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Chapter 3: development support programme

(i) Major Programme 3.1: Field Programme Planning and Liaison

239. The Conference endorsed the increased emphasis placed on support to the field programme, which was considered fundamental to the Organization's assistance to developing countries.

240. It was noted that a focal point had been established for coordinated planning and implementation of the decentralization policy. Support was given to the provision for modest strengthening of the central TCP unit.

241. The Conference welcomed the increasing linkages between the Regular Programme and the Field Programme and requested that these should be extended and increased wherever possible.

(ii) Major Programme 3.2 - Investment

242. The Conference fully supported the high priority placed on FAO's investment facilitation activities, which were designed to provide practical assistance to developing countries in their efforts to attract increased funds for agricultural and rural development.

243. The Conference was satisfied that the major financing institutions intended to increase their commitments to agricultural investment and that the Investment Centre was continuously strengthening its relationship with such institutions. These included the World Bank, the Regional Development Banks, the International Fund for Agricultural Development (IFAD), and a growing number of national development banks.

244. It was felt that FAO's investment assistance activities should include a strong component of training and development of national capability in investment project formulation, implementation and monitoring.

245. The Conference confirmed the importance of IFAD as a source of funds for agricultural investment and endorsed the priority given to strengthened links between IFAD and FAO, which should occur throughout the organization.

246. The Conference endorsed the steps being taken to enlarge the project pipeline for investment, in particular the follow-up of UNDP field projects which could lead to investment. There was a close relationship between field project execution and the various investment activities including project identification, preparation and implementation.

247. The Conference welcomed the measures under way to ensure fuller utilization of the staff capabilities in the technical units in the provision of investment service assistance. It was emphasized that broader involvement throughout the Organization in investment activities was important in the light of the current and projected volume of investment workload,

(iii) Major Programme 3.3 - Special Programmes

248. The Conference welcomed continuation of the Freedom from Hunger/Action for Development Programme under its new orientation of work with non-governmental organizations.

249. These were continuing to provide valuable additional resources and expertise for development assistance of particular benefit to the poorest groups in the least developed countries

250. The Conference supported the André Mayer Fellowship Programme and urged that the programme level should not be eroded by inflation.

(iv) Major Programme 3.4 - FAO Representatives

251. The Conference considered that the FAO Representatives were essential to implementing the approved policy of decentralization at the country-level.

252. It was stressed that FAO Representatives provided an indispensable link between the organization and developing countries. Their role was valuable both in emergencies and in planning for normal development.

253. The Conference noted that the Senior Agricultural Advisers/Country Representatives, (SAA/CR) would be completely phased out at the end of 1979, but that close cooperation was being maintained between the FAO Representatives and the UNDP Resident Representatives.

254. It was noted that the two Organizations shared services and accommodation when it was economical and acceptable to the country concerned.

255. The Conference supported the current recruitment procedures whereby the countries involved were full participants in the process. Delays sometimes encountered in recruitment were more than offset by the advantages of careful selection and the establishment of mutual confidence.

256. Many members pointed to the excellent working relationship established with their representatives, and complimented the Director-General on the calibre of his appointments.

257. Taking into consideration the policy of decentralization and the important role of the FAO Representatives, some members suggested that the possibility of staffing reductions or redeployments in Headquarters or the Regional Offices might be considered. The majority felt, however, that the matter should not be judged prematurely and that increases in regional staff were essential to the decentralization process.

258. Some members felt that some improvements of a technical and administrative nature were possible in the establishment of a network of FAO Representatives and suggested that the implementation of the programme should be monitored or evaluated. The Conference however agreed and stressed that the countries which had FAO Representatives were primarily responsible for, and indeed in the best position to evaluate the usefulness of FAO Representatives. It also felt that the Director-General had the matter continuously under review, that adequate information was provided in the Conference documentation on progress to date, and that further monitoring would be premature at this stage.

259. The Conference approved the proposed level of 62 Representatives by the end of 1981. It was noted that plans existed for some FAO Representatives to cover more than the one country in which they would reside, where this was suitable and acceptable.

