

Developing modern public sector institutions 243 Figure 7.2 Performance management provides dynamic links between drivers and levers to achieve public sector excellence

Drivers

Efﬁciency Transparency

Increasing the ratio of outputs to inputs Exposing the actions and decisions of the government and public sector to scrutiny

Effectiveness Engagement

Improving the quality of the elements that convert inputs to outputs Engaging customers in public decisions and processes that affect their lives

Value creation Relevance

Maximizing returns on investment and long-term sustainability Linking government policy and outputs to society’s needs

Accountability

Being answerable for the consequences of government and public sector actions

Levers

Performance management Human resources development

• Visibility of performance • Job description and hiring • Outputs measured against de ned objectives and targets • Career planning and development • Corrective actions • Performance management of employees • Performance goals • Training and capabilities

Policy and planning Institutional processes • Vision, leadership and culture • Institutional mandate within legislative norms • Interaction and coordination within and outside the institution with private sector, • Strategic planning and policy other governments and the general public (outcome based) • Procedure workows and processes • Targets and goals • Inclusive of stakeholders (listening, communication and marketing) • Lean processes and process excellence

Budget management Procurement

• Budget planning and alignment with strategy • Contracting and purchasing • Budget execution • Resource optimization • Monitoring of budget performance • Vendor and project management • Risk mitigation

Organizational alignment Information and communication technology • Mandates and job family design • Responsibilities and interactions • Decision-making • Workow automation • Performance orientation and standards and culture • E-government • Accountability and collaboration • Institutional integration • Responsiveness

and performance management will help build the of public sector performance: improving efficien- necessary expertise and capability in these impor- cy and effectiveness, creating value, becoming tant levers of modernization. Developing and mod- more relevant and transparent and demonstrating ernizing these levers will strengthen the drivers accountability in delivering results.

244 Qatar National Development Strategy 2011–2016 a h c pter 7 Mapping Qatar’s institutional Countries with modern institutions and excellent development and modernization journey public sector performance exhibit similar characteristics: a commitment to continuous improve- Mapping Qatar’s public sector modernization ment, enduring dedication to change, sustained journey for the National Development Strategy mobilization of resources and the ability to learn 2011–2016 employed benchmarking, situation from mistakes. Modern, well developed pub- analysis, diagnostics and focus areas for moderni- lic institutions have robust processes. They focus zation (definition of future state) (figure 7.3). on human capital development, practice performance management and deliver public servic- Benchmarking best practices around the world es consistently with efficiency and effectiveness, meeting the expectations of stakeholders. They Benchmarking focused on the drivers and levers show a high degree of transparency and citizen of modernization in five countries, identify- engagement and clear accountabilities, and they ing best practices in public sector performance set higher and bolder annual targets. Several mod- around the world. The five were Australia, Can- els have been developed to examine how countries ada, Norway and Singapore, identified for inter- achieve excellence in public sector performance, national best practices, and the United Arab but there is no single model to emulate. What has Emirates, identified for regional comparison. worked in other parts of the world might not be All five have implemented structural changes fully applicable to Qatar. Best practices based on in public sector organization and service deliv- the analysis of benchmark countries are summa- ery and greatly improved public sector perfor- rized by lever in box 7.1. mance, particularly service delivery. The benchmarking analysis identified building blocks for Evidence shows that the key focus areas for coun- Qatar’s transition to modernization. The countries modernizing their public sectors are the eight tries selected demonstrate excellence in pub- levers noted above. Building institutional capaci- lic sector performance (government efficiency, ty around these levers strengthens the drivers of ease of doing business, policy and regulations modernization, which in turn serve as measures of and delivery on promises) and institutional per- outcomes for a country’s population. Elevating the formance (openness and effective governance importance of human resources management, for mechanisms for expenditure, dispute and regula- example, leads to increased employee capabilities. tory management). A more capable public sector workforce is more

Figure 7.3 Mapping Qatar’s public sector institutional modernization journey

Benchmarking (best practice) Situation analysis Diagnostic analysis Focus areas for modernization

• Performance management for • Lack of strategic planning • Many opportunities to closing the loop with strategic and performance management modernize Qatar’s public Strategic policy and planning planning framework sector identi ed • Institutions with robust and • Little transparency in public • Macroeconomic, political and Budget and nancial management effective processes and resource allocation social factors call for sturctures with clear • Lack of capability throughout modernization Organizational alignment accountabilities the public sector • Constraints and requirements • Focus on human capital • Opportunity to improve to develop public sector Human resources development development customer focus in service identi ed • High degree of transparency delivery • Modernization necessary to Enabled institutional processes and citizen engagement • Lack of interinstitutional implement all sector strategies • Culture of continual collaboration • Stages of development Performance management improvement identi ed based on benchmarks

Developing modern public sector institutions 245 Box 7.1 Best practices, by levers of public sector performance

Each best practice identified through benchmarking • Set organizational frameworks to align ministry can be translated into distinct projects for public and agency structures. sector modernization. Projects are refined later in the • Establish appropriate checks and balances. chapter and adapted to Qatar’s needs. Human resources development: building capability Performance management: decentralized outcome- and performance management and output-based measures but centralized monitoring • Attract and retain the best talent by provid‑ • Measure periodically across individuals, organiza‑ ing the right incentives and a healthy work tions and public services. environment. • Ensure central monitoring by the Ministry of • Establish transparent and performance-based Finance or equivalent. career development paths. • Establish outcome- and output-based perfor‑ mance management with closed feedback loop. Institutional processes: citizen-centric and featuring cross-agency collaboration Policy and planning: inclusive, bottom-up with • Design processes to meet citizens’ expectations citizens’ engagement and needs. • Conduct robust evaluation of all alternatives • Provide one point of contact with customers. before issuing a policy. • Allow departments and agencies, not just minis‑ Procurement: transparent and fully automated tries, to initiate policy. procurement • Enable citizens to comment on draft policies online. • Establish a common information platform for public procurement. Budget management: multiyear, performance-oriented, • Develop clear processes and an easily integrated closely built on policy and planning framework system. • Allow for multiyear budgeting of programmes. • Manage public e-procurement across the • Develop and prepare the annual budget process country. within a strategic multiyear framework. • Shape budgets to the policy framework and tie to Information and communication technology: easy to performance management. use one-window service • Coordinate centrally but allow for flexibility. • Offer one-window services online across institutions. Organizational alignment: autonomy to empowered • Establish a common government information departments with appropriate governance platform, with data sharing. • Empower functional agencies as political actors • Engage citizens by involving them virtually. (setting their own strategic goals and targets and allocating resources).

productive and achieves greater impact for its citi- effectiveness, efficiency and accountability in a zens. Optimized institutional processes minimize model to improve public services. No one coun- errors and cost and therefore increase the effi- try demonstrates best practices in every lever. The ciency of the public sector. Similar examples can best practice examples were selected for practical be cited for the other levers, leading to a positive application in Qatar; for instance, Singapore pro- impact on citizens. vides a better example of policy and planning for Qatar than does Norway. Countries use different sets of drivers to measure public sector performance and frame moderniza- Benchmarking also identified five strategic ena- tion efforts. Singapore, for example, singled out blers and five operational enablers for applying productivity, quality, timeliness, responsiveness, best practices in modernization.

