WFP MONITORING - STUDY UNDERTAKEN BY THE ROYAL

UNCLAS SECTION 01 OF 04 ROME 000544 SIPDIS FROM U.S. MA? (-P/LAC7ANDERS AND RBERSTEIN NSC FOR JDWORKEN, HTHOMAS OMB FOR TSTOLL USUN FOR LSHESTACK USEU BRUSSELS FOR USAID/FULLER TOKYO FOR USAID REP GAO FOR PTHOMAS E.O. 12958: N/A TAGS: EAID EAGR AORC PREF EAGR AORC PREF EAGR AORC PREF EAGR AORC PREF EU WFP UN EUEAID WFP UN EUEAID WFP UN EUEAID WFP UN SUBJECT: WFP MONITORING - STUDY UNDERTAKEN BY THE ROYAL DANISH MINISTRY OF FOREIGN AFFAIRS IN BANGLADESH, BOLIVIA, NICARAGUA, VIETNAM AND ZAMBIA REF: (A) 01 ROME 5655 -------------- SUMMARY -------------- ¶1. A FIVE COUNTRY STUDY OF ONGOING WORLD FOOD PROGRAM OPERATIONS, UNDERTAKEN BY THE ROYAL DANISH MINISTRY OF FOREIGN AFFAIRS, CONCLUDES THAT: WFP HAS STRENGTHENED THE QUALITY OF ITS OPERATIONS; THERE IS A CLEAR ROLE FOR CAREFULLY TARGETED DEVELOPMENT FOOD AID INTERVENTIONS; IN- KIND FOOD AID SHOULD BE LIMITED TO CHRONIC FOOD-DEFICIT AREAS; WFP NEEDS TO DEVELOP GUIDELINES FOR EMERGENCY ASSISTANCE; WFP SHOULD IMPROVE ITS TECHNICAL BACKSTOPPING TO UNCLASSIFIED PAGE 03 ROME 00544 01 OF 04 051344Z COUNTERPARTS; AND MONITORING IS ONE AREA WHERE WFP NEEDS TO MAKE SUBSTANTIAL IMPROVEMENTS. END SUMMARY. -------------- BACKGROUND -------------- ¶2. DENMARK IS A MAJOR DONOR TO WFP. ITS CONTRIBUTIONS IN CY 2001 EQUALED USD 38.6 MILLION (SIXTH LARGEST). IN SUPPORT TO WFP'S DEVELOPMENT PORTFOLIO, DENMARK RANKED SECOND THIS PAST YEAR WITH A CONTRIBUTION OF USD 25.4 MILLION. ¶3. STEMMING FROM THE RECENT ADOPTION OF A NEW STRATEGY FOR "ACTIVE MULTILATERALISM" BY THE DANISH PARLIAMENT, THE ROYAL DANISH MINISTRY OF FOREIGN AFFAIRS DECIDED TO TASK ITS EMBASSIES IN BANGLADESH, BOLIVIA, NICARAGUA, VIETNAM AND ZAMBIA WITH PARTICIPATION IN A MONITORING OF WFP ACTIVITIES INCLUDING VISITS TO FIELD SITES, INTERVIEWS WITH WFP COUNTRY STAFF AND OTHER RELEVANT STAKEHOLDERS, AND FILLING OUT A DETAILED QUESTIONNAIRE. THE REPORT NOTES THAT WFP, AT USD 1.55 BILLION/ANNUM, IS PRESENTLY THE SECOND LARGEST PROVIDER OF ASSISTANCE TO DEVELOPING COUNTRIES WITHIN THE UN-SYSTEM, SURPASSED ONLY BY UNDP (WITH CORE AND NON-CORE RESOURCES OF USD 2.6 BILLION). -------------- MAJOR FINDINGS -------------- ¶4. IN GENERAL, THE STUDY CONCLUDED THAT WFP HAS SUBSTANTIALLY IMPROVED THE QUALITY OF ITS