Chapter 4: technical cooperation programme (TCP)

260. The Conference agreed on the usefulness and effectiveness of the TCP.

261. It was stressed that the TCP had emerged as an essential operational arm of FAO, particularly in emergency situations, and a means of implementing the Director-General's policy on decentralization and effective action at country level. It permitted a prompt, though limited, response to short-term, small-scale and unforeseen situations. The bulk of TCP funds had been utilized in LDC and MSA countries.

262. A substantial number of members would have preferred a larger increase for the TCP, but supported the proposed level in recognition of various constraints faced by the
Director-General in preparing his budget proposals.

263. The Conference accordingly reiterated its full support for the TCP and welcomed the proportionate increase for its further strengthening in 1980-81.

Chapter 5: support services

264. The Conference approved the increase in resources proposed for Major Programme 5.1 - Information and Documentation.

265. It was noted with satisfaction that the AGRIS Coordinating Centre was bringing more and more developing countries into this important documentation system, and it was requested that increased support be given to this programme.

266. While several members expressed the hope that administrative costs could be reduced as far as possible, the resources requested for Major Programme 5.2 - Administration, which included Administrative, Financial, Management, and Personnel Services, were approved by the Conference.

267. The Conference noted that the Director-General was making every effort to ensure that recruitment of staff was in accord with all the statutory and other appropriate factors which he had to consider. It was hoped that a better balance could be achieved in the future, with full regard to the established criteria.

268. In general the Conference commended the progress made by the Director-General towards increasing the number of women in professional posts. Continuing efforts in the direction were strongly supported.

269. The Conference generally approved Supplements 1 and 2 to the Programme of Work and Budget (List of Publications etc. and List of Sessions for 1980-81).

Chapter 6: common services

270. Some members suggested the possibility of absorbing part of the proposed increase through various economics.

271. After discussion, the Conference accepted the Director-General's view that the requested provision for common services was already substantially lower than would be required in the light of the acceleration of inflation in the last moths of 1979, which was not covered by the estimates for 1980-81.

Chapter 7: contingencies

272. The Conference agreed with the increased provision for contingencies to meet unforeseen essential expenditure.

273. The Conference noted that the document Review of the Regular Programme 1978-79 had been prepared in accordance with the decision of the Nineteenth Session of the Conference.

274. The Conference noted further that other important parts of the system of Regular Programme evaluation were the auto-evaluation undertaken by all units, other special reports on specific programmes or activities prepared by the Evaluation Service, the Programme and Finance Committees, COFI, COFO, COAG and the Joint Inspection Unit.

275. The Conference considered the two parts of the review. It noted that Part I consisted of a performance report in which an attempt was made to redefine programme objectives more sharply; to review programme strategy and implementation; and to highlight major achievements in the form of advice and assistance to member countries, backstopping of field projects, training activities, technical meetings and publications. To the extent possible linkages with other programmes were also identified.

276. It was noted with approval that the performance report contained a useful section on "Issues" under each Major Programme, in which pertinent problems cutting across each programme were highlighted. Some members considered that medium-term objectives should be included in this section.

277. The Conference felt that Part II of the review, which covered the evaluation of five sub-programmes, constituted a useful, critical and in-depth exercise, particularly as it also focussed on the field component of the sub-programmes and thus linked up with the Review of
Field Programmes, where applicable.

278. In general, the Conference considered that, as part of its concern for improved programme evaluation, a number of conclusions could already be drawn that were of value in planning future programmes of work.

279. The most important of these was the need for more study of the socio-economic and socio-political aspects of those Regular Programme activities which were intended to have an impact at the farm level. This meant, in particular, obtaining a more accurate assessment of the production constraints on small farms.

280. In this connexion it was agreed that improved farming methods and management techniques had to be not only simple to introduce, and cheap to purchase or apply, but they had above all to be reliable because poor farmers could not afford any risk, however small, as they had an insufficient margin of security.

281. This would also necessitate a high degree of adaptation of agronomic research to local agro-ecological situations. For example, in providing rice seed to a village it would be necessary to provide different improved seeds adapted to each of the physical situations that might be met in that village, where some farmers might have adequate water supplies, others might be short of water, and yet others might have drainage problems, etc.