246 Qatar National Development Strategy 2011–2016 a h c pter 7 The fivestrategic enablers are building central capa- agencies and supreme councils; and a public sec- bility before considering decentralization, institu- tor employee survey that assessed employees’ tionalizing the dissemination of central capabili- engagement with their work and willingness and ties, clearly describing roles, changing employee readiness to change. Figure 7.4 summarizes the behaviours and attitudes, focusing on the enablers approach taken in selecting and sequencing the of behaviour and mindset change, and creating proposed institutional development and moderni- leadership in the middle and focusing on manage- zation projects. rial value added. A diagnostic analysis examined the gap between The fiveoperational enablers are developing budg- best practices and Qatar’s current state. It ana- ets around outcomes and programmes rather lysed internal and external factors for moderniza- than institutions, prioritizing actions that simplify tion and defined maturity stages over the next few processes and maximize stakeholder and custom- years. The inputs from benchmarking, situation er impact, operationalizing performance moni- analysis and diagnostics were then used to define toring and coordination, systematically manag- the future state and to provide the basis for 16 pro- ing performance of inputs as well as outputs and jects for developing and modernizing Qatar’s pub- outcomes, and giving change a chance by stand- lic sector. ing behind decisions over the entire commitment period. Institutional development and modernization of Qatar’s public sector will require a phased, pro- The situation analysis painted an overview of the longed effort to achieve well planned structural public sector and identified Qatar-specific oppor- change. Initially, in a foundation building phase, tunities for modernization along the levers and change should be simple and focused on achiev- linked to the benchmarking outcomes. It drew ing ownership by all ministries and agencies, on a review of documents on institutional devel- including by public sector employees. Change opment from previous work of GSDP and Cabi- management is needed to balance the pace net departments; responses to a public sector of change with the ability to incorporate and performance questionnaire sent to all ministries, sustain it.

Figure 7.4 Project approach leading to prioritized and sequenced modernization programmes

Situation analysis Future state design Recommendations for modernization in six focus areas

Future state deﬁnition Situational Government Prioritized, sequenced programmes and projects scan benchmark Ministries and agencies M1 M2 M3 . . . • Strategic policy and planning Focus • Budget and nancial areas Existing Whole-government level management Diagnostic and document levers Whole- • Organizational analysis review Ministry and agency level government alignment programmes • Human resources development Ministry and agency action plans • Enabled institutional processes Public sector • Performance Sector employee survey Performance management framework management strategies and interviews Opportunity to develop and modernize Minimal Moderate Signi cant

Developing modern public sector institutions 247 To build a strong foundation, two projects must gaps in performance and ways to bridge them start during the planning phase: expanding the moving forward. support role of central functions and developing a public sector performance management frame- Institutional assessment of public sector work. Because line ministries and agencies lack performance levers the comprehensive and robust capabilities and capacity needed to implement all the National As part of the situational analysis and diagnostics Development Strategy 2011–2016 projects, the of the institutional development and moderniza- central functions in government will be vital to tion strategy, government central functions, min- rolling out the modernization projects, by pro- istries and agencies responded to a questionnaire viding coordination between ministries, offering intended to assess the levers that institutions need objective advice and defining the delivery of pro- to apply to enhance public sector performance. grammes to address critical challenges that can- Each lever was self-assessed against best prac- not be addressed by a single ministry. The gov- tice international benchmarks and scored on a ernment performance management system will scale of 1 to 5, where 5 denotes strongest agree- better support and focus efforts and resources on ment with best practice. Figure 7.5 summarizes ensuring that the National Development Strategy the findings from the perspective of the whole 2011–2016 is implemented successfully. Key perfor- of government and of specific institutions. From mance indicators will inform government about the whole-government response, the policy and

Figure 7.5 Self-assessed public sector performance

Whole Performance levers government Ministries and agencies

Cabinet Cabinet Generalfor Secretariat DevelopmentMinistryand Planning of Finance EconomyMinistry and of Industry EnergyMinistryAffairs of SocialMinistryAffairs of IslamicMinistryCulture of ictQatar MinistryEnvironment of MinistryJustice of MinistryLabour of MinistryInterior of Policy and planning 3.4

Budget management 3.8

Organizational 3.8 alignment

Human resources 3.2 development

Institutional processes 3.5

Procurement 3.7

Information technology 3.7

Performance 3.1 management

3.7 3.2 3.8 3.4 3.7 3.9 4.1 3.1 4.1 3.4 3.0 3.6 3.6 Average scores

Strongly agree (high capability today) Netural (opportunity to improve capability) No response Agree (medium capability today) Disagree and strongly disagree (signi cant opoprtunity to improve capability)

248 Qatar National Development Strategy 2011–2016 a h c pter 7 planning and performance management levers management system becomes more embedded in stand out as requiring greatest capacity improve- the reporting structures of government, the num- ment. These findings are supported by results ber of indicators can be expanded. from previous studies. At the institutional level there is considerable variation among ministries To modernize the public sector, executives must and agencies in the ranking of the levers, with understand the stages along the way (figure 7.7). performance management, human resources and These stages were derived from the benchmark- policy and planning offering opportunities for ing exercise, tempered by an understanding of capacity development. Qatar’s unique circumstances. Institutions are in the initial stages of modernization, with varying Possible pathways to public sector degrees of readiness, willingness and ability to institutional development absorb more change. Thus, speed needs to be balanced with the ability to absorb, adopt and sustain To measure public sector institutional perfor- change. mance, a model was constructed using the QNV 2030 pillars and desired outcomes as a starting Careful sequencing of projects will be important point in developing a set of whole-government to accommodate links across levers; for example, indicators for measuring country-wide outcomes capacity building in finance to reform budgeting that will be affected by public sector performance processes and in information and communication (figure 7.6). All indicative indicators will be meas- technology to develop citizen-centric platforms ured and published regularly. As the performance and a central database.

Figure 7.6 Constructing a public sector performance model for Qatar

Qatar National Vision 2030 pillars and outcomes Illustrative whole-government indicators

Human development • Tertiary school enrolment • Life expectancy at birth • Physically and mentally • Programme for International • Infant survival rate healthy population Student Assessment test • Labour force • Educated population scores on math and reading participation rate • Capable and motivated workforce • Adult literacy rate • Female labour force participation rate

Social development • Real disposable income • Corruption Perceptions Index • Social care and protection per capita (World Economic (Transparency International) • Sound social structure Forum) • International cooperation • Judicial independence Public sector Economic development • GDP real growth • Ease of doing business performance • Sound economic management • In ation (World Bank) • Responsible oil and gas exploration • Stability of GDP growth • Foreign direct investment • Suitable economic deversication • Economic diversication as a share of GDP index • Quality of infrastructure (World Economic Forum)

Environmental development • Nationally protected areas • Domestic water consumption • Balance between development (share of total land area) • Environmental Performance needs and protecting • Electric power consumption Index the environment per capita

Developing modern public sector institutions 249 Figure 7.7 Overview of best practices journey to modernization

Current Laying the foundation Embedding institutional Developing cross‑institution state for capabilities capabilities excellence

Maturity level Levers Policy and planning • Short-term, one institution • Centralized oversights with • Multiyear, performance • Coordinated, country-level specific standard process and budget linked long-term outcomes Budget management • Operational institution • Programme based, • Outcome-based flexible • National-level outcomes based, not linked to enabling performance multiyear process fully linked to strategic performance tracking plans Organizational alignment • Functional silos with • Strong central coordination • Proactive cross- • Decentralize structure little accountability for and process orientation institutional collaboration with productive lean outcomes organization Human resources • Few set standards, lack of • Individual development • Career paths tied to • Strong motivation; merit- development performance management programmes and performance; line manager based career progression increasing staff autonomy accountability Institutional processes • Departmental-centric; • Streamlined within entities • Citizen-centric by entity; • Customer need-based manual enhanced by information one-window processes technology Procurement • Manual process lacking • Automated and clearly • Online procurement, • Transparent strategic transparency defined; standardized including evaluation of procurement including goods and services supplier integration Information and • Lack of common • Data standards and • Central platform and data; • Most services online communication technology infrastructure and limited increased online online services with virtual platforms for online service communication citizens and customers Performance management • Lack of measurement and • Defined key performance • Standard format and • Quarterly measurement links to plans indicators linked to common reporting of outcome-based goals centrally monitored plans standards linked to budgeting; public

Intermediate steps to modernization have been Programmes to develop and modernize benchmarked, and short- and medium-term tar- public sector institutions gets have been set. Building on this wealth of information, targeted projects have been devel- During much of the National Development Strat- oped, prioritized and sequenced over 2011–2016, egy 2011–2016 period, institutional development for government as a whole and for individual and modernization will be devoted to the founda- institutions. tion stage and to six focus areas, based broadly on the eight levers of public sector performance: A three-phase building block approach to mod- • Strategic policy and planning. ernization has been developed (figure 7.8). The • Budget and financial management. first, and longest, phase is laying the founda- • Organizational alignment. tion for capabilities in fundamental areas at the • Human resources development. whole-government level. This phase will empha- • Enabled institutional processes. size enhancing collaboration. The second phase • Performance management. deals with embedding institutional capabilities; institutions will create a high degree of capability While each focus area derives from different levers and capacity, but implementation must be flexible of public sector performance, all have outcomes so that designs can be improved, as needed. The that directly affect the seven drivers of public sec- third phase focuses on developing cross-institu- tor performance: efficiency, effectiveness, value tional excellence by creating a culture of collabo- creation, accountability, transparency, engage- ration in delivering services. ment and relevance (figure 7.9).