DEVELOPMENT UNCLASSIFIED PAGE 04 ROME 00544 01 OF 04 051344Z PORTFOLIO. IT FELT THAT WFP WAS SHIFTING AWAY FROM LARGE- SCALE DEVELOPMENT AND INFRASTRUCTURE PROJECTS IMPLEMENTED BY MEANS OF FOOD-FOR-WORK, AND INCREASINGLY FOCUSED ON ACTIVITIES IN THE SOCIAL SECTOR, SUCH AS SCHOOL FEEDING OR VULNERABLE GROUP FEEDING - AND AT TIMES FACING LOCAL GOVERNMENT OPPOSITION TO THIS SHIFT IN EMPHASIS. ¶5. IN LOOKING AT THE OVERALL WFP DEVELOPMENT PORTFOLIO WORLDWIDE, THE STUDY NOTED THAT WFP HAD DEVELOPMENT PROGRAMS IN 58 COUNTRIES AND THAT MORE THAN 50 PERCENT OF THESE PROGRAMS WERE LESS THAN USD 3 MILLION. WHILE NOT DISCOUNTING SMALL COUNTRY PROGRAMS, THE STUDY SUGGESTED THAT WFP MIGHT QUICKLY PHASE OUT OF MIDDLE INCOME COUNTRIES (PRESENTLY UP TO TEN PERCENT OF THE OVERALL DEVELOPMENT PORTFOLIO) AND PRIORITIZE ITS ASSISTANCE TO THE POORER OF THE LOW-INCOME FOOD DEFICIT (LIFDC) COUNTRIES. THE EVALUATION NOTED THAT WFP'S DECISION TO CLOSE OUT ITS OPERATIONS IN VIETNAM IN LATE 2000 CONFIRMED "THE COMMITMENT OF WFP MANAGEMENT TO MAINTAIN A STRONG FOCUS ON COUNTRIES WHERE FOOD AID IS UNCLASSIFIED UNCLASSIFIED PTQ9317 PAGE 01 ROME 00544 02 OF 04 051344Z ACTION FOE-00 INFO LOG-00 NP-00 AF-00 AID-00 AMAD-00 CIAE-00 CTME-00 WHA-00 SRPP-00 EAP-00 EB-00 EUR-00 E-00 UTED-00 TEDE-00 INR-00 IO-00 MMP-00 NEA-00 NSAE-00 NSCE-00 OES-01 OIC-02 OMB-01 SSO-00 STR-00 TEST-00 USIE-00 SA-00 FMP-00 PRM-00 SAS-00 /004W -------------- 6245F4 051352Z /38 P 051322Z FEB 02 FM AMEMBASSY ROME TO SECSTATE WASHDC PRIORITY 1961 INFO EU MEMBER STATES COLLECTIVE AMEMBASSY OTTAWA AMEMBASSY CANBERRA AMEMBASSY TOKYO AMEMBASSY BERN AMEMBASSY LA PAZ AMEMBASSY DHAKA AMEMBASSY LUSAKA AMEMBASSY HANOI AMEMBASSY MANAGUA USDA FAS WASHDC 1984 USEU BRUSSELS 2536 USMISSION GENEVA DEPT OF TREASURY WASHDC USDOC WASHDC USMISSION USUN NEW YORK UNCLASSIFIED PAGE 02 ROME 00544 02 OF 04 051344Z UNCLAS SECTION 02 OF 04 ROME 000544 SIPDIS FROM U.S. MISSION IN ROME USDA/FAS FOR U/S/FAS PENN AND MCHAMBLISS USAID FOR DCHA/DAA/GRIGSBY AND D/FFP LANDIS STATE FOR A/S/PRM DEWEY, DAS/IO/SANDERS AND RBERSTEIN NSC FOR JDWORKEN, HTHOMAS OMB FOR TSTOLL USUN FOR LSHESTACK USEU BRUSSELS FOR USAID/FULLER TOKYO FOR USAID REP GAO FOR PTHOMAS E.O. 12958: N/A TAGS: EAID EAGR AORC PREF EAGR AORC PREF EAGR AORC PREF EAGR AORC PREF EU WFP