282. A number of detailed observations were made on each of the Major Programmes covered by Part I as well as on the sub-programmes covered in Part II. Among these points were those-dealt with in the following paragraphs.

283. With respect to "Seed Improvement and Development" the Conference noted with approval the very useful work being carried out under this sub-programme both in providing selected seed material and training to member countries. The Conference felt that, for the future, more emphasis might need to be placed on seed pathology because of the increased susceptibility of most improved varieties. Where training was provided on pathology it was important to ensure that the trainee, on return to his home country, would have the necessary equipment to make use of that training. Failing this, the possibility of technical assistance to provide the necessary equipment should be examined.

284. It was also essential to strengthen the extension services and institutional procedures for the provision and use of selected and improved seeds. This would cover seed multiplication, storage and distribution to farmers, the provision of credit, etc. Plant breeding and seed production could successfully employ local manual labour, particularly that of women.

285. The Conference noted the urgent need to prevent the loss of valuable genetic material through collection, preservation, documentation and evaluation of primitive cultivars and wild relatives of cultivated plants. In this context the potential of neglected and non-cultivated species should receive greater recognition.

286. The Conference also noted with approval the start made on establishing gene bank reserves in the livestock and forestry sectors.

287. The Conference commended the Legislation Branch on the work reported in the review. It suggested that in view of the pressure on land in some parts of the world it would be useful if the Legislation Branch were to undertake a study of "Minimum Productivity Laws". The study would attempt to determine the extent to which such laws might help to ensure that land was not misused, while preserving the right of the individual to manage his farm as he deemed best.

288. The Conference considered extremely useful the work of the Fish Data and Statistics Programme, as reported in the review, and stressed that such work was necessary. It was hoped that it might be possible to develop this into some form of "Early Warning System" to give warning of potential over-fishing or pollution of fishing areas.

289. The Conference considered that it was important to ensure that economic considerations were taken into account in fishery development programmes. The Conference was also concerned that the useful work now being undertaken on the Exclusive Economic Zones (EEZ) should not be to the detriment of work on aquaculture and artisanal fishery development, as these contributed directly to rural development and improved nutrition.

290. The Conference noted that the impact of the Regular Programme had not yet benefited women in agriculture as much as was previously recommended by the Conference and endorsed at the World Conference on Agrarian Reform and Rural Development (WCARRD). Some progress was undoubtedly being made but it was evident that more was required. The Secretariat stressed that it was doing all that it could to encourage participation of women in the work of the Regular and Field Programmes, and to take into account the potential impact of its work on rural women. however, in the final analysis major responsibility for this still lay with the governments of the countries concerned. Few women were nominated by governments to training courses operated by FAO. The percentage of women trainees was rising but for most courses it was still well under ten percent.

291. The Conference noted the need for forestry work aimed at making better use of under exploited tropical forest species. It was also necessary to encourage the integration of forestry with farming, to provide fuel and building materials, which were in short supply in many areas. The Conference supported steps being taken by FAO to integrate forestry into rural development programmes and noted that this was being financed from extra-budgetary resources. The Conference also endorsed the work aimed at strengthening the institutional basis for the expansion of forestry industries and trade in member countries.

292. The Conference also noted the extremely useful work undertaken through the Food Information System. It was hoped that this work would be linked to the global climate prediction system being developed by WMO. It was important that this activity be expanded to cover the provision of information on the trends in consumption and distribution of foods, including livestock feed. To increase the effectiveness of the Global Food Information and Early Warning System, every effort should be made to improve the quality of the information made available to it, and to continue seeking the cooperation of UN Member States not yet participating in the system.

293. The Conference endorsed the work undertaken under the CARTS and ACRTS programmes and expressed support for its continuation.

294. With regard to the work of the Regional Offices, the Conference felt that they could be particularly helpful in assisting member countries in controlling and eventually eradicating certain animal diseases. This was an appropriate field for Regional Office activity, as diseases recognized no national frontiers but by their nature tended to be localized in neighbouring countries within a region. Some members hoped for a new definition of the role of the Regional Offices.

