BURKINA FASO SURVEY ON THE IMPACT OF RISING

UNCLAS SECTION 01 OF 05 OUAGADOUGOU 000439 ACCRA FOR USAID WEST AFRICA DAKAR FOR USAID FOOD FOR PEACE AND OFDA DAKAR FOR FAS DEPT PASS TO USAID FOR AFR/DP SIPDIS E.O. 12958: N/A TAGS: EAID SOCI EAGR PGOV UV SUBJECT: BURKINA FASO SURVEY ON THE IMPACT OF RISING FOOD/AGRICULTURAL COMMODITIES REF: A) State 039410 B) Ouagadougou 132 C) Ouagadougou 126 D) Ouagadougou 202 E) Ouagadougou 221 F) Ouagadougou 263 G) Ouagadougou 309 ¶1. Following is Embassy Ouagadougou's response to ref A: -------------- SUPPLY AND DEMAND -------------- ¶2. Official statistics released by the Burkina Faso Ministry of Agriculture, Hydraulics and Fisheries estimated national cereal production for the 2007/2008 agricultural campaign at 3,736,656 metric tons. Current year agricultural production is two percent higher than the 2006/2007 agricultural campaign (3,680,674 metric tons) and eight percent higher than the average of the last five agricultural campaigns (3,452,717 metric tons). The leading types of cereals produced in Burkina Faso are sorghum, millet, maize, rice and fonio (a small species of millet predominantly found in West Africa). ¶3. According to the Ministry of Agriculture, Burkina Faso's estimated 2008 cereal requirements are 2,874,958 metric tons. The Ministry estimates that the total available supply of cereal is 3,652,176 metric tons which includes 3,139,232 metric tons from current year production, 200,363 metric tons from national stockpiles, and 312,581 metric tons from imports and food aid. Although the Ministry of Agriculture concluded that there was an overall cereal surplus of 777,218 metric tons, a study done by the German Technical Cooperation (GTZ),emphasized the provisional nature of these statistics and questioned why the Ministry of Agriculture did not publicize their report until the end of March. ¶4. While Burkina Faso is enjoying a slight surplus in cereal production, it is important to note that it is not equitably distributed across the country's 45 provinces. According to the Ministry of Agriculture, during this year's agricultural campaign 14 provinces noted an increase in cereal production in excess of 10 percent, while five provinces had an increase of less than 10 percent. Despite good harvests in some regions, seven provinces reported a production decrease of less than 10 percent while 19 provinces experienced decreases of more than 10 percent. A geographical assessment of supply and demand undertaken by the Ministry, showed that 20 of the country's 45 provinces would meet their cereal needs with a production level of 120 percent, 10 provinces would have coverage between 90 and 120 percent and 15 provinces in the central and northern areas of the country would experience a coverage rate of less than 90 percent. ¶5. In April 2008, a joint food availability assessment surveyed marketplaces and farmers in 13 regions served by UNICEF, World Food Program, FAO, l'Eau Vive, and "Terres des Hommes." According to this assessment, food availability could be described as "good" in only three out the 13 regions surveyed. An in-depth analysis of food availability by cereal type indicated that despite a possible surplus of millet, sorghum, maize and fonio, the country will still need to import both rice and wheat to cover its cereal needs. Dr. Zacharie Segda, an agro-economist at the National Institute of Agricultural Research (INERA),estimates that Burkina Faso imports 300,000 metric tons of rice annually at an approximate value of 40 billon CFA (US $95.2 million). According to the Ministry of Agriculture, on average, the country is capable of satisfying only one-third of its rice demand through domestic production. ¶6. Since January 2008, cereal prices have increased dramatically in Burkina Faso. "Afrique Verte," an international organization which publishes a monthly on-line commodities survey, recently indicated that "prices in local markets increased significantly between March 2007 and March 2008." At Sankariare, a Ouagadougou market, 2008 imported rice increased between March 2007 and March by 21 percent from 240 CFA (US $0.57) to 290 CFA (US $0.69); millet increased nine percent from 115 CFA (US $0.27) to 125 CFA (US $0.30); sorghum increased 15 percent from 100 CFA (US $0.24) to 115 CFA (US $0.27) and maize increased 44 percent from 80 CFA (US $0.19) to 115 CFA (US $0.27) per kilo. ¶7. Local experts believe that price increases in imported cereals such as rice can be justified in the context of the world market, but the increase for dry cereals is rooted in poor fluidity between regional markets and exacerbated by speculative market behavior. A recent commodity analysis performed by GTZ concluded that in addition to external factors, the recent government move to tighten import controls has exacerbated the situation by further constricting the supply chain. OUAGADOUGO 00000439 002 OF 005 -------------- POLITICAL IMPACT -------------- ¶8. The rising cost of living in Burkina Faso has led to numerous nationwide demonstrations and union-led strikes protesting "La Vie Chere." The first signs of public discontent took place on February 20 when spontaneous demonstrations erupted in three major cities including Bobo