250 Qatar National Development Strategy 2011–2016 Figure 7.9Figure Figure 7.8Figure

Laying the foundation Capability growth ou raAims Focus area management Performance processes Enabled insitutional development Human resources alignment Organizational management Budget and nancial and planning Strategic policy National Development Strategy 2011–2016focus National Development Strategy support Central

F T Performance management • Performance • Enabled institutionalprocesses • Human resourcesdevelopment alignment • Organizational • Budget and nancialmanagement • Strategic policyandplanning ocus areas with outcomes that will drive Qatar’s public sector performance Qatar’s sector will public drive that outcomes with areas ocus he three phases of institutional development and modernization: along modernization: and development institutional of phases three he for capabilities Laying thefoundation 2011–2014 Short term Short institutional performance Establish acomprehensive framework tomanage enable consistentapplicationandef cientintegration Promote standardsinprocessesandtransactionsto longer capacityandcapability term Focus onfundamentalsofpeopledevelopment toimprove and agencies withastrongroleofcentralfunctions delivery service Ensure effectivefocusedon institutionalstructures transparency andeffectiveness of spending thebudgetingReform processtoallow forgreater functions process inallministriescoordinationwiththecentral Establish aneffective strategicplanning andpolicy-making Beyond tomeetQatarNational NationalDevelopment Strategy Vision 2030 capabilities Embedding institutional Medium term 2015–2020 Time Developing sector institutions public modern

Programmes Outcomes • Public sectorgovernance framework andperformance • delivery Effective integration forcoordinatedservice • Ef cient andleanerprocesses • Motivated andengaged employees • Improved talentdevelopment institutions • Streamlined • Strengthened centralfunctionsandagencies transparency • Greater • Ef cient allocationof nancialresources • Effective planningandpolicyframework linkingQatar 2011–2016, centralfunctionsandministries National 2030,Vision NationalDevelopment Strategy excellence Developing cross-institutional - t erm journey erm 2021 onwards Long term collaboration

Institutional

cpterha 7 251 Within these six focus areas, the 16 targeted pro- (by 2016), all entities should participate in outlin- jects on the whole-government level were designed ing the multiyear strategic planning for their sec- to bring Qatar’s public sector up to best practice tors, and central collective planning should end. level. These projects are part of the first foun- Customer and client voices should be heard regu- dation-laying step in the long-term moderniza- larly through channels such as surveys and focus tion journey. Each project addresses a major gap. groups. The suggested projects are not prescriptive but are designed to be flexible, with a high degree of Attaining the desired level of performance rela- stakeholder participation and ownership. Timing tive to plans will require a central public sector and implementation will depend on the capacity database to effectively monitor implementation and readiness of each institution. The proposed of the National Development Strategy 2011– projects allow setting clear targets and refining 2016. Among the most important requirements them as the projects are planned and implement- to reach the goals at the medium term are multi- ed. The projects will be reviewed and adapted, as year, programme-based budgeting; a high level of needed, in a collaborative process with the lead institutional collaboration and coordination; the stakeholders. availability of planning experts; and an active performance management framework. Strategic policy and planning The overarching goal of the two projects in strate- Strategic planning is a new concept for Qatar’s gic policy and planning is to establish a strategic public sector, as most entities lack strategic plan- planning process and to support line ministries ning capabilities. Entities that have plans have not and agencies in developing their own strategic linked them to QNV 2030. In the short term (by plans. 2013), Qatar should focus on building a strong foundation for strategic planning, with all entities Formulate and implement a whole-government preparing well defined, standardized planning strategic and operational planning process processes and annual strategic plans. The Cabi- net’s Central Policy and Planning Department can This project is designed to sharpen the focus of drive a top-down coordinated planning process. each ministry and align plans to key objectives, Customers and clients can also have a say in the helping ministries evaluate trade-offs in resource short term, but on a limited basis with feedback allocation and focus employees on common goals gathered through surveys and other basic data col- and targets. The Cabinet’s Central Policy and lection methods. Planning Department will be the main stakeholder and responsible function of this project, setting Several requirements were identified for achiev- up guidelines and coordinating and managing ing the short-term goals, including building policy activities. The Ministry of Economy and Finance and planning capabilities in each entity, starting (MOEF), GSDP and the Cabinet’s Central Organ- budget reform, building planning capabilities in ization and Development Department will pro- the central functions, collaborating across enti- vide coordination and management support dur- ties and raising awareness of QNV 2030 and the ing the 21-month implementation (9 months for National Development Strategy 2011–2016. design and 12 months for rollout). The project will develop an annual planning process with By 2016, Qatar can achieve multiyear strategic top-down and bottom-up validation and clear planning that is linked to QNV 2030. Plans should timelines. It will launch a pilot of the new strate- also be linked to the national budget and to a gic and operational planning process in selected performance management system that is closely ministries before rolling out full execution in all linked to budget allocation. In the medium term ministries.

252 Qatar National Development Strategy 2011–2016 a h c pter 7 Target evolve as a gradual practice. The value and the • Develop a clear annual planning process usefulness of the multiyear budget approach (including timelines) tied to QNV 2030 and will depend on the reliability and accuracy of the National Development Strategy 2011–2016 the medium-term budget estimates. The pro- budget and report strategic plans to the Cabi- posed reform will tie strategic plans to financial net’s Central Policy and Planning Department. resources, maximizing revenue efficiency and effectiveness. Develop strategic planning capacity and capability within entities, and link them to the Cabinet’s Qatar’s budget is based on line-item accounting Central Policy and Planning Department and consists of four categories: salaries and wages, operating expenditures, assets and major projects. This project will enable ministries and agencies Implementing the National Development Strategy to develop their own strategic plans with minimal 2011–2016 will require incorporating budgeting help from the Cabinet’s Central Policy and Plan- based on programmes, along with performance ning Department. That department will take the tracking, to increase transparency. With the aid lead in building the capability and capacity of line of the MOEF, operational activities will be bud- ministries and agencies, the Cabinet’s Central geted on an annual basis and projects on a mul- Policy and Planning Department and GSDP will tiyear basis. Key financial performance indicators help with coordination and management and the will be defined, and performance will be mea- Institute of Administrative Development—with sured against financial spending. The whole bud- the help of other local and international train- get process—planning, execution and monitoring ing institutes—will develop training programmes. —will be automated. Approximately 27 months will be required to complete the project (9 months for design and 18 for Achieving these changes will require secur- rollout). ing government commitment to budget reform, building financial capabilities within the MOEF, Target introducing financial management systems • Install strategic planning process in ministries and tools, preparing a performance manage- and agencies, with the staff and expertise nec- ment framework and starting multiyear strategic essary to develop strategic plans. planning.