UN EUEAID WFP UN EUEAID WFP UN EUEAID WFP UN SUBJECT: WFP MONITORING - STUDY UNDERTAKEN BY THE ROYAL DANISH MINISTRY OF FOREIGN AFFAIRS IN BANGLADESH, BOLIVIA, NICARAGUA, VIETNAM AND ZAMBIA APPROPRIATE." THE STUDY SUGGESTED THAT BOLIVIA BE EXAMINED FOR POSSIBLE PHASE OUT. ¶6. ON WFP'S EMERGENCY OPERATIONS (EMOPS) (PRESENTLY OVER HALF OF ITS ANNUAL PORTFOLIO),THE STUDY COMMENTED: "IT IS SURPRISING TO NOTE THAT ONLY LIMITED DISCUSSION HAS TAKEN PLACE AT THE BOARD LEVEL ABOUT THE EMERGENCY OPERATIONS." IT FURTHER NOTED: "NO COMPREHENSIVE STRATEGY HAS BEEN ADOPTED FOR RELIEF ASSISTANCE." IN ADDITION, UNLIKE DEVELOPMENT PROGRAMS AND PROTRACTED RELIEF AND RECOVERY OPERATIONS UNCLASSIFIED PAGE 03 ROME 00544 02 OF 04 051344Z (PRROS) WHICH ARE APPROVED BY THE EXECUTIVE BOARD, EMERGENCY OPQTIONS (I.E., EMOPS) ARE NOT PRESENTED TO THE EXECUTIVE BOARD. NOTE: EMOPS ARE APPROVED BY THE WFP EXECUTIVE DIRECTOR; WHEN THE WFP FOOD INPUT VALUE SUPPLIED EXCEEDS USD 3 MILLION, THE DIRECTOR GENERAL OF FAO MUST ALSO APPROVE. END NOTE. THE STUDY CONCLUDES: "IT WOULD SEEM DESIRABLE TO DRAW THE BOARD MORE INTO THE PLANNING AND EXECUTION OF EMOPS, PROVIDING THAT IT CAN BE DONE IN A WAY THAT DOES NOT HAMPER WFP'S RESPONSIBILITY TO RESPOND QUICKLY AND EFFECTIVELY. TO SERVE THIS PURPOSE, IT SHOULD BE POSSIBLE TO ELABORATE A SET OF CLEAR YET FLEXIBLE GUIDELINES FOR WFP'S EMERGENCY OPERATIONS FOR ADOPTION BY THE BOARD." ¶7. ON WFP'S COUNTRY STRATEGY OUTLINE (CSO) AND COUNTRY PROGRAM (CP),THE STUDY SUPPORTED THE SUGGESTION OF THE WORKING GROUP ON GOVERNANCE (MAY 2000) THAT THE CSO AND CP COULD BE MERGED INTO ONE DOCUMENT. ON THE UN IN-COUNTRY DOCUMENTS, NAMELY THE CCA (COMMON COUNTRY ASSESSMENT) AND THE UNDAF (UNITED NATIONS DEVELOPMENT ASSISTANCE FRAMEWORK), THE CCAS "WERE CONSIDERED TO BE USEFUL DOCUMENTS, WITH VERY RELEVANT BACKGROUND ANALYSIS." THE STUDY WAS MUCH LESS SANGUINE ON THE UNDAF, COMMENTING THAT "THERE WAS STILL A LONG WAY TO GO BEFORE UNDAF COULD BE PRESENTED AS A TRULY COMMON UN RESPONSE TO THE DEVELOPMENT CHALLENGES IN THE HOST COUNTRY." IN A COROLLARY DOCUMENT "IDEAS TO STRENGTHEN THE CCA/UNDAF PROCESS," ISSUED BY THE GOVERNMENTS OF DENMARK, FINLAND, NORWAY AND SWEDEN (OCTOBER 2001) IT IS SUGGESTED THAT MANY COUNTRIES HAVE EITHER DEVELOPED OR ARE DEVELOPING