Dioulasso, Ouahigouya, and Banfora. Rioters attacked government offices, burned shops, cars, and petrol stations. On February 29, 153 protestors arrested during the Bobo Dioulasso riots appeared in court, 29 of them were convicted of destruction of property. Prison sentences ranged from three to 36 months. Thibaut Nana, President of the Patriotic Youth Movement (MJP),called for another demonstration on February 28 in Burkina Faso's capital city, Ouagadougou. The Government of Burkina Faso (GOBF) stated that it did not recognize the MJP as a legitimate entity and refused to sanction the demonstration. Despite government warnings, on February 28, protestors attacked government buildings with rocks and metal bars, set fire to piles of tires, and set up roadblocks as they demanded lower prices for fuel and food. The government responded with riot police and tear gas and 184 protestors were arrested, including Nana Thibaut. ¶9. When unsanctioned demonstrations met with government resistance, unions continued their protests for better living conditions through a series of official rallies in major cities. The first government-approved union rally took place on March 15 followed by nationwide general strikes on April 8-9 and another three day strike on May 13-15. Unions and the GOBF continue to give vastly different accounts of Burkinabe strike participation. After the two-day nationwide strike, Union sources reported 90 percent worker participation, while the Government disputed the success of the event and claimed that only 20 percent of workers were present. -------------- ECONOMIC IMPACT -------------- ¶10. Rising food prices will have significant macro-economic impact on Burkina Faso. Gross domestic product (GDP) remained a strong 7.1 percent in 2005 and 5.5 percent in 2006, but in 2007 higher costs of energy and food, as well as low cotton prices, dampened the GDP growth rate to 4.2 percent. Although Burkina Faso enjoyed a -0.3 percent inflation rate through the first half of 2007, prices increases severely impacted Burkina Faso's Consumer Price Index (CPI),causing it to increase from 118.6 in July 2007 to 122.6 by the end of December (Ouagadougou 202). Both the GOBF and the International Monetary Fund (IMF) have forecast an inflation rate of 6.2 percent in 2008. Both the balance of payments and the trade balance, which were already structurally in deficit, are likely to widen as Burkina Faso continues to import higher priced goods. ¶11. In an attempt to fight against corruption, the GOBF hired COTECNA, a Swiss-based "trade inspection" company, in early 2008 to verify that the actual value of imported goods matched the importers' declared value. Once importers were required to pay increased value-added taxes they decided to maintain their profit margins by passing their costs onto consumers. In late February, the GOBF announced a six month suspension of customs duties and Value-Added Taxes (VAT) on imported cereals. The Customs General Directorate has not totally assessed the fiscal impact of this measure, but IMF experts believe that it could significantly reduce government revenue for 2008. ¶12. A recent IMF mission to Burkina Faso cautioned that: "2008 fiscal policy must strike a balance between accommodating social needs and preserving macroeconomic stability." The IMF believes that although the government has taken steps to mitigate the negative social impact of higher food and energy prices, it may become necessary to tighten fiscal policy if price increases were to lead to accelerating inflation rates. The IMF mission concluded that in the short term, continued efforts to increase revenue and reduce the fiscal deficit to less than three percent of GDP, would be key to preserving debt sustainability. ¶13. Many Donors have voiced concerns that price increases will have a profound impact on poverty reduction in Burkina Faso. The GTZ study referenced a 2006 project by Michael Grimm and Isabel Gunther addressing the effects of price shocks on pro-poor growth. According to this study, the cereal food component accounted for roughly 37 percent of per capita household expenditures for 40 OUAGADOUGO 00000439 003 OF 005 percent of the lowest income households, while it represented only 16 percent for the 20 percent richest of the country. Recent statistics on poverty reduction show that until 2006, a seven percent GDP growth rate helped lower the incidence of poverty from 46.2 percent in 2003 to 42.1 percent in 2006 while the 2007 economic slowdown resulted in a rebound of the poverty rate to 42.6 percent. -------------- ENVIRONMENTAL IMPACT -------------- ¶14. No specific environmental impact from increased food prices has been noted. -------------- GOVERNMENT POLICY RESPONSE -------------- ¶15. On April 1, the National Assembly established a 15-member ad hoc Parliamentary commission consisting of representatives from both ruling and opposition parties. The commission was tasked to assess the on-going food crisis and to recommend a viable action plan. Although the commission has met with importers, traders' organizations and made numerous field visits to Bobo Dioulasso, it has not publicly released its findings. ¶16. The GOBF has taken several measures to address agricultural