FOR ASIA AND THE PACIFIC Second edition RAP PUBLICATION 2004/06 Afghanistan Australia Bangladesh Bhutan Cambodia China Cook Islands Democratic Peoples Republic of Korea Fiji France India Indonesia Iran, Islamic Republic of Japan Kazakhstan Kiribati Kyrgyzstan Lao Peoples Democratic Republic Malaysia Maldives Marshall Islands Micronesia, Federated States of Mongolia FAO member nations in the Asia-Pacific region (46) Myanmar Nauru Nepal New Zealand Niue Pakistan Palau Papua New Guinea Philippines Republic of Korea Samoa Solomon Islands Sri Lanka Tajikistan Thailand Timor-Leste Tonga Turkmenistan Tuvalu United States of America Uzbekistan Vanuatu Viet Nam TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC i RAP PUBLICATION 2004/06 TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC FOOD AND AGRICULTURE ORGANIZATION OF THE UNITED NATIONS REGIONAL OFFICE FOR ASIA AND THE PACIFIC Bangkok, 2004 Second edition TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC ii The designation and presentation of material in this publication do not imply the expression of any opinion whatsoever on the part of the Food and Agriculture Organization of the United Nations concerning the legal status of any country, territory, city or area of its authorities, or concerning the delimitation of its frontiers and boundaries. All rights reserved. Reproduction and dissemination of material in this information product for educational or other non-commercial purposes are authorized without any prior written permission from the copyright holders provided the source is fully acknowledged. Reproduction of material in this information product for sale or other commercial purposes is prohibited without written permission of the copyright holders. Applications for such permission should be addressed to the FAO Regional Office for Asia and the Pacific, Maliwan Mansion, 39 Phra Atit Road, Bangkok 10200, Thailand or by e-mail to RAP-Publications@fao.org. FAO 2004 For copies write to: FAO Regional Office for Asia and the Pacific Maliwan Mansion, 39 Phra Atit Road Bangkok 10200 THAILAND Tel: (+66) 2 697 4000 Fax: (+66) 2 697 4445 E-mail: RAP-Publications@fao.org First edition: May 2004 Second edition: October 2004 TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC iii PREFACE The Strategic Framework for FAO 2000-2015 was adopted in 1999 to help member countries reach the World Food Summit (WFS) target of halving the worlds undernourished by 2015. Guided by the Global Strategic Framework (GSF), the Organizations rolling medium-term plans and successive biennial programmes of work transformed agenda into action. Four years into the GSF, it was felt that member countries of Asia-Pacific could be even better guided by a Regional Strategic Framework (RSF). Such an RSF would not be separate from the GSF, but would translate the GSF into regional actions, emphasizing the character, needs and trends of the region. It is therefore essentially an integral part of the GSF. With this in mind, the FAO Regional Office for Asia and the Pacific (RAP) embarked on a participatory process in April 2003 to forge an RSF for the Asia-Pacific region. In carrying out the work, interdisciplinarity and a broad-based participatory approach were stressed, as well as the need to broaden partnerships and alliances, and leverage resources. We sounded out national counterparts, informed our regional partners and held extensive, in-depth discussions within RAP in a stepwise fashion to: assess major issues and trends; recognize challenges; identify priority areas; analyze strengths, weaknesses, opportunities and threats; formulate an implementation strategy; and prepare for monitoring and evaluation. The product of this year-long effort is a document reiterating FAOs global vision and mission in sustainable agriculture and food security, and articulating the elements of strategy that FAO and its member countries in Asia and the Pacific might adopt to realize them. Six thematic programme areas were identified to guide the Asia-Pacific region in national and collective actions towards achieving the WFS target. These are: restructuring of the agricultural sector; decentralizing governance in support of sustainable development; reducing vulnerability to disasters; promoting effective and equitable management, conservation and sustainable use of natural resources; strengthening biosecurity; and alleviating poverty in rice-based livelihood systems. Within each thematic area, the general rationale, goal, objectives, strategic elements, outcomes and impact indicators were constituted on the basis of the most pressing common challenges facing the Asia-Pacific region and our collective capacities to meet them. It is important for the reader to understand at the outset what this document is and what it is not. The RSF is basically a set of priority areas for interdisciplinary action over and above RAPs comprehensive regular and field programme activities. It purports to give a guide for RAP to work with partners and regional member countries on some or all of the priority areas in pursuance of their own national agricultural development strategies. The RSF is not a prescribed strategy for Asia and the Pacific. Nor are its six thematic areas the only ones that RAP will be collaborating on with member countries and regional and international partners, now or in the foreseeable future. The readers policy-makers and senior executives in agriculture are expected to take whatever is deemed useful to their unique country situations and for their own