BROAD-BASED NATIONAL POVERTY REDUCTION STRATEGIES (PRSP) AND THAT THE CCA/UNDAF GUIDELINES "BE ADJUSTED TO REFLECT THIS MAJOR AND POSITIVE CHANGE." UNCLASSIFIED PAGE 04 ROME 00544 02 OF 04 051344Z ¶8. ON WFP'S DECENTRALIZATION PROCESS, THE STUDY REMINDED OF THE CONCERN OF THE EXTERNAL AUDITOR RELATED TO PERCEIVED WEAKNESSES "IN THE FINANCIAL ADMINISTRATION AT COUNTRY OFFICE LEVEL." -------------- -- MONITORING AND CAPACITY BUILDING AT FIELD LEVEL -------------- -- ¶9. SEVERAL KEY POINTS WERE TABLED: A) WFP MUST DEVOTE MORE ATTENTION TO CAPACITY BUILDING AND INSTITUTIONAL STRENGTHENING OF COUNTERPART AGENCIES; B) WFP IS FOCUSED ON OUTPUTS SUCH AS TONS OF FOOD DELIVERED AND NUMBER OF PEOPLE FED RATHER THAN PROVIDING A CLEAR FRAMEWORK FOR MEASURING THE DEVELOPMENTAL IMPACT OF ITS ACTIVITIES; C) THERE CAN BE LITTLE DOUBT THAT WFP PROGRAMS HAVE AN IMPACT, BUT WFP NEEDS TO BE ABLE TO DEMONSTRATE THAT THIS IMPACT IS REASONABLE COMPARED TO THE COSTS INVOLVED. CONSEQUENTLY, WFP MUST INTRODUCE CLEAR AND QUANTIFIABLE SUCCESS INDICATORS WHEN DESIGNING ITS PROJECTS AND PROGRAMS; UNCLASSIFIED UNCLASSIFIED PTO0725 PAGE 01 ROME 00544 03 OF 04 051345Z ACTION FOE-00 INFO LOG-00 NP-00 AF-00 AID-00 AMAD-00 CIAE-00 CTME-00 WHA-00 SRPP-00 EAP-00 EB-00 EUR-00 E-00 UTED-00 TEDE-00 INR-00 IO-00 MMP-00 NEA-00 NSAE-00 NSCE-00 OES-01 OIC-02 OMB-01 SSO-00 STR-00 TEST-00 USIE-00 SA-00 FMP-00 PRM-00 SAS-00 /004W -------------- 624600 051353Z /38 P 051322Z FEB 02 FM AMEMBASSY ROME TO SECSTATE WASHDC PRIORITY 1962 INFO EU MEMBER STATES COLLECTIVE AMEMBASSY OTTAWA AMEMBASSY CANBERRA AMEMBASSY TOKYO AMEMBASSY BERN AMEMBASSY LA PAZ AMEMBASSY DHAKA AMEMBASSY LUSAKA AMEMBASSY HANOI AMEMBASSY MANAGUA USDA FAS WASHDC 1985 USEU BRUSSELS 2537 USMISSION GENEVA DEPT OF TREASURY WASHDC USDOC WASHDC USMISSION USUN NEW YORK UNCLASSIFIED PAGE 02 ROME 00544 03 OF 04 051345Z UNCLAS SECTION 03 OF 04 ROME 000544 SIPDIS FROM U.S. MISSION IN ROME USDA/FAS FOR U/S/FAS PENN AND MCHAMBLISS USAID FOR DCHA/DAA/GRIGSBY AND D/FFP LANDIS STATE FOR A/S/PRM DEWEY, DAS/IO/SANDERS AND RBERSTEIN NSC FOR JDWORKEN, HTHOMAS OMB FOR TSTOLL USUN FOR LSHESTACK USEU BRUSSELS FOR USAID/FULLER TOKYO FOR USAID REP GAO FOR PTHOMAS E.O. 12958: N/A TAGS: EAID EAGR AORC PREF EAGR AORC PREF EAGR AORC PREF EAGR AORC PREF EU WFP UN