commodity price increases. The first measure provided lower cost cereals to the most impoverished segments of Burkinabe society. At the end of the 2007/2008 agricultural season, the GOBF decided to sell subsidized millet, sorghum and maize to the poorest populations living in deficit localities. On April 27, Prime Minister Tertius Zongo announced to the National Assembly that the GOBF had successfully distributed 31,375 metric tons of grain from the national stockpile. Zongo added that 11,000 metric tons of cereals had been sold at the subsidized price of 9,000 CFA (US $21.43) per 100 kg in lieu of the market price of 15,000 FCFA (US $35.71). The GTZ study described this program as "ineffective" and cited complicated administrative procedures, insufficient quantities, and the high cost of transportation between the capital and outlying villages as the reason for the program's mitigated success. ¶17. In response to growing national discontent, the GOBF decided to suspend customs duties and Value-Added Taxes (VAT) on certain agricultural commodities including rice and wheat. Although the tax break was initially planned for a three-month period from March to May, the government extended the measure until June. Many critics feel that this policy had no significant impact on the price of agricultural products. On May 9, both the governmental newspaper "Sidwaya" and the independent newspaper "Le Pays" cited the 58 percent increase in the price of imported rice since January and concurred that the impact of suspended customs duties was negligible. ¶18. The Minister of Commerce stated categorically that Burkina Faso is not restricting food exports. However, several weeks ago World Food Program (WFP) did not receive an export permit from the Ministry and had to cancel exporting 2,500 metric tons of cereal to neighboring Ghana and Niger. Ambassador delivered a demarche on May 28 to the Minister Mamadou Sanou requesting that food exports not be restricted; Sanou explained that no export restrictions were in place. ¶19. Prime Minister Zongo, during his address to the National Assembly in late March, congratulated the GOBF on its support of small-scale irrigation projects which enabled farmers to produce more than 530,000 metric tons of cereals during the dry season. Zongo opined that this program was an opportunity to extend food availability to vulnerable populations throughout the year. ¶20. On April 7-18, the United Nations Food and Agriculture Organization (FAO) sponsored "Initiative on Soaring Food Prices" (ISFP) met with the GOBF to offer technical and policy assistance. Although the FAO initiated this mission, several institutions joined the effort including: the African Union, the World Bank, the International Fund for Agricultural Development (IFAD),and the World Food Program. This group of bilateral development agencies and the National Permanent Secretary of Coordinating Agricultural Sector Policies (SP/CPSA) proposed a basic policy framework to address the food crisis. The initiative recommended three policy measures: sustained support of improved agricultural productivity; political and policy measures to encourage agricultural initiatives; and market driven production of agricultural commodities. OUAGADOUGO 00000439 004 OF 005 ¶21. The commission estimated that nearly $64 million would be required for food distribution to vulnerable populations and financial support for the 2008/2009 agricultural season. The commission emphasized the urgent need for 500 metric tons of improved seeds, 340 tons of nitrogen-phosphorus-potassium (NPK) fertilizer and 200 tons of urea, a low cost nitrogen fertilizer. The production component of this assistance package would allow 33,000 households to cultivate 45,000 ha of sorghum, millet, corn, beans and onions. FAO, Spain and the United Nations Office for the Coordination of Humanitarian Affairs (OCHA) will furnish $1.8 million to purchase improved seed and fertilizer. The World Bank will finance 3,500 tons of improved sorghum and millet seeds (500 metric tons),corn (2,500 metric tons),beans (500 metric tons) for 140,000 households to cultivate 220,000 ha. The third and largest aid component seeks to assist 220,000 households develop sustainable rice production for 30,000 ha. To date, this $7.6 million project has not yet received financial support. ¶22. The Ministry of Agriculture reported that their objective for the 2008/2009 agricultural season was to increase cereal production by 13.23 percent to 4,231,479 metric tons. The Ministry also plans to double 2007 rice production from 123,028 metric tons to 247,484 metric tons. On May 9, the newspaper "Le Pays" reported that to ensure success of this year's agricultural season, the Ministry of Agriculture had seven recommendations: i) promote effective use of improved seeds by farmers; ii) government support for the production of 20 tons of organic fertilizers; iii) government commitment to purchase surplus rice production; iv) decrease taxes on agricultural inputs; v) decrease interest rates on agricultural credits; vi) increase farmers' access to agricultural equipment; and vii) continued government commitment to purchase rice at the remunerative prices announced at the beginning of the