295. The Conference also stressed the need for better coordination between the work of the Regional Offices and Headquarters. The Regional Offices were better placed to concentrate on issues of a regional nature but, because of their small. number of staff, would still need to rely on Headquarters for technical support.

296. The Conference expressed support for the programme of auto-evaluation being carried out within the Organization. Some members felt that this could be strengthened and made more effective in identifying strengths and weaknesses.

297. A few members suggested that there was a need for additional evaluations of aspects of the Regular Programme to be carried out by outside consultants. The Conference generally agreed however that this would be inappropriate and that the results might not be commensurate with the costs involved.

298. The Conference requested the Director-General to include in the next review more statistical and graphical material.

299. The Conference confirmed the proposal of the Council to review overlapping of material in the review with that in other documents. In this connexion it was noted that as programme activities were on-going during the period covered by the review (i.e. the current biennium), it was difficult to measure impact. The Conference agreed that it might be more practical, in future, for Part I to concentrate on the second year of the previous biennium and the first year of the current biennium, and for Part IT to cover a period of about five years (or longer where appropriate). The programmes concerned could then be covered in greater depth.

300. Many members expressed support for the idea of combining the Review of the Regular Programme with the Review of the Field Programmes into a single document.

301. Some members suggested that the reviews of the Regular and Field Programmes and of Medium-Term Objectives should be discussed by the Conference before discussion on the Programme of Work and Budget. The Conference however confirmed the reasons for its previous decisions to discuss the Programme of Work and Budget as the first item on the Agenda of Commission II.

302. The Conference expressed satisfaction that the Review of Field Programmes 1978-79 provided a clear and analytical over-view of the content and direction of FAO's field activities. The format of the review and the choice of special subjects covered in chapters 3 and 4 for more detailed analysis were in accord with the recommendations of the Nineteenth Session of the Conference. The Conference welcomed the inclusion of charts and summary tables in the text which had enhanced the clarity and impact of analysis of the basic issues touched upon in the review.

303. The Conference concurred with the views of the Programme Committee that as on previous occasions the review for 1978-79 had maintained a high standard in identifying and analysing critical policy issues relating to aid to agriculture in general and field programmes administered by FAO in particular. It was recognized that the review raised a number of questions which were of great significance to the member countries but to which there appeared to be no easy answers.

304. The Conference shared the Director-General's concern over the disturbing trends within and outside the UN system, with undertones of stagnation, even deceleration in real terms in the volume of commitments to technical assistance for agriculture. Although the flow of official development assistance had more than doubled over the last five or six years in real terms, the share of technical assistance in the total had been falling sharply every year. As against 16 percent in 1973, technical assistance accounted for only 9 percent of the total development assistance to agriculture in 1977 and the situation had possibly deteriorated further in the current biennium.

305. The Conference noted that the bulk of the investments in agriculture originated locally in practically all developing countries. However, gaps in national institutions, in the supply and utilization of trained manpower, in resource surveys, in the development of technological packages for the arid and semi-arid zones and for the uplifting of the landless labourers and other underprivileged groups, and the socio-economic data needed for the preparation and monitoring of development projects, still presented serious constraints on self-reliance and on effective absorption of further investments in agriculture from external as well as internal sources.

306. Technical assistance was aimed precisely at bridging these gaps. The Conference thus viewed with great concern the reduced FAO share in UNDP-assisted projects and programmes.

307. While there had been an increase in field programme expenditures in 1978 of 120 percent over 1970 at current prices, in real terms the increase was only two percent above the 1970 level. The situation would have been even more disconcerting if FAO expenditures under Trust Funds had not maintained a steady increase in real terms, thus counter-balancing the sharp decline noted in expenditures on UNDP-supported projects.

308. The Conference requested the Director-General to analyse these trends in greater depth and submit the results to the Seventy-eighth Session of the Council and subsequently to the next session of the Conference. Some members requested that this analysis focus upon the trends of all agricultural investments in developing countries and in particular those which received official development assistance.