Budget and financial management In the medium term (2016), Qatar can base budgets on desired outcomes, not just on pro- The budget reform project, to be implemented posed projects and plans. The planning horizon over several years, will modernize and develop should span more than one year, even for oper- national budget and financial management prac- ational purposes. Entities should have greater tices. The current budget, based on line-item autonomy to reallocate funds among line items accounting, will create bottlenecks during budg- during the annual budget cycle. And progress et planning for institutional development and should be evaluated against defined key perfor- modernization and other National Development mance indicators when deciding on an entity’s Strategy 2011–2016 projects. Global experience budget. recommends that programme-based and multiyear budgeting processes be formulated in the Reaching the 2016 targets will require qualified context of the preparation of the annual budg- capabilities in all entities, multiyear strategic plan- et. Multiyear budgets should be used to encour- ning; stronger top and middle management and age the constructive involvement of ministries full application of financial management systems and agencies in the budget process and should and tools.

Developing modern public sector institutions 253 Link expenditure management to strategic support line ministries and agencies in identifying planning, increase transparency and automate and overcoming weaknesses and gaps and should budget processes develop standards guidelines for other entities to adapt and follow. Second, the government restruc- Reforming the budgeting process is a key project turing project, begun in 2008, will need to be for institutional development and modernization. revisited to align support and common functions Reforming and automating the budgeting process and eliminate redundancies. Third, line minis- will facilitate budget creation and resource alloca- tries and agencies need to increase their effective- tion, strengthen the link between strategic plan- ness by trimming and optimizing spending on ning and financial planning, increase the trans- administrative functions and focusing more insti- parency of spending and help ministries evaluate tutional resources on frontline and core services. trade-offs in allocating resources. The MOEF will lead the efforts to set up, manage, coordinate and Qatar’s 2008 government restructuring project is implement the new budgeting process. GSDP, the still under way. In its journey to modernization, Cabinet’s Central Policy and Planning Depart- Qatar should build on this effort. By 2013, Qatar ment and the State Audit Bureau will provide sup- should align administrative functions, start to port during the design phase. build strong capabilities in central functions and agencies, establish distinct roles and responsibili- During the design phase over the first year of the ties within and across entities and foster collabo- project, tasks will include shifting from annu- ration among the entities and between them and al to multiyear budgeting and from line-items to the central government functions. Entities should programme-based budgeting, linking budget- be held accountable for results and outputs in the ary planning to strategic planning, designing the short term. Dedicated strategic planning teams automated budgeting system, building financial should be built within each ministry with experi- capabilities in line ministries and agencies and enced staff and strong links to the Cabinet’s Cen- recruiting expertise to lead the new budgeting tral Policy and Planning Department. process. During the next two years, a fully operational and automated budgeting process (plan- The most important requirements for the short ning, execution, monitoring) will be implemented term are optimizing the size of each ministry and across all government entities. Achieving this out- agency, strengthening central organization func- come will require completing the strategic plan- tions to promote collaboration, introducing citi- ning process by the end of the first year of budget- zen-centred service delivery and promoting a cul- ing reform. ture of teamwork and collaboration.

Target Qatar can further enhance its organizational • Implement a fully operational and automated design by 2016. Individual agencies should be grant- budgeting process across all government entities. ed greater autonomy to set their own targets and allocate resources, which should speed decision- Organizational alignment making. Organization structures within each ministry should be reviewed to remove inefficiencies The projects in the organization alignment focus and duplication, to reduce overlaps with other min- area will improve the efficiency and effectiveness istries, to close gaps and to optimize the size of of line ministries and agencies in at least three administrative functions. Collaboration across agen- ways. First, they will more clearly define the role cies and institutions should become more active. of the central functions and agencies. In countries that are just beginning to modernize, as Qatar is, Among the important requirements to reach central functions and agencies need to actively these goals are installing a common information

254 Qatar National Development Strategy 2011–2016 a h c pter 7 technology platform to promote cross-entity col- decision-making. The Cabinet’s Central Organiza- laboration, a central public sector database and tion and Development Department will lead this robust performance management framework, and effort, with the support of GSDP and the Cabinet’s clearly defining roles and responsibilities. Central Policy and Planning Department and Cen- tral Human Resources Department. An estimated Strengthen the role of central functions in 16 months (4 for design and 12 for rollout) will managing government performance be required to complete this project. Changes in organizational structure will be designed and This project focuses on strengthening the cen- implemented in all ministries and agencies, and tral functions and agencies so that they can sup- then job families and job descriptions will be port the early stages of institutional development aligned with capabilities based on the new func- and modernization and better manage overall tions and structures. government performance (by coordinating public sector governance, linking strategic planning Targets to performance and sharing expertise with min- • Establish the operational and regulatory istries and agencies). The central functions and responsibilities of each government entity agencies should demonstrate high levels of capa- across all ministries and agencies. bility by displaying best practices in their own • Align job families and descriptions across all organizations. government line entities, based on the final structures, functions, standards and guidelines The project will need approximately 27 months of all institutions. to complete. The first nine months will focus on defining and legislating central roles and respon- Optimize administrative spending as a share of sibilities, the operating model and level of inter- total costs, streamlining support functions vention of each central function and agency, collaboration mechanisms between central functions This project will increase the efficiency and effec- and agencies, and governance mechanisms for tiveness of administrative functions in ministries resolving conflicts. Global best practices will guide and agencies, focusing their efforts on frontline design of the role of central functions in Qatar. A services and promoting customer-focused institu- centre of excellence and expertise will support the tions. The MOEF will lead the effort to optimize other central functions and agencies in develop- administrative spending by defining country-wide ing the necessary knowledge and skills. standards, while the Cabinet’s Central Organiza- tion and Development Department will help to Target align organizational structures with standards. • Establish a centre of excellence managed by The project is expected to last approximately 28 central functions and agencies to provide tech- months (4 for design and 24 for rollout). Budget nical training support. and human resources requirements for administrative functions will be benchmarked against Revisit the organizational structure and roles in all global best practices to increase efficiency and entities to align functions and remove redundancies reduce waste.

This project seeks to optimize the organization- Targets al structure of the government. It is intended to • Define standards and targets to optimize increase the efficiency and effectiveness of the administrative spending and human resources public sector by promoting leaner institutions, in the medium and long terms. aligning organizational designs and function, • Establish systems for ensuring reductions in and improving accountability and transparency in the administrative share of total cost for all

Developing modern public sector institutions 255 ministries and agencies that are tied to the and tied to performance. Line managers should budgeting system and overseen by the MOEF. have greater autonomy in areas such as career development and training needs. Finally, an indi- Human resources development vidual performance management system, based on competency standards, should be fully in place. The quality of human resources in Qatar is vital to institutional modernization. The 2009 Law on Reaching the medium-term goals will require com- Human Resources Administration was designed plete commitment from top authorities to develop to attract highly qualified people to the public sec- the public sector’s human resources; amendment tor, but many opportunities remain to advance of policies and standards to strengthen imple- this goal. mentation of the 2009 Law on Human Resources Administration to enable hiring and retention of In the short term, there are several areas for experts and professionals (both Qataris and expa- improvement. Job descriptions should be defined triates); highly qualified and experienced human across the public sector. The Cabinet’s Central resources staff in all entities; fully implemented Human Resources Department should develop and widely used human resources management guidelines to help entities plan the size and skill system, and clear, well defined institutional goals composition of the workforce. Staff development and targets linking individual and institutional programmes should be designed based on indi- performance. vidual career needs. Staff accountability should be increased to improve productivity, and a stand- Enhance policies to attract talent under the ard performance management framework for 2009 Law on Human Resources Administration public sector employees should be designed and implemented by all entities. A country-wide talent This project will reduce the barriers to hiring sourcing strategy is needed to link ministry-level high-potential individuals for the public sector workforce planning and labour policy to ensure and will be an important milestone for design- the availability of highly qualified staff across all ing a national talent-sourcing strategy in line with sectors. the 2009 Law on Human Resources Administra- tion. With the help of GSDP, the Cabinet’s Cen- Reaching this stage will require implementing a tral Human Resources Department will lead the standard human resources management system effort, which will last about nine months (three (including processes, common technology plat- months for design and six for rollout). By the forms and a central human resources database); end of the project, compensation structures and recruiting and developing strong leaders in most detailed guidelines and policies for performance- entities, producing a training manual, develop- oriented hiring policies will be in place. ing or hiring well qualified human resources personnel and developing key human resources pro- Targets cesses (such as workforce planning and career • Identify gaps between talent supply and development). demand, and develop the value proposition for attracting required talent. The medium-term stage would then involve more • Define criteria for hiring local talent rath- sophisticated capabilities and developments. By er than expatriates and review compensa- 2016, entities should be empowered to manage tion structures and policies for performance their own human resources and multiyear work- orientation. force planning, while the central human resources • Establish policies in all ministries and agen- function consolidates national workforce planning. cies for implementing the 2009 Law on Human A career path should be defined for each employee Resources Administration.

