Identifier
Created
Classification
Origin
02ROME544
2002-02-05 13:22:00
UNCLASSIFIED
Embassy Rome
Cable title:
WFP MONITORING - STUDY UNDERTAKEN BY THE ROYAL
how-toThis record is a partial extract of the original cable. The full text of the original cable is not available. 051322Z Feb 02 PAGE 02 ROME 00544 01 OF 04 051344Z
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
-------
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
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