agricultural season. ¶23. Despite efforts to improve national food security, Dr. Zacharie Segda, an agricultural economist at INERA, continued to criticize the GOBF for inequities in government assistance for various agricultural sectors. Segda claimed that in 2008 the GOBF has already paid $15.4 million in subsidies to the cotton sector to facilitate farmer access to affordable fertilizers while the rice sector has not received any assistance. Segda is confident that with financial support of $2.3 million, the rice sector could produce sufficient quantities to meet the country's needs. ¶24. On May 9, the USDA Regional Agricultural Attache met with Alain Kabore a representative from the United Nations' (UN) Food and Agriculture Organization (FAO). During the meeting, Kabore voiced concern over insufficient quantities of improved seed for the upcoming agricultural season. Kabore stated that through the financial support of Luxemburg, FAO plans to give 240 tons of improved seeds to the 15 provinces that experienced low cereal production in 2007. He acknowledged however, that lack of seed availability would prevent them from realizing more 40 percent of their initial target. In 2007, national production of improved seeds was estimated at a mere 5,000 metric tons and demand from the World Bank and other organizations could not be met through domestic supplies. ¶25. In late May, the UN will launch a comprehensive nationwide survey to analyze food security and its impact on nutrition in Burkina Faso. The UN will work in conjunction with the Department of Agricultural Statistics and various NGOs to conduct a month long survey of 11,800 rural households. A second smaller survey will assess urban populations in six cities, focusing on neighborhoods with a high concentration of poverty. It is hoped that this survey will provide a qualitative understanding of higher prices, including an analysis of coping mechanisms and their effects on nutrition. -------------- IMPACT ON POST PROGRAMS -------------- ¶26. Post Operational Plan objectives are implemented by two non-governmental Organizations (NGOs),Africare and Catholic Relief Service (CRS). Both NGOs implement agricultural programs that offer farmers the opportunity to improve their productivity. According to the UNICEF joint assessment of food availability in April 2008 all 13 provinces in their survey have reported an increased incidence of malnourished children. On-site interviews have attested to an increased trend of malnutrition and in an increase in the number of low birth weight infants. ¶27. Millennium Challenge Corporation (MCC) and the GOBF are currently in the final phase of compact development. The $481 million MCC compact includes activities to enhance agricultural OUAGADOUGO 00000439 005 OF 005 production and facilitate land ownership. The proposed July 16, 2008 compact signature will be welcomed by both the government and the population of Burkina Faso. While the MCC compact will not be realized in time to assist with Burkina Faso's 2008/2009 growing season, it is hoped that these programs will impact productivity in future years. -------------- POLICY PROPOSALS -------------- ¶28. In recent years, Burkina Faso's agricultural research capabilities have weakened significantly. The National Institute for Agricultural Research (INERA),which was initially funded by the World Bank, has been allowed to languish since the GOBF assumed control in 2000. After more than eight years of neglect, INERA lacks the capacity to select new varieties of improved seeds for farmers. The GOBF needs to bolster its agricultural research programs in order to improve future agricultural productivity. Given the current economic climate, it will become increasingly important for the GOBF to balance its financial support between the cotton and cereal sectors. ¶29. The recent GTZ study provided valuable economic analyses on possible for government measures. Over the short-term, the study pointed out, that fiscal policies such as lower customs duties, price subsidies, storage programs, adjustment funds, price regulation, margin supervision, and income increases will either be difficult to implement or will have limited impact on soaring commodity prices. Moreover, GTZ concluded that the public budget would be unable to sustain many of these measures even over the short term. The study encouraged the GOBF to enlist the services of COTECNA in its fight against corruption and proposed the following fiscal policies: increase revenues through pro-poor growth measures, increase cereal productivity, reinforce market competition and integration for food commodities. ¶30. The GTZ study also suggested that West African Economic and Monetary Union (WAEMU) members, who share a common regulatory mechanism as well as common external tariffs, should work together to tackle the agricultural price issue. After an April 23 meeting, WAEMU issued a press communique stating that, "In an effort to coordinate future efforts, the ministers examined previous measures taken by individual states at the national level. The counsel agreed to release up to 340 billion CFA (US $810 million) in internal resources to fund emergency needs and agricultural projects." JACKSON