256 Qatar National Development Strategy 2011–2016 a h c pter 7 Develop a country-wide talent-sourcing strategy training centre, with the expertise to develop long-term career strategies for all job levels This project will accelerate the build-up of capa- linked to training programmes. bilities required to modernize the public sector and support the transition to a knowledge econ- Create human resources procedures and standards omy. The Cabinet’s Central Human Resources to develop skills and enhance the work environment Department will lead the effort, while GSDP will help design the strategy. Design will take about 4 This project will strengthen motivation among months, and rollout another 24 months. The pro- public sector employees and improve the work ject will identify the skills and capabilities required environment. The Cabinet’s Central Human to fill talent gaps and establish partnerships with Resources Department will lead the effort to cre- national and international universities and other ate human resources procedures and standards, organizations to facilitate access to the required with the help of GSDP and the Cabinet’s Cen- talent. Interviewing and hiring will be coordi- tral Organization and Development Department. nated with ministries and agencies with a view to The project, which is expected to last 27 months identifying and hiring highly skilled public sector (9 for design and 18 for rollout), will result in employees. mapped job levels and families across ministries and agencies. To advance implementation of the Target 2009 Law on Human Resources Administration, • Identify and recruit skilled personnel for a middle management will be empowered to intro- modern public administration. duce measures to boost employee motivation and discipline. Implement a country-wide, comprehensive training strategy based on need assessments, linked to Targets career development • Foster public sector employee motivation and discipline. The aim of this project is to build the required • Establish clear human resources standards and capabilities to modernize the public sector; procedures, including for workforce planning, increase its efficiency, effectiveness and value cre- recruitment and hiring; career development; ation; and build a capable national workforce. and a system for performance management. The Institute of Administrative Development will lead the effort to develop a national training Enabled institutional processes strategy, with the help of the Cabinet’s Central Human Resources Department. The design will A final important component, once all strategies take approximately 6 months, and implementa- have been defined, is the daily operation of gov- tion another 24 months. The project will build the ernment institutions. Current processes focus required expertise for country-wide training for on procedures rather than on citizens and cus- public sector employees and establish long-term tomers (the private sector, other public sector career development strategies for all job levels and institutions and civil society). For example, cus- families linked to that training. tomers must visit multiple locations to register a business. Other processes, such as public pro- Targets curement, are outdated and not optimized. Col- • Provide training for public sector employees laboration and coordination across government that matches Qatar’s needs and employees’ pro- entities is meagre. To strengthen institution- fessional development goals. al processes, Qatar should strive to match best • Transform the Institute of Administrative practices in benchmark countries, with their Development into a strong, demand-driven citizen-centred focus.

Developing modern public sector institutions 257 In the short term, Qatar should focus on stream- the project. All government services will be readily lining processes within each entity. A responsibil- accessible online. ity assignment matrix has to be developed for all processes. Traditional service delivery channels Target need to be expanded to cover delivery of services • Enable all citizens and customers to access to customers by phone, regular mail or fax. Back- all public services online, using a single-user office processes, meanwhile, should be simplified identification. and automated. Institutional processes within each entity need to foster interagency collabora- Deliver integrated services to businesses across tion and coordination. Key requirements for this the full lifecycle from setup to exit near-term stage include stable organization structures for each entity, advanced information tech- This project aims to simplify how businesses access nology capabilities (including platforms, staff and services (through one point of contact) through- structured databases) and up-to-date websites. out their lifecycles. The Ministry of Business and Trade will lead design and implementation, with For 2016, Qatar will have more ambitious targets the help of the Qatar Chamber of Commerce for citizen-centred service delivery processes in and Industry in design and implementation and each entity. Information technology use should be ictQATAR in implementation. The project will last enhanced to integrate processes and provide online an estimated 33 months (9 for design and 24 for service delivery, at least for some offerings. To make rollout). This project will develop a central busi- one-window service delivery a reality, collaboration ness database of all businesses in Qatar. It will among entities within each sector must be high and streamline and optimize service delivery, with a activities harmonized. Important requirements mechanism to facilitate collaboration in deliver- include stronger central organization and infor- ing shared services. And finally, businesses will be mation and communication technology functions; able to access all government services through one common information technology platforms, a cen- website with one common company identification. tral public sector database and fully automated processes within and across entities. Target • Simplify and improve business access to public Provide one-window services to customers for services online through a one-stop shop. frequent requests Enhance procurement policies to establish This project will simplify access to public servic- standards for tendering, contracting and managing es (such as through single-user identification for supplier performance online service offerings). The Cabinet’s Central Organization and Development Department will This project will increase transparency in pub- lead the effort, with the help of GSDP during the lic procurement, maximize value for money, design phase and ictQATAR during implementa- preserve public funds and improve the quality tion. Approximately 33 months will be required to of goods and services. The MOEF and the cen- fully implement the project (9 for design and 24 tral tendering committee will lead the effort to for rollout). Major outcomes include streamlined design and set up guidelines for public procure- and automated processes for delivering services, ment in approximately 9 months (3 for design mechanisms in place to facilitate collaboration and 6 for implementation), with ictQATAR’s help and coordination among entities delivering shared in implementation. The major outcomes will be services, and a service delivery website established clear and detailed processes (including standard for each entity that will merge into a government- templates) for public tendering and contracting, wide service delivery website by the final stage of an efficient supplier performance management

258 Qatar National Development Strategy 2011–2016 a h c pter 7 system and an e-procurement system to integrate implementation. The project will culminate in suppliers. The new processes will enable the Cen- the creation of central databases and repositories. tral Tendering Committee of the MOEF to monitor procurement (awards, pricing and progress Target updates). • Launch an integrated electronic services platform.

Target Performance management • Install an efficient and modern electronic procurement system. To achieve the goals of the National Development Strategy 2011–2016, Qatar needs a robust perfor- Implement standards for information transactions mance management framework to monitor and and knowledge management evaluate implementation across all sectors, to allocate financial resources appropriately and link This project will improve the efficiency of inter- them to strategic plans and institutional perfor- nal processes and public service delivery and help mance. The current government structure does decision-makers perform their duties. With the not accommodate these activities at the whole- help of Qatar Statistical Authority, ictQATAR will government level. lead a 24-month effort to design (6 months) and implement (18 months) standards for each trans- A well defined performance management frame- action. Major outcomes will include central elec- work enables measuring, managing and assessing tronic data repositories (such as citizen/customer outcomes against targets. It creates options for cen- databases, business and healthcare registries), tral functions to address underperformance. It adds clear roles and responsibilities in managing knowl- robustness in integrating measures of performance edge and data, and systems and tools allowing easy across entities. It provides early-warning indicators access to the central data repositories. Standard to support scenario analysis and corrective actions templates will be created to facilitate report prepa- to avoid problems. Finally, it can drive behavioural ration for decision-makers. changes by promoting accountability for achieving targets and making performance transparent. Target • Establish a modern electronic system for data Creating a performance management framework and knowledge management. with a robust design requires: • Establishing a detailed annual performance Establish a standard information technology management process and a full performance platform to facilitate integration of ministry services management cycle that sets targets, identifies key performance indicators, creates reports This project will facilitate the one-stop shop, for measuring and assessing those indicators, promote active collaboration and coordination takes corrective actions and rewards great among government entities and improve govern- performance. ment efficiency. The 24-month design (6 months) • Developing key performance indicators to and rollout (18 months) of the standard govern- measure target achievement. ment information technology platform will be led • Creating well defined roles with clear by ictQATAR, with other ministries and agencies accountabilities. providing design support. Outputs include com- • Designing a data-gathering and data-reporting pletion of the government information technol- process that ensures the integrity and timely ogy blueprint architecture, based on global best availability of high-quality data. practices and recent technology trends. External • Integrating key performance indicators and technology experts will validate the design and present them in standardized reports.