309. The Programme Committee had earlier suggested that such an analysis should examine in particular the declining share of FAO in UNDP-assisted agricultural projects and programmes, the proportion of agricultural projects in total UNDP expenditures from year to year and the declining share of UNDP itself in the total commitments to technical assistance within the UN system. The Conference concurred with these suggestions.

310. It was felt that the analysis should be carried out within the context of current trends and policies in regard to Official Development Assistance (ODA) to agriculture in general, and commitments and expenditures on technical cooperation and investment activities for support of food production and rural development in particular.

311. The Conference welcomed the progressive improvement in the quality of the field projects administered by FAO as noted in the results of the assessments carried out by FAO Representatives. While such assessments were bound to have somewhat of a subjective character, the cumulative experience acquired in these exercises since 1972-73 had helped in the identification of global trends in a satisfactory manner. The appointment of FAO Representatives in a large number of countries and their consultations with the project staff, senior government officials and others directly associated with each project reviewed before preparing their assessments, had further improved the quality of the assessment for the current biennium.

312. The Conference agreed that the existing procedures for evaluation by FAO had proved very effective in identifying positive and negative factors in field activities, and had helped the administration and the governing bodies to institute appropriate measures to overcome many of the knotty problems and bring others to the attention of the governments and other organizations concerned. In future, evaluation procedures might also include two supplementary criteria, namely: degree of participation by the population concerned, and raising of the socio-economic level of the poorest populations.

313. The Conference felt that the developing countries should participate more actively in these reviews, as the countries themselves were the best judges of the effectiveness of field projects and were directly concerned with follow-up action on the results of reviews and evaluation. The Conference generally considered that additional evaluation by external agents was uncalled for and that the benefits of it would not be commensurate with the costs.

314. The Conference expressed some concern about relatively slow progress in the planning and execution of technical cooperation projects by local. staff.

315. Several countries had experienced difficulties in mobilising the services of local staff on a sustained basis for FAO-supported projects. The supply of persons of the required calibre had considerably increased in many of these countries during the past two decades, but working conditions in the field and national salary structures tended to divert many of them into the private sector or to other countries where jobs were more attractive. Those who continued to work for their own governments frequently wished to work in capital cities in administrative and coordinating positions. Many holding these positions - frequently civil servants of high calibre and technical competence - were required to undertake so many other time-consuming tasks that their contribution to project work was lessened. Further, there were frequent moves from one department to another, which affected continuity of government involvement at policy and coordination levels.

316. The Conference agreed that these difficulties were in the very nature of the level of development of many of the countries. The Conference reiterated its support for the policy of positive discrimination in favour of the use of national institutions from developing countries. But there were also problems concerning the quality of leadership and management as well as the staffing pattern of national institutions designated to execute technical assistance projects on behalf of the host government. Lack of funds and complex budgetary procedures for the release of allocated funds further weakened the efficiency of these institutions. This applied both to capital and to recurring expenditures, affecting the quality of capital assets such as buildings and equipment as well as the staff, supplies, transport and other facilities at the disposal of these institutions. The terms of reference of national institutions and their linkages within the national hierarchy were other criteria in testing their capacities and these were closely linked with the end-use or market for their outputs. Judged against all these criteria, there were still many national institutions not adequately equipped to play an effective role in the planning and execution of development projects or programmes.

317. The Conference therefore welcomed the progress already achieved towards the use of national institutions for carrying out FAO-financed activities and the Director-General's commitment to continue his vigorous pursuit of the policy guidelines for the increasing use of such institutions.

318. The Conference agreed that the Technical Cooperation Programme (TCP) had filled a vital gap in FAO's capacity to respond expeditiously to requests for immediate assistance. The Programme had become a valuable component of the Organization's diversified field activities.

319. The Conference also noted with satisfaction the progress being achieved towards decentralization through appointment of FAO Representatives in developing countries. The representatives appointed so far had already demonstrated their usefulness in establishing effective links between the government and national institutions of the country concerned on the one hand and FAO on the other. They were becoming increasingly instrumental in identifying the most critical needs for development assistance in agriculture, in carrying out a critical appraisal of the existing institutions and other national capacities that could be used in FAO-financed activities, and in exploring opportunities for technical cooperation among developing countries.