purposes. RAP stands ready to work with partners, particularly with member countries individually and collectively, on these six priority areas for interdisciplinary action. We are confident of our capacity to mobilize the multidisciplinary expertise and attract the necessary resources within and outside the Organization to make a difference in sustainable agriculture and rural development for food security in the region through interventions on these priority areas. He Changchui Assistant Director-General and FAO Regional Representative for Asia and the Pacific TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC v TABLE OF CONTENTS Page PREFACE ............................................................................................................................................. iii 1. PURPOSE OF THE REGIONAL STRATEGIC FRAMEWORK..................................... 1 2. REGIONAL ISSUES AND LOCAL CONCERNS IN ASIA AND THE PACIFIC ......... 3 3. THEMATIC PROGRAMME AREAS ................................................................................... 8 3.1 Agriculture restructuring under changing market and trade conditions........................ 8 3.2 Decentralizing governance in support of sustainable development .............................. 11 3.3 Reducing vulnerability to disasters.................................................................................. 13 3.4 Promoting effective and equitable management, conservation and sustainable use of natural resources ............................................................................................................... 16 3.5 Strengthening biosecurity for food security and agricultural trade ............................... 19 3.6 Alleviating poverty in rice-based livelihood systems .................................................... 22 4. IMPLEMENTATION STRATEGY ........................................................................................ 26 4.1 Comparative advantage of FAOs regional office and emerging opportunities ........... 27 4.2 Challenges ......................................................................................................................... 28 4.3 Monitoring and evaluation ............................................................................................... 29 TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 1 1. PURPOSE OF THE REGIONAL STRATEGIC FRAMEWORK Global leaders gathered at the headquarters of the Food and Agriculture Organization of the United Nations (FAO) in Rome for the first World Food Summit (WFS) in 1996 and pledged their commitment to reduce the worlds hungry by half within two decades. At the follow-up WFS: five years later in 2002 they assessed progress, planned policy improvements and reaffirmed their commitment made at the WFS. The tasks urgency was reiterated at the UN Millennium Summit in 2000. Among the eight Millennium Development Goals, eradicating extreme poverty and hunger was given top priority. Earlier, at the 30 th Session of FAOs Conference in November 1999, member countries approved the Organizations first ever Strategic Framework. This document guides FAOs activities aimed at, among other objectives, helping member countries reach the WFS target of halving the number of undernourished by 2015. The Organizations rolling medium-term plans and successive biennial programmes of work and budget are directed at accomplishing this priority task. FAOs Corporate Strategic Framework 2000-2015 supports the Organizations fundamental role, namely to promote the common welfare by furthering separate and collective actions for the purpose of: G raising levels of nutrition and standards of living of the people; G securing improvements in the efficiency of the production and distribution of all food and agricultural products; G bettering the condition of rural populations; and G contributing towards an expanding world economy and ensuring humanitys freedom from hunger. In addressing these challenges, 5 corporate strategies and 12 strategic objectives were defined (Box 1). These strategies address cross-organizational issues in carrying out FAO programmes designed to ensure excellence, enhance cooperation among different disciplines, broaden partnerships and alliances, improve management processes, leverage resources and communicate FAOs messages. The thrust of FAOs Strategic Framework is basically global and needs to be adapted to the specific characteristics and diverse needs of the vast complex region that makes up Asia and the Pacific. For this purpose, the FAO Regional Office for Asia and the Pacific (RAP) has drawn up a Regional Strategic Framework (RSF): An Asia-Pacific guide specifically addressing the regions persistent problems of poverty and hunger, despite its rapid political, social and economic progress. Under the RSF, RAP offers technical assistance to its member nations, provides advice on policy development, helps in building capacities and institutions, and facilitates transfer of knowledge and technologies. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 2 Box 1: FAOs strategies to address members needs Strategy A: Contributing to the eradication of food insecurity and rural poverty A.1 Sustaining rural livelihood and more equitable access to resources A.2 Access of vulnerable and disadvantaged groups to sufficient, safe and nutritionally adequate food A.3 Preparedness for, and effective and sustainable response to, food and agricultural emergencies Strategy B: Promoting, developing and reinforcing policy and regulatory frameworks for food, agriculture, fisheries and forestry B.1 International instruments concerning food, agriculture, fisheries and forestry, and the production, safe use and fair exchange of agricultural, fishery and forestry goods B.2 National policies, legal instruments and supporting mechanisms that respond to domestic requirements and are consistent with the international policy and regulatory frameworks Strategy C: Creating sustainable increases in the supply and availability of food and other products from the crop, livestock, fisheries and forestry sectors C.1 Policy options and institutional measures to improve efficiency and adaptability in production, processing and marketing systems, and meet the changing needs of producers and consumers C.2 Adoption of appropriate technology to sustainably intensify production systems and to ensure sufficient supplies of food and agricultural, fisheries and forestry goods and services Strategy D: Supporting the conservation, improvement and sustainable use of natural resources for food and agriculture D.1 Integrated management of land, water, fisheries, forest and genetic resources D.2 Conservation, rehabilitation and development of environments at greater risk Strategy E: Improving decision-making through the provision of information and assessments and fostering of knowledge management for food and agriculture E.1 An integrated information resource base, with current, relevant and reliable statistics, information and knowledge made accessible to all FAO clients E.2 Regular assessments, analyses and outlook studies for food and agriculture E.3 A central place for food security on the international agenda TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 3 2. REGIONAL ISSUES AND LOCAL CONCERNS IN ASIA AND THE PACIFIC Asia and the Pacific today account for 58 percent of the global population. About 70 percent of the worlds rural population live in this region. Yet per capita arable and permanent cropland availability in the region is only 0.16 ha, compared to 0.37 ha in the rest of the world. An estimated 545 million people in the region are undernourished, comprising 65 percent of the worlds ill-fed. Women and children, ethnic minorities and persons with disabilities constitute a disproportionately high percentage of the vulnerable. 1 Despite limited natural resource endowments and its massive, mainly youthful, population base, Asia and the Pacific made substantial inroads in eradicating poverty and food insecurity during the last three decades. Since 1945, the regions economy grew faster than any other region. Literacy rates have considerably increased, and improved nutrition and public health programmes have raised life expectancies by over a generation in only half a century. These past achievements form the context for new advances, many in critical development areas: extensive education and agricultural research networks; developments in information and communications technologies; modern biotechnology; social innovations in development including resource decentralization; foreign direct investment; growing regional and global economic linkages; and international trade. Broader citizen participation in decision-making and governance is reflected in dynamic non-governmental organizations (NGOs), increased womens suffrage and decision-making processes open to multistakeholder participation. Information flows more freely in the media and within civil societies. Historically, the region has been the centre of agricultural advances. Two of the four cradles of agriculture emerged in the region. Domestication of farm animal and plant species dates back many millennia. Aquaculture was first developed in Asia. And, more recently, the Green Revolution in rice began here. Today, over 50 percent of the worlds industrial crops are produced in the Asia-Pacific region and production continues to expand. Enabling policy and economic environments have led to many success stories, including unique rural development models: from agro-industrial entrepreneurship, cooperatives, and rural financial systems to farmer field schools in integrated pest management. Against this rapid progress there have been setbacks due to man-made or natural disasters. The El Nino events brought widespread devastating droughts. The Asian economic crisis slowed growth in several countries and affected the livelihoods of millions of people. The severe acute respiratory syndrome (SARS) epidemic in 2003 and the avian influenza outbreaks in Asia in 2004 caused enormous economic losses and threatened human health. Many factors in the region affect its ability to achieve sustainable food security for all. Ensuring access to food for the hungry and poor will persist as a major challenge within the strategic time horizon towards 2015. Identification and analysis of the important trends in the agricultural sector ~ 1 The statistical data refer to the FAO member countries in the Asia-Pacific region (as listed on the inside front cover page) excluding France and the United States of America. The estimate on undernourished people excludes countries with no available data (Bhutan, Cook Islands, Fiji, Kiribati, Maldives, Marshall Islands, Micronesia, Nauru, Niue, Palau, Samoa, Solomon Islands, Timor-Leste, Tonga, Tuvalu and Vanuatu). The data are taken from the FAOSTAT database as of September 2004 (http://faostat.external.fao.org) and FAOs flagship publication The State of Food Insecurity in the World 2003 (http://www.fao.org/SOF/sofi/index_en.htm). TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 