Developing modern public sector institutions 259 • Tracking facts and manage a closed feedback sequenced, and the requirements and risks have loop for corrective actions. been identified. The projects were prioritized by impact and implementation complexity. Impact Implementing a comprehensive performance was calculated as the average of each project’s management system will be challenging. It must urgency and importance and of value creation be a flexible process, adapted to Qatar’s needs and to institutions (in development and moderniza- adjusted according to the lessons of experience. A tion), citizens and customers, and the country as good way to start is to focus on the most important a whole. Implementation complexity was based on and strategic indicators. input requirements (resources), capability requirements, institutional barriers and time to impact. Establish a public sector performance Projects were plotted on a matrix of impact and management framework with defined implementation complexity. This tentative pri- interventions to resolve performance gaps oritization will help determine the sequence of implementation. This project is critical for developing and modernizing public sector institutions. The aim is to tie finan- Project priorities cial and human resources to strategic plans, track progress and outcomes, identify performance gaps to Three projects—strengthening the role of the trigger corrective actions and create a robust frame- central functions, enhancing policies to attract work for achieving development goals. The Cabinet’s talent and developing a public sector performance Central Policy and Planning Department will lead management framework—will start as soon as the effort to establish a performance management possible because of their critical impact on the framework, with the help of other central functions National Development Strategy 2011–2016. The and agencies (GSDP, Qatar Statistical Authority, State remaining top-priority projects are set to start in Audit and the MOEF). The project is expected to 2011. Reforming the budget process, developing require 33 months to complete (9 months to design strategic and operational planning and building and pilot the performance management framework, strategic planning capability and capacity are set and 24 to fully roll it out). This project will link institu- to start in 2011 because of their impact on other tional performance to strategic plans and budgeting, projects starting in that timeframe. Enhancing define clear targets and key performance indicators procurement policies should also start in 2011 to at each level (centre, sector and ministry/agency), improve procurement across the public sector. detail standards and timelines for measurement and reporting, establish processes for corrective actions, Priority 2 projects are set to start in 2012. Imple- and design and implement information technol- menting standards for information and knowl- ogy tools to facilitate performance management. edge management is set to start in 2012 because of the importance to other projects starting that Targets year. The remaining projects (priority 3) are set to • Establish a performance management system for start in 2013. Implementation will be monitored the public sector, including government agencies. closely by the lead stakeholders, who should inter- • Link institutional performance to strategic cede as needed to ensure that project benefits are plans and budgets. captured. Some institutions may need to adjust their project structure to fit their needs and work Project priorities and fostering style. cross‑sectoral links Central functions are crucial to implementing the To avoid bottlenecks and smooth implementation, National Development Strategy 2011–2016 and to the 16 projects have been prioritized, detailed and advancing the broader institutional development

260 Qatar National Development Strategy 2011–2016 a h c pter 7 and modernization effort. A high-level frame- Fostering cross-sectoral links work for the future state incorporates three roles: ensuring coordination and collaboration among Institutional development and modernization is ministries, providing objective advice and defin- a critical enabler for driving change, achieving ing strategies and programmes to address criti- the National Development Strategy 2011−2016 cal challenges for the country that cannot be outcomes and targets in all sectors and realizing addressed by a single ministry. the goals of QNV 2030 (figure 7.10). The national institutional development and moderniza- Fulfilling these roles requires understanding the tion programme will promote an outcome-based options. The most pertinent criterion is the capabil- approach to strategic planning as an effective ity level in individual ministries. As a starting point, means of managing resources and advancing two options can be considered. One is to begin with transparency and accountability. It will foster a a centralized model and, as capability grows, move culture based on performance and cultivate the gradually to a decentralized model. A second is to development of public service delivery−oriented start with a supportive centre that provides flexible mind-sets. Capacity building programmes con- support to ministries. This support must be clearly ducted by the Institute of Administrative Devel- defined and communicated so that ministries and opment will be realigned to give individuals the agencies can take advantage of the relationship. skills needed to achieve the outcomes and targets.

Figure 7.10 Institutional development and modernization as an enabler of all sectors

Institutional development and modernization as an enabler of all sectors

• Building capacity, such as in outcome-based strategic planning and implementation

• Creating a culture for Sustainable Environmental performance based economic prosperity sustainability management, including monitoring and evaluation

• Fostering interagency collaboration

• Improving productivity and public service delivery Caring and Institutional Educated and cohesive development and capable population society modernization

Effective Qatari participation Healthy in a productive population labour force

Goal Enabler

Developing modern public sector institutions 261 Chapter 8 Moving from strategy to implementation Chapter 8 Moving from strategy to implementation 8 Moving from strategy to implementation

Qatar’s National Development Strategy 2011–2016 is comprehensive and multidimensional. Each part entails different challenges, so careful implementation will be vital to its success. The machinery of implementation is already in motion, but the pace needs to be accelerated and achievement strengthened. Success will depend foremost on demand by the country’s leadership for regular information on progress and results. It will also depend on mainstreaming the strategy across the whole government.

Ministries and agencies will need to take owner- The implied shift in programme planning and ship of the National Development Strategy 2011– management is sweeping. Rather than build pro- 2016, develop their own operational plans and grammes around inputs or processes, budgets will accept accountability for delivery. At the centre, the be determined by the specific and often measur- Strategy will have to influence processes that drive able results identified in the operational plans decisions on how resources are used and provide of ministries and agencies. These in turn will be operational tools for assessing individual projects crafted to support Strategy goals and targets. and policy proposals in an integrated way. Major challenges lie ahead, particularly in building the Qatar’s political leaders will drive the changes human and institutional capabilities for effective foreshadowed in the Strategy. They will demand planning and project execution, but also in provid- information on progress. Individual ministries ing the legal basis for some proposed innovations. and government agencies will be accountable for implementing the elements of the Strategy that Embracing an expanded orientation and fall within their mandates. This accountability will new ways of working need to be matched by commensurate delegat- ed authority and empowerment across and with- The expanded orientation embedded in the in agencies. Increasingly, implementing agencies National Development Strategy 2011–2016 calls must take a sectorwide view of their activities and for integrated decision-making. Decisions on eco- coordinate with other actors on strategy, planning, nomic direction and speed must be balanced with budget and operations. Coordinating mechanisms considerations of human development, social at the centre of government, including new budg- development and environmental development. Sus- et processes, will support this new orientation. tainability dictates that current claims on resources be weighed against the ability of future gen- Strategic thrusts erations to meet their needs. Policy-making and investment within the framework of the National Preparation of the National Development Strat- Development Strategy 2011–2016 will require inte- egy 2011–2016 has been inclusive and participa- grated assessments of national projects and close tory, spanning ministries and agencies across gov- collaboration across traditional sector boundaries. ernment, the private sector and civil society. It has