EUEAID WFP UN EUEAID WFP UN EUEAID WFP UN SUBJECT: WFP MONITORING - STUDY UNDERTAKEN BY THE ROYAL DANISH MINISTRY OF FOREIGN AFFAIRS IN BANGLADESH, BOLIVIA, NICARAGUA, VIETNAM AND ZAMBIA D) IN GENERAL, THERE SEEMS TO BE A SCOPE FOR GREATER USE OF THE UN TECHNICAL AGENCIES AS SUBCONTRACTORS IN IMPLEMENTATION; E) ON EVALUATION, "THE GENERAL AIM IS THAT COUNTRY OFFICES SHOULD INCREASINGLY BE RESPONSIBLE FOR ALL STAGES OF EVALUATION (OF ITS PROGRAMS). -------------- --- "MARKET DISRUPTION" AND "DEPENDENCE" ON FOOD AID -------------- --- UNCLASSIFIED PAGE 03 ROME 00544 03 OF 04 051345Z ¶10. MARKET DISRUPTION WAS NOT JUDGED TO BE A PROBLEM IN THE FIVE COUNTRIES SURVEYED, AS WFP'S TARGETED PROGRAMS CATER "TO A PART OF THE POPULATION WHO WOULD NOT OTHERWISE GET THEIR NUTRITIONAL REQUIREMENTS COVERED." ON DEPENDENCE, "IT WOULD SEEM THAT THIS IS NOT A PROBLEM CREATED BY WFP IN ITS DEVELOPMENT ACTIVITIES." "QUITE ON THE CONTRARY, AS PART OF THE WFP ASSISTANCE THE BENEFICIARIES ARE PROVIDED WITH A DEVELOPMENT OPPORTUNITY, WHICH MIGHT ENABLE THEM TO BREAK FREE FORM DEPENDENCY." FINALLY, ON THE FOODSTUFFS PROVIDED, "THE FOOD BASKET ALSO APPEARS TO BE APPROPRIATE." "ON AVERAGE, WFP IS ONE OF THE UN ORGANIZATIONS WITH THE STRONGEST POVERTY ORIENTATION." -------------- -------------- GENDER, ENVIRONMENT, DEMOCRACY AND GOOD GOVERNANCE -------------- -------------- ¶11. THE STUDY COMMENTS THAT "GOOD RESULTS HAVE BEEN ACHIEVED IN GENDER MAINSTREAMING IN THE ORGANIZATION, INCLUDING IN THE RECRUITMENT OF NEW STAFF AND THE APPOINTMENT OF MANAGERS." ¶12. "AS A CONTRAST TO THE STRONG EMPHASIS ON GENDER LESS ATTENTION SEEMS TO BE PAID TO OTHER CROSS CUTTING ISSUES SUCH AS ENVIRONMENT, HUMAN RIGHTS, DEMOCRACY AND GOOD GOVERNANCE.THE SCOPE FOR DIRECT ACTION SEEMS GREATER, BOTH IN TERMS OF ADDRESSING ENVIRONMENTAL DEGRADATION I.E., AS PART OF DISASTER MITIGATION AND PREPAREDNESS, AND IN ASSESSING AND CONTROLLING THE ENVIRONMENTAL IMPACTS OF WFP INTERVENTIONS." UNCLASSIFIED PAGE 04 ROME 00544 03 OF 04 051345Z -------------- COMMENT -------------- ¶13. DENMARK IS TO BE APPLAUDED FOR UNDERTAKING THE FIRST INDEPENDENT ASSESSMENT OF WFP SINCE THE 1994 TRIPARTITE WFP OVERVIEW REVIEW UNDERTAKEN BY CANADA, THE NETHERLANDS AND NORWAY. THE REPORT IS QUITE POSITIVE IN ITS ENDORSEMENT OF