4 likely to have the greatest impact on achievement of sustainable agriculture and rural development are outlined below. The link between population growth and poverty remains strong, especially among the most deprived. About two-thirds of the worlds 1.2 billion absolute poor live in this region. Continuing improvements in public health programmes and education will result in further population increases, now estimated to reach nearly four billion by 2015. In addition, rising living standards and consumer expectations will impose ever-higher demands on the regions already strained natural resource base. Out-migration of young males and the skilled has led to the greying and feminization of farms and fishing villages rural communities peopled mainly by the elderly and women. Other demographic trends also play a key role in vital developmental and environmental issues, including: formal education, HIV/AIDS and rural health, urbanization and unemployment. Subsistence-oriented agriculture is in transition as industrialization and commercialization increase. The needed growth in agricultural production must come from intensification and wider use of modern technology. Capacity building and investment in natural resource conservation and technology transfer are, as a consequence, rising in priority. As a result, intervention strategies and requests for external assistance are likely to increase, especially in: biotechnology, efficient water use, integrated pest management, nutrient and weed management, food safety, on-farm diversification, agribusiness and marketing. Asian agriculture remains highly labour intensive, but the growth of industries and commerce is drawing the talented and trained to urban centres, leaving the unskilled in rural areas. The employment and integration of (surplus) rural workers into modernizing economies requires sustained skill development built around comprehensive human resource development programmes. The incidence and impact of disasters are increasing. Historically, the region suffers from a proportionally larger share of the worlds catastrophic natural and man-made disasters. These range from wild fires, cyclones, landslides, floods and drought to transboundary animal and plant pests and diseases, war, civil unrest and economic crises. Both floods and droughts cause the bulk of losses in agriculture, exceeding over US$90 billion yearly worldwide. Disasters inflict a toll on people, property and economies, especially on agriculture, the rural poor and small farmers; the impact of avian influenza outbreaks is a typical example. Economic losses are increasing as infrastructure expands and populations grow in disaster-prone and high-risk areas, often avoided in the past. There is increasing recognition of the need for concerted regional action on disaster management and mitigation in the food and agriculture sector. Such regional cooperation should be aimed at strengthening national capacity in managing the full disaster cycle of prevention, preparedness, early warning, needs assessment, relief, rehabilitation, reconstruction and sustainable recovery. Building resilient rural communities and introducing improved agricultural practices will be crucial for cushioning the impact of disasters. A livestock revolution is reshaping the industry. Asia and the Pacific account for the largest animal population worldwide. The region also possesses the biggest pool of farm animal genetic resources. Owing to consumer-driven demand, meat and milk production grew at 5 percent while egg output expanded at 7 percent per annum in the 1990s. This contrasts with 1.4 percent and 0.9 percent respectively for the rest of the world. If this advance is sustained, the regions livestock sector has the potential to spearhead sustainable agriculture and rural development in the decade to 2015. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 5 Unsustainable production practices in the livestock sector, though, have resulted in serious environmental degradation stemming primarily from inadequate livestock policies and the faulty application of new technologies, particularly in intensification, feeding and disease control. Moreover, expanding international trade of livestock and livestock products and growing international travel have sharply increased the risk of disastrous pest outbreaks and transboundary diseases, including zoonotic diseases. Effective prevention and progressive control of transboundary animal diseases at regional and international levels are urgently needed. Policy measures to gradually reduce animal production and processing in areas with high animal concentrations and waste loads need to be adopted. Approaches that encourage mixed farming and integrated crop-livestock production systems in rural areas should be encouraged. The high pressure on forest resources remains a concern. In the regions tropical countries, loss of natural forests continued at a rate of around 2.5 million hectares annually between 1991 and 2000. Today, about 28 percent of the regions land area retains forest cover, equivalent to only a quarter of a hectare of wooded land per person the lowest rate for any region. One of the most significant trends has been the shift from exploitation of natural forests towards development and use of forest plantations. Asia and the Pacific lead the world in tropical forest plantation development. During the 1990s, the forest plantation area increased by 3.5 million hectares annually, which is equivalent to 79 