264 a h c pter 8 drawn on a wide body of knowledge and experi- Box 8.1 The value of quick wins ence, and emerging strategic thrusts have been closely guided by Qatar National Vision 2030 (QNV Certain projects promise significant impact without 2030). The Strategy endeavours to leverage and creating complex implementation challenges. For integrate existing development initiatives, fill gaps example, lifting the compensation ceilings in the and align planning and activities. Background 2009 Law on Human Resources Administration and sector reports prepared by Task Teams propose budgeting for active recruitment of qualified profes‑ numerous interventions to support specific goals. sionals could yield visible results fairly quickly. Table 8.1 aggregates these interventions around 20 Perceptible progress in one sector can moti‑ key challenges and the responses suggested by the vate teams working for results in other sectors National Development Strategy 2011–2016. These and convince the public of the government’s com‑ strategic thrusts provide a platform for identifying mitment to the National Development Strategy and designing targeted programmes and projects 2011–2016 and its capacity to deliver. In the early for implementing the Strategy. stages of reform, outstanding performance can be held up as an example. The building blocks of implementation Capturing success stories is not only motivating and helpful in building momentum behind the larger Moving from identifying strategic thrusts to imple- change effort. Reporting on successful outcomes menting interventions requires careful planning can also inform subsequent analyses and identify by implementing agencies and support from the best practices in programme management. central functions of government. The concepts and targets identified in the National Develop- ment Strategy 2011–2016 and in the sector back- implementing agencies this portfolio perspective ground reports will need to be transformed into will emerge in strategic and operational plans that detailed project blueprints focused on achievable are part of a broader sector focus (see chapter 7). results that reflect the strategic directions in table To mitigate risks at an institutional level, the capa- 8.1. To the extent possible, there should be a focus bilities of government central functions will be on “quick wins” (box 8.1). strengthened so that they can deliver advice and support to implementing agencies. At the national These blueprints must include logical assessments level funding priorities will be articulated through anchored in sound diagnostics; proven approach- reformed budget processes and a programmatic es and learning; measurable outputs, outcomes approach to public investment planning (see chap- and impacts for measuring and evaluating pro- ter 3). Strengthened management, monitoring (progress; clear accountabilities and built-in mitigation cess and results) and evaluation systems—informed measures tailored to identifiable risks. The finan- by appropriate indicators at the project, institution, cial and human resources needed to manage and sector and national level—will support strategy implement each project and sustain its benefits implementation and integration (see below). must also be in place. And project risks and successes will be critically influenced by stakeholder New planning and business processes and systems awareness, understanding and ownership. will take root at a pace that acknowledges current limitations on capabilities and experience (see But projects should not be judged in isolation. To below). In addition, because all challenges can- ensure effective integration and sequencing and not be tackled simultaneously, projects with maxi- proper resource allocation to priorities to achieve mum impact and feasibility need to be identified “value for money”, the National Development Strat- and prioritized (figure 8.1). Interdependencies egy 2011–2016 calls for a portfolio view of projects must also be kept firmly in mind when planning by implementing agencies and nationally. Among project phasing.

Moving from strategy to implementation 265 Table 8.1 Qatar’s 20 key challenges

Qatar National Vision 2030 pillar Major challenges Strategic responses Ensuring sustainability in a setting where hydrocarbon Establishing a hydrocarbon depletion policy; sustaining resource depletion is still the dominant source of income high rates of saving and making sound investments in human, capital and financial assets for the future Promoting stability in an environment where hydrocarbon Reforming budgetary and fiscal processes, public price volatility creates risk and presents challenges for investment programming, liquidity management and Promoting calibration of economic policy domestic capital market development sustainable Enhancing efficiency in the use of all resources to Promoting competition, trade and investment; improving prosperity support high standards of living for current and future regulation; strengthening demand management for water, generations power and fuel; reforming agriculture Diversifying the economy to create durable wealth and Bolstering enterprise creation and private sector support wider societal viability development; improving the business climate, strengthening regional integration; reforming the labour market Rebalancing the healthcare system to reduce the Establishing an integrated healthcare system to shift the emphasis on hospital-based care and increase balance of care towards a patient-focused, preventive integration between levels of care and community-based model Meeting critical needs for a high-quality workforce across Developing and implementing a national workforce plan the health sector (and affecting other sectors) that takes a multifaceted approach and optimizes the skills mix Raising the achievement of Qatari students at all levels, Strengthening reforms in K–12 and higher education to Promoting human especially in math, science and English and, through ease demand and supply constraints development that, increasing educational attainment Coordinating education and training providers and Addressing quality, efficiency, inclusiveness and aligning with labour force needs portability across the entire education and training systems Aligning labour market composition of Qataris with the Realigning demand and supply in the Qatari workforce, objectives of a diversified knowledge economy with an emphasis on continuously upgrading skills Reducing reliance on low-cost, low-skilled foreign labour Reviewing the sponsorship law and identifying ways of attracting and retaining higher skilled expatriate workers Balancing the forces of modernization and globalization Implementing cross-cutting measures to strengthen with the support of traditional Qatari family values and family ties, values and relationships patterns of family formation Strengthening social inclusiveness Launching a multistakeholder programme that Taking an integrated strengthens an inclusive social protection system approach to sound Improving road safety and ending the growing epidemic Introducing a holistic approach to road safety, with social development of traffic accidents, particularly among youth cross-sectoral partnerships Preserving traditional Qatari culture and Arab identity Using culture as a platform to safeguard and develop Qatar’s national heritage Encouraging a more active lifestyle for young people, to Promoting local sports participation and development as reduce the health-related risks of inactivity part of a comprehensive, active lifestyle programme Reforming unsustainable water consumption patterns Establishing an integrated water management plan Sustaining the across the value chain environment for future generations Encouraging sustainable urbanization and consumption Promoting more sustainable urbanization and a healthier patterns that reduce environmental stresses living environment Strengthening weak institutional capacities Strengthening the role of central functions to support institutional development and modernization Developing modern Expanding human resources capacities across the public Applying policies to attract talent, including staff public sector sector development programmes institutions Establishing a centralized system for managing for Launching a public sector performance management results and for linking resource allocation to strategic framework linking institutional performance to strategic plans plans and budgets

266 Qatar National Development Strategy 2011–2016 a h c pter 8

Figure 8.1 Assessing the impacts and feasibility of programmes and projects

Criteria and weight for setting priorities for programmes and projects

Impact Feasibility

Criteria Description Weight Criteria Description Weight • Need for change Importance 30% Budget • Financial support 30% exists and resources • Critical area required to execute versus secondary or initiative tertiary focus • Role in National Development Strategy 2011–2016

Speed of impact • Time taken for 30% Skill set needed • Required skill set 30% changes to and capabilities take effect • Presence of skills • Quick x or and capabilities long term

Urgency • Action required 40% Complexity • Dif culty in 40% now versus ability executing initiative to delay action (stakeholders, • Size of problem legal changes, and need to resolve cultural shift, time for changes)

Illustrative prioritization framework for sequencing programmes and projects into implementation waves

5 Implementation timeframe Project 8 Very high Very

Project 14 Project 5 Project 9 Priority 1 Project 7 4 2011–2013 Project 12 National Project 10 Development Strategy Project 11 3 Project 2 Project 6 2011–2016 Priority 2 2011–2016 Feasibility

Project 15 Project 3 2 Project 2 Project 1 Project 13 Priority 3 > 2016 lo w

y Ver y 1 1 2 3 4 5

Very low Impact Very high

To implement the National Development Strategy what is likely to be an extended transitional peri- 2011–2016, ministries and agencies will need com- od, some agencies may have to “buy-in” such ser- petent project management functions. Where these vices under arrangements that transfer knowledge do not exist, establishing them must be a priority. and build national capabilities. However, human Where they do exist, they may need strengthen- resources constraints will need to be addressed ing. While staff redeployments might address some across a much broader front. Inadequate attention gaps, qualified and experienced people are vital to project management functions will jeopardize for effective project management functions. Over project quality and could lead to project failures.