320. The Conference noted that the analysis presented in chapter 4 on the impact of FAO's field activities on food production and nutrition was the best approach that could be attempted in the present circumstances. Technical assistance did not consummate development: it facilitated development actions towards increasing food production and increasing farm incomes by strengthening developing countries' technical and managerial capabilities to conceive and carry out such actions.

321. While noting that as much as 60 to 70 percent of external inputs channelled to the developing countries through FAO appeared to have been aimed at increasing food production in this limited sense, the Conference recommended that the Director-General should examine the possibility of including some detailed case studies in future reviews.

322. The Conference was particularly struck by the apparent difficulties in introducing nutritional considerations into field projects, as evidenced by the results of the desk reviews and field evaluations reported in chapter 4.

323. The Conference also considered that the Director-General should carry out a review of the relevant activities of the organization on the basis of the mandate given to him by the World Conference on Agrarian Reform and Rural Development (WCARRD). The results of such a review could help in devising projects specifically aimed at improving the income level and nutritional status of the underprivileged sections of the population.

324. The Conference felt that the analysis of constraints on investment for increasing food production was thought-provoking and deserved serious consideration by all parties concerned, developing countries, bilateral aid agencies and international financing and other development institutions.

325. The Conference concurred with the emphasis placed by the Programme Committee on the need for greater flexibility in relation to inclusion of local and recurrent costs in loan agreements where appropriate, and for simplification of lending procedures to reduce the time required for preparation as well as approval and implementation of projects. The Conference also concurred with the view that progress in these directions would be facilitated if external investment for food production and rural development could be considered in terms of sector or institution lending as against the current project approach.

326. Some members, whilst supporting the general thrust of the proposed resolution, considered that the text should in certain paragraphs be amended to better reflect their concerns regarding the declining share of FAO in UNDP-assisted agricultural projects and programmes, the responsibilities of the Governing Council of the UNDP as distinct from those of the FAO Member Governments, and the various views expressed by governments in approving the resolutions referred to in the preamble.

327. In conclusion, the Conference welcomed the contents of the document, commended the Director-General for the policies which he had been vigorously following since they had been approved in July 1976 and adopted the following resolution:

Resolution 6/79

DEVELOPMENT ASSISTANCE FOR FOOD PRODUCTION AND RURAL DEVELOPMENT

THE CONFERENCE,

Recalling the universal recognition given to agriculture and the rural sector in general as the spearhead of economic and social development in the developing countries,

Recalling that while the primary responsibility for agricultural development rests with the developing countries themselves, international assistance and cooperation play an essential catalytic and supporting role in mobilizing human and material resources for accelerating investments in this key sector of the national economy,

Recalling also the relevant parts of the resolutions as adopted by the United Nations General Assembly the World Food Conference, the World Conference on Agrarian Reform and Rural Development and other international fora concerning the need to step up development assistance in general and for accelerating food production and rural development in particular, and thus contributing to the establishment of a New International Economic Order

Convinced that technical cooperation for the strengthening of national institutions, training of technical and managerial staff, resource surveys and for the generation of socio-economic data needed for planning and monitoring has assumed increasing importance in the developing countries in overcoming constraints on self-reliance and for effective absorption of durable investments in agriculture from external as well as internal sources,

Considering that FAO's accumulated technical and country experience gathered over the past thirty years is invaluable for a judicious preparation and execution of externally assisted technical assistance projects in agriculture, forestry, fisheries and for support of national food production and rural development programmes in particular,

Considering also the agreed conclusions of the Committee of the Whole established under United Nation's General Assembly Resolution 32/174, urging the international organizations and donor countries to increase their contributions to the Special Action Programmes of FAO to achieve at least the agreed levels and to ensure their successful and continued operation and financing,

Noting with satisfaction the recognition given to FAO's technical and operational knowledge and experience by several bilateral aid agencies,

Encouraged by the enthusiastic response of the recipient countries to the efficient and effective manner in which projects financed from FAO's Technical Cooperation Programme are being approved and implemented,

Noting with concern the falling share of FAO in UNDP-assisted agricultural projects and programmes,

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