percent of the global growth rate. Throughout the region, foresters are facing calls for sustainable forest management while, at the same time, government budgets for forest administrations are falling and forest product prices are in decline. In view of this, financing the implementation of sustainable forest management has become a major challenge and is receiving increased attention by policy-makers and forest managers at the local, national and international levels. In recent years, an increasing number of governments throughout the region have also embarked on decentralization and devolution to empower local communities, local governments and civil society organizations in managing their own affairs in forestry. This trend is driven, in part, by a desire to enhance the roles of civil society as a partner of government in supporting rural development and natural resource management. The shift has also been fuelled by an increasing number of conflicts between the state and local people, widespread illegal activities and the recognition that many forest departments have neither the capacities nor the finances to deal with the multifaceted requirements of modern forest management and the contributions forestry can make to poverty reduction. Aquatic resources are under intense pressure. Asia and the Pacific account for 55 percent of the worlds fish catch, but a worldwide decline in fisheries production has had apparent negative trends in Asia and the Pacific. Almost two-thirds of the major fish species are either fully exploited or overexploited. To maintain production volume, fishers now capture more trash fish. This slump impacts the poorest who are often highly dependent on fish as a major source of animal protein. Aside from destructive fishing, like use of dynamite and poison, El Nino and other weather aberrations affect the industry. High technology gear is efficient but can, if not effectively regulated, damage fishing grounds severely. Conversely, the region produces 90 percent of the worlds aquacultural output, representing the greatest diversity of species and systems. The growing global trade in fisheries products makes this a growth area, but problems are emerging owing to environmental impacts and increasing trade barriers. Management and governance of fisheries resources are often weak or non-existent. The importance of aquatic resources and other water ecosystem products has not yet been fully realized and given the priority it merits in policy and programmes. ~ TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 6 Water scarcity and land degradation are worsening. Over 28 percent of the regions landscape is severely degraded and, though the region appears well endowed with water resources, its internal renewable water resources are only about half the worlds average. Over-exploitation of water and land degradation is aggravated by the lack of clearly defined property rights and vague institutional arrangements. A growing number of industries and residential users compete for limited water supplies. Shortages have triggered conflicts, affecting agriculture. Increasing cropping intensity in agriculture, livestock and aquaculture intensification, and industrialization have also led to land degradation, pollution and the compounded risk of pests and diseases. This stress is reflected in other problems: from widespread topsoil erosion and desertification, waterlogging, salinization of aquifers, agricultural pollution of aquifers and water bodies to eutrophication from high levels of nitrogen use and even loss of biodiversity. These developments threaten agricultures sustainability. Of particular concern are their long-term impacts on the regions ability to feed itself. Introduction of improved agricultural practices and environmental accounting are of special relevance. So is community as well as private sector participation in resource management. In this regard, there is growing evidence of the benefits brought about by the devolution of authority and funds to support rural development. Such participatory approaches will accelerate appropriate on-farm technology adoption. Information and communications technologies are under-utilized. Agricultures ability to respond to the demand for sustainable production will increasingly rely on its growth as a science and information-based sector. By 2015, Asia and the Pacific will, for example, witness the emergence of biotechnology as a contributing factor to sustainable production in developing countries. Tapping such potentials will depend on strengthening currently limited capacities in information and communications technologies (ICTs). Failure to act decisively may further widen the digital divide between rural and urban populations, as well as the so-called molecular gap between the South and North. Most public sector agencies still neglect adapting ICTs to disseminate the results of research and development more rapidly and widely. Globalization is reshaping the regions trade and investment landscape. As market integration across countries advances, food safety and nutrition standards will require increased attention. Governments are called upon to facilitate an enabling environment for the whole agricultural production and marketing chain to encourage much needed investments in rural areas. Amidst rapid change, national governments need to revise development strategies and policies and restructure agriculture towards market-driven production. In addition, many countries in the region suffer from weak institutions