the most isolated and underdeveloped rural villages. A volunteer assigned to this program works alone and usually under very primitive conditions. An animateur is, in fact, somewhat difficult to define: he or she is neither an adviser nor a worker, but rather a "catalyst" for stimulating community projects, a "facilitator," and a liaison contact between village chief and government officials. The idea is to inspire and to assist, rather than to direct or administer, projects which the local communities themselves are willing and able to undertake. The role of an animateur is, therefore, a necessarily nebulous one, which requires an abundance of sensitivity, patience and tact. Results are rarely immediate or dramatic and often involve a risk of disappointment. In Senegal, for instance, we were told of one PCV who had successfully "animated" an entire village behind a school building project-only to find that government resources and priorities did not permit its implementation. A Senegalese official who was to have come to the village to explain the Government's decision never appeared, as it turned out, and the volunteer-animateur lost credibility in the process.

The proponents of the program point out, however, that the villages selected for animation are usually so remote and cut off from contact with the outside world that any sign of interest in their welfare is welcomed-even if tangible results are not immediately forthcoming.

Indeed, the Peace Corps animateurs we met appeared to be well liked, respected, and fully integrated into the lives of their respective communities. One volunteer who accompanied us from Saint Louis, in fact, was returning to his village after an extended medical leave, owing to a severe bout with hepatitis. The enthusiastic reception he received from the village chief and all local residents left little doubt about his popularity.

In Upper Volta, the rural animation program focused upon women: Animateurs were engaged in projects designed to provide village wives, in particular, with a source of extra income which could be used to enhance their lives and those of their families. Usually, this involved animal husbandry on a small scale-the raising of chickens and rabbits for sale locally.

Results of these projects are not yet in and we have no current means of assessing their overall effectiveness. It is clear, however, that this modest, innovative effort requires a high degree of monitoring by the Peace Corps staff, which is not always practical or possible under existing circumstances.

(C) HEALTH

Despite the virtually limitless need to expand medical services and facilities throughout West Africa, a small handful of volunteers are presently assigned to health projects in all of the countries visited. The reason appears to be twofold: First, health infrastructures (especially outside the urban centers, where health volunteers are normally assigned) are very limited and the level of support which can be provided to volunteers working in this field is often inadequate. Second, the health sector in general has not proven to be a high developmental priority with the governments concerned.

Given this situation, the Peace Corps has probably been justified in keeping participation in health projects small and manageable until such time as host country officials show a higher level of commitment to health programs. There is some indication that official attitudes are changing in this regard as a result of increasing popular demand.

In Senegal, for instance, no volunteers were assigned to health projects as of last fall, although we were told that a small program is planned for 1976. Similarly in Ghana, only two PCV's were working in health-related projects; and in Sierra Leone, only four.

In Upper Volta, eight volunteers were assigned to work in epidemiology, physical therapy, home economics, and nutrition. Even in that land of great need, however, we were informed that the government does not consider health to be a high priority sector in comparison with agriculture and food production.

The largest PCV health program was in the Ivory Coast, where nine volunteers were working as laboratory technologists at the antituberculosis center, in university hospitals, and as nurses assigned to regional hospitals.

Evidently, health is a potential area for future Peace Corps expansion as West African governments direct more attention to the delivery of health services to their rural populations. Again, this is a program in which generalist volunteers who can be trained in such fields as nutrition, hygiene, and sanitation-might be utilized to good effect.

V. THE NIGERIAN PROGRAM

Peace Corps involvement in Nigeria is a special case, primarily as a consequence of the abortive Biafran insurgency.

There are presently only three volunteers left in Nigeria and no Peace Corps staff. The Peace Corps Director in Ghana has overall responsibility for activities in Nigeria, but is not physically on the scene except on rare occasions. Following the recent change in government which took place in July 1975, preliminary discussions have, however, taken place at the U.S. Embassy-Nigerian Foreign Ministry level about a possible expansion and redirection of the program.

BACKGROUND

In the past, the Peace Corps role in Nigeria has been a controversial one leaving an unavoidable legacy of misunderstanding and some bitterness. Problems arose primarily as a result of the fighting in the eastern state of Biafra which broke out in 1967. Volunteers assigned to that region tended to sympathize with the Biafran cause and often recorded their views in letters to their families and friends in the United States. Some of these communications made their way to Congress and were printed in the Congressional Record.

These developments, and the attendant publicity they received in the United States and abroad, were deeply resented by the federal Nigerian authorities, who came to regard the Peace Corps as a source of opposition to the policies of their government. Nevertheless, the Government of Nigeria did not specifically call for the expulsion of volunteers. The Peace Corps itself withdrew all PCV's from the eastern region when the fighting there began to escalate, and the remaining volunteers departed by a process of attrition. By early 1969 there were no volunteers left in the country.

SPORTS PROGRAM

In November 1972, 2 years after federal control had been reestablished over all of Nigeria, the Nigerian authorities approved the assignment of up to 10 athletic coaches to various athletic teams throughout the country under Peace Corps auspices. A national sports program, in the government's view, was important not only to prepare Nigerian athletes for international competition, but also because it was regarded as a means of promoting national unity in the wake of a devastating and divisive civil conflict. From the Peace Corps' standpoint, the proposal represented a means of reestablishing contact and cooperation with the Nigerians and of overcoming past tensions.

In retrospect, both U.S. Embassy and ACTION officials readily concede that the sports program has been anything but a success. Of

the first six coaches assigned to this activity, four terminated within 4 months after arrival. Although replacements were provided, the turnover rate remained at a very high level. There were never as many as 10 coaches in the country at any one time, we were told.

A number of reasons were cited for the failure of this Peace Corps effort. On the Nigerian side there were organizational difficulties and some lack of coordination between state and national sports commissions. State commissions, in particular, although nominally autonomous, were heavily dependent on the national organization for financial and material support, which was not always forthcoming. There had also been a notable lack of advance planning on the part of the Peace Corps and a failure to work out with the host government exactly what role the volunteer coaches were expected to play, what level of support would be provided for the program, and how the volunteers were to function within the Nigerian sports system. Without any Peace Corps staff in the country to assist them, the coaches were obliged to fend for themselves and spend much of their time on organizational-administrative concerns rather than on their primary coaching duties. A number of volunteers reportedly considered themselves as "fifth wheels" and their contributions of marginal value. Their morale was not improved, moreover, by the discovery that other foreign coaches (from such countries as Great Britain and Bulgaria) had been hired on a contract basis with annual salaries of up to $20,000 for essentially the same services they were providing as volunteers.

For all of the above reasons, the early end of the Peace Corps sports program in Nigeria is expected.

FUTURE PROSPECTS

1

Despite the problems described above, the Nigerian Government 1 which assumed power in July 1975 (replacing the former Gowan regime) has indicated a willingness to put the past aside and take a fresh look at what the Peace Corps might be in a position to provide in the way of future development assistance. It should be emphasized at this point that no commitment has been made on either side and that talks have only been of an exploratory nature to date.

If the Peace Corps is asked to return to Nigeria in the future, the emphasis might well be, once again, in the education field. The Nigerian authorities have already announced that a new law requiring universal primary education will be promulgated in 1976 and its implementation will be hampered by a severe short fall of qualified teachers. Estimates of the shortage ranges from 10,000 to 70,000. Other possibilities might include Peace Corps participation in road/bridge/ dam construction projects-if individuals with the requisite skills can

be recruited.

A special feature of the Nigerian approach to all forms of outside assistance is the government's willingness-even determination-to underwrite the cost of the programs it specifically approves. Thus, if a new program is requested, it would probably be on such a contract

basis.

1 The attempted coup which took place on Feb. 13. 1976, resulted in the assassination of the Chief of State. Gen. Murtala Ramat Muhammed but was otherwise unsuccessful. Thus the post-July 1975 government remains essentially unchanged.

From the U.S. standpoint, however, the inauguration of any new program in Nigeria evidently should be preceded by the following steps:

(1) A new Peace Corps country agreement should be negotiated and concluded on a government-to-government basis. This would serve to spell out in detail the obligations being assumed on both sides and reduce the risk of misunderstanding and misinterpretation.

(2) Careful and detailed advance planning should be undertaken by responsible Peace Corps officials to insure that volunteer positions are clearly defined, that the services to be provided are both desired and understood by host government personnel who will be involved in individual projects, and that Nigerian ministry officials are thoroughly briefed on what to expect in the way of volunteer qualifications.

Embassy officials believe that a new Peace Corps start in Nigeria should be approached with extreme caution and on an initial "pilot project" basis. Given the history of failure and mutual dissatisfaction, we would concur with that judgment.

O