Moving from strategy to implementation 267 The human resources constraint The imperative of building local capabilities in the public sector (see chapter 4) and in the private The National Development Strategy 2011–2016 sector (see chapter 3) has already been expressed. calls for individuals or teams within government But the point merits underlining. A concerted to work in ways that may be new to them. In many capacity-building effort across all sectors of gov- cases Qatar lacks sufficient capacity to implement ernment will be spearheaded by the Institute of policies and programmes successfully. Administrative Development, supported by the Cabinet’s Central Human Resources Department. Human resources shortages in key sectors could The Institute will build and operate a world-class undercut the delivery of major outcomes. For training centre to help agencies develop the capa- example, the Strategy calls for a large expansion bilities needed to realize their strategic goals of primary and preventive healthcare. But Qatar and to assist Qataris in developing their career has only 1.9 primary care physicians for every potential. 10,000 people, far below the World Health Organ- ization recommended level of 5.6. Expanding pri- Budgetary resources for the strategy mary care coverage will require recruiting qualified expatriate health professionals and training National Development Strategy 2011–2016 pro- Qataris. This picture of acute skill gaps is repeat- jects and programmes will need to be supported ed across the public sector. Experienced regula- by fiscal resources. But much more than budgets tors, scientists, engineers, economists, statisticians, is involved. As explained in chapter 3, the Strat- health specialists, social policy experts, financial egy foreshadows a new integrated approach to analysts, project specialists and other experts are the allocation and use of the state’s resources. A all in short supply. Increasingly, qualified and new fiscal architecture will promote alignment of capable Qataris are being lured to attractive posi- spending with leadership directions and priorities tions in the private sector. set out in the Strategy. This new architecture will be supported by a modern and technically sound Recognizing the ubiquitous constraints on legal framework for public sector financial man- human capabilities and the threats to success- agement and by other innovations, including a ful implementation of the National Develop- public investment programme. These will rein- ment Strategy 2011–2016, the Cabinet’s Central force the link between the National Development Human Resources Department will lead in craft- Strategy 2011–2016 and economic management of ing a central recruitment plan. Ministries respon- the country. sible for managing programmes will, as a priority, conduct skills assessments identifying gaps. In the immediate future—fiscal year 2011— Partnerships with universities, the private sector resources will be made available to support and others will be explored for bridging capacity National Development Strategy 2011–2016 pri- shortfalls. orities. Budget resources may be used to fund recruitment of new personnel where there are skill Easing human resources constraints may require gaps or to procure professional services for techni- modifying the 2009 Law on Human Resources cal and advisory purposes. Limited resources may Administration so that it does not inhibit efforts also be made available to support capital expen- to retain Qatar’s best talent in the public sector. ditures. The Ministry of Economy and Finance’s Given the small number of citizens, the increas- Budget Call circular sets the policy and provides ing demands on government and the complexity technical and fiscal parameters to guide budget of Qatar’s economy and society, strategic and flexi- preparation. To release resources to support pri- ble international recruitment of high-level experts orities, it will be important that implementing and specialists warrants consideration. agencies identify potential savings in other areas.

268 Qatar National Development Strategy 2011–2016 a h c pter 8 The Ministry of Economy and Finance, the Gen- Authority is mindful of these needs and is working eral Secretariat of the Council of Ministers and hard to meet them. the General Secretariat of Development Planning will provide targeted support to aid implementing There are data gaps in virtually all sectors. The agencies in adjusting to new arrangements. authority to collect information and to establish how was conveyed in legislation approved early in The fiscal 2011 budget will be prepared under the 2011. Indicators need to be developed that meas- budget law of 1975, with chapter classification of ure Qatar’s progress in achieving the goals of the spending. However, a functional classification of National Development Strategy 2011–2016 at a sec- expenditure (based on the United Nations classi- tor and national level and that reflect the priority fication of government functions and sectors) will accorded sustainable and integrated development. be piloted. A functional classification is needed to Citizens, civil society, the private sector and others support sectorwide approaches to budget prepara- will need access to better information so that they tion and to pave the way for programmatic budg- can contribute more effectively to Qatar’s develop- eting that focuses on results. In fiscal 2011 a sec- ment efforts. The government requires better data tor wide approach may be piloted in health and and information to direct policy, guide project education, with agencies working collaborative- design, allocate resources efficiently and monitor ly to prepare budgets that serve common (pro- and report on progress in processes and results. gramme) goals. The Ministry of Economy and These issues are closely connected to the moni- Finance would consider agency budgets together toring and evaluation of Strategy implementation with agencies as a group rather than bilaterally. and results (see below).

Beyond fiscal 2011, momentum will build towards Implementation through participation, programmatic budgeting, anchored in a new func- communication and advocacy tional classification of expenditures and based on strategic and operational plans developed and In general, effective consultation and participa- owned by ministries and agencies. To support tion of stakeholders or target groups in project budget modernization, new templates and techni- design and implementation can raise awareness, cal guidelines will be produced for preparing pro- create trust, foster ownership, improve project jects and budgets and relevant training will be pro- design and increase the chances of beneficial vided. By fiscal 2013 or 2014 it is anticipated that results. significant capital projects will be considered within a public investment programming framework But strong participatory processes may not always that supports broader portfolio assessment. By be sufficient. Some goals of the National Develop- that time, too, fiscal planning parameters would ment Strategy 2011–2016 will be achieved only if be firmly anchored in a forward looking macro- the government convinces other actors to alter their fiscal framework. attitudes or behaviours. Support for some elements of the Strategy will demand consistently implement- Bridging the information and ed and clearly communicated advocacy campaigns knowledge gap conducted by people with specialized knowledge of communications for behaviour change, social mar- Successful implementation will require closing keting and opinion research tools. information gaps. Much new information was unearthed in preparing the National Development Consider, for example, the goal of improving child Strategy 2011–2016. A strategic, systematic and sus- well-being and welfare. Simple regulatory shifts tainable approach to collecting and disseminating will not be enough to alter patterns of poor physi- statistical information is needed. Qatar Statistics cal fitness and low university enrolment of men.

Moving from strategy to implementation 269 Agencies involved in child welfare will need to information-gathering systems to collect related understand why certain patterns have emerged data and record and analyse the information. before effective advocacy campaigns can be designed to change them. In other, often sensitive, Realistic timelines that take limitations and con- areas, a better understanding of the prevailing sit- straints into account are crucial. They can ena- uation is needed to support informed and effec- ble managers to know when milestones have been tive advocacy. missed and signal possible bottlenecks in the regulatory structure, deficiencies in skill levels or Monitoring and evaluation budget shortfalls.

The final step in successful implementation is All projects under the National Development monitoring and evaluation. Strategy 2011–2016 will be evaluated at completion to reinforce a culture of accountability for deliver- At a project level, continuous ministry and agen- ing results. In addition, evaluations can provide cy tracking of milestones using built-in systems critical learning about successes and shortcomings for monitoring process (outputs) and results can from which follow-up programmes can benefit. strengthen accountability for delivering agreed outcomes and can provide critical information on At a sector level, systems for aggregating infor- performance. Active monitoring of project perfor- mation and distilling lessons with broader appli- mance enables implementing agencies to identify cability will be important. In due course, sector obstacles and tackle them before they derail pro- spending reviews could be considered, as might jects or jeopardize outcomes. sustainable development audits. Where to house these new functions within government would Some monitoring and evaluation structures are have to be decided. already in place. For example, the environmental management strategy is supported by a system At a national level, evaluation is an important source built on process and impact indicators. Process of knowledge about what has worked or not worked, indicators are determined by activities with a time- and why. It also can show how social, human, eco- frame for implementation, defined responsibili- nomic and environmental dimensions of the ties for carrying them out and indicative costs for National Development Strategy 2011–2016 interact. each of them. Impact indicators are determined by baselines and targets for each key output. A mid-term assessment of the National Devel- opment Strategy 2011–2016 at a project, sector For all projects, the implementing agency will and national level in the second half of 2013 will establish measurable indicators, create or refine inform future refinements of strategic directions.

270 Qatar National Development Strategy 2011–2016

Qatar National National Qatar StrategyDevelopment 2011~2016

Qatar National Development Strategy 2011–2016 Towards Qatar National Vision 2030