at the local level. This constraint is most apparent in farmers organizations, rural credit and finance, and marketing systems. It also strains the traditional safety-nets of food-insecure households. International organizations are pressed in various fora to increase efforts to help create a level playing field in the international trade of agricultural products for developing countries. Developing countries have stressed the urgent need for building institutions and human capacity directed at gains in productivity, sustainability and market access. The need for concerted action at subregional and regional levels to develop the institutional infrastructure for sustainable agriculture and rural development has become more pronounced. This trend will impose significant changes in the roles of government, NGOs, civil society organizations and farmers organizations, as well as in the mechanisms used by international organizations as service providers. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 7 There is growing inequity among countries in the region as well as at national and local levels. Average farm size is declining in many countries. Size distribution is increasingly skewed towards small farms. Increasing occupation of marginal lands also exacerbates inequalities in land and water distribution. Productivity gains and commercialization of agriculture have contributed to rural incomes, but inappropriate policies often favour large producers. Others reward projects with negative social and environmental impacts. Vulnerable groups remain at great risk. Failure to consider equity in development and governance including issues raised by decentralization, globalization and trade liberalization will further marginalize vulnerable groups, especially women, small producers and landless farmers. Some countries can no longer put off the formidable task of comprehensive agrarian reform. Food security for children and women, in particular adolescent girls who are future mothers, should constitute the key factor in drawing up future policies. There is no shortage of models for pro-poor and pro-environment policies and special programmes for food security. Effective rural education systems as well as health and social welfare schemes can increase the incomes of the poor. They also create an enabling environment for marginalized groups to work their way to more humane standards of living and ensure sustained production and social harmony so essential for progress. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 8 3. THEMATIC PROGRAMME AREAS To lead the region in addressing the issues and responding to the challenges facing the Asia-Pacific, i.e. to substantially reduce the number of food-insecure people and to assist member countries in their efforts to develop the agricultural sector while protecting the regions natural resource base, the work of the FAO regional office will be driven by six thematic programme areas. These programme areas will guide FAOs work in the region until 2015 and help in realizing its vision and mission. Vision A food-secure Asia-Pacific region Mission To help member countries halve the regions undernourished by 2015 by raising agricultural productivity and alleviating poverty while protecting the regions natural resource base Thematic programme areas 1 Agriculture restructuring under changing market and trade conditions 2 Decentralizing governance in support of sustainable development 3 Reducing vulnerability to disasters 4 Promoting effective and equitable management, conservation and sustainable use of natural resources 5 Strengthening biosecurity for food security and agricultural trade 6 Alleviating poverty in rice-based livelihood systems 3.1 Agriculture restructuring under changing market and trade conditions 1 3.1.1 Rationale Global trends and changing market and trade conditions call for appropriate responses in the structure and organization of the agriculture and rural sector to meet the challenges posed by persistent food insecurity. Impressive social gains have been accompanied by economic and agricultural growth in Asia and the Pacific over the past three decades. Population growth has declined in many developing countries thereby facilitating economic adjustments, but future progress will depend largely on how policies, agricultural technologies and institutions respond to changing market and trade conditions as well as to social and political factors. Yet progress will only come about if a level playing field for fair trade and equitable distribution of costs and benefits are adopted. Despite the regions economic growth, persistent pockets of food insecurity and chronic poverty remain. Globalization and external instability pose formidable challenges, particularly for vulnerable groups lacking safety nets. Migration outflows have left behind the elderly and women, leading to the greying 1 Agriculture includes crops, livestock, fisheries and forestry. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 9 of rural communities and feminization of agriculture. Continuing deprivation of women, marginal farmers, and ethnic and social minorities erode the capacity of rural human resources. As agriculture adjusts to improve its competitiveness, the rural sector faces economic risks and shocks in the transition to sustainable and broad-based growth. 3.1.2 Goal A supportive and responsive policy and institutional environment that enables the agriculture and rural sector to empower the poor under changing market and trade conditions. 3.1.3 