WFP, PARTICULARLY THE "VOTE OF CONFIDENCE" IN WFP'S DEVELOPMENT FOOD AID ROLE. (SEVERAL MAJOR DONORS I.E., THE NETHERLANDS, SWEDEN - CONTRIBUTE ZERO TO WFP'S DEVELOPMENT PORTFOLIO; THE EUROPEAN COMMISSION MAKES ONLY A TOKEN CONTRIBUTION.) DENMARK'S COMMENTS ON GREATER EXECUTIVE BOARD ATTENTION TO WFP'S EMERGENCY ACTIVITIES AND THE IMPELLING ORGANIZATIONAL NEED FOR GREATER FOCUS ON RESULTS- BASED MANAGEMENT - STRONGLY MIRROR U.S. POSITIONS TAKEN AT THE BOARD OVER THE PAST SEVERAL YEARS. IN SHORT, DENMARK IS PLEASED WITH THE PROGRESS DEMONSTRATED BY WFP ON A NUMBER OF FRONTS AND THEY ARE COMMITTED TO "STAYING THE COURSE" IN THE FORM OF CONTINUING SUBSTANTIVE FINANCIAL SUPPORT. ¶14. USMISSION HAS REQUESTED THAT THE COMPLETE DOCUMENT UNCLASSIFIED UNCLASSIFIED PTQ9463 PAGE 01 ROME 00544 04 OF 04 051345Z ACTION FOE-00 INFO LOG-00 NP-00 AF-00 AID-00 AMAD-00 CIAE-00 CTME-00 WHA-00 SRPP-00 EAP-00 EB-00 EUR-00 E-00 UTED-00 TEDE-00 INR-00 IO-00 MMP-00 NEA-00 NSAE-00 NSCE-00 OES-01 OIC-02 OMB-01 SSO-00 STR-00 TEST-00 USIE-00 SA-00 FMP-00 PRM-00 SAS-00 /004W -------------- 624AD7 051421Z /38 P 051322Z FEB 02 FM AMEMBASSY ROME TO SECSTATE WASHDC PRIORITY 1963 INFO EU MEMBER STATES COLLECTIVE AMEMBASSY OTTAWA AMEMBASSY CANBERRA AMEMBASSY TOKYO AMEMBASSY BERN AMEMBASSY LATQQPQK7N RUEHRC/USDA FAS WASHDC USEU BRUSSELS 2538 USMISSION GENEVA 435H DEPT OF TREASURY WASHDC USDOC WASHDC USMISSION USUN NEW YORK UNCLAS SECTION 04 OF 04 ROME 000544 SIPDIS FROM U.S. MISSION IN ROME USDA/FAS FOR U/S/FAS PENN AND MCHAMBLISS USAID FOR DCHA/DAA/GRIGSBY AND D/FFP LANDIS UNCLASSIFIED PAGE 02 ROME 00544 04 OF 04 051345Z STATE FOR A/S/PRM DEWEY, DAS/IO/SANDERS AND RBERSTEIN NSC FOR JDWORKEN, HTHOMAS OMB FOR TSTOLL USUN FOR LSHESTACK USEU BRUSSELS FOR USAID/FULLER TOKYO FOR USAID REP GAO FOR PTHOMAS E.O. 12958: N/A TAGS: EAID EAGR AORC PREF EAGR AORC PREF EAGR AORC PREF EAGR AORC PREF EU WFP UN EUEAID WFP UN EUEAID WFP UN EUEAID WFP UN SUBJECT: WFP MONITORING - STUDY UNDERTAKEN BY THE ROYAL DANISH MINISTRY OF FOREIGN AFFAIRS IN BANGLADESH, BOLIVIA, NICARAGUA, VIETNAM AND ZAMBIA "MONITORING OF THE WORLD FOOD PROGRAMME - 2001, ROYAL DANISH MINISTRY OF FOREIGN AFFAIRS" BE MADE AVAILABLE ON THE WFP WEBSITE WWW.WFP.ORG. HEILEMAN UNCLASSIFIED > 2002ROME00544 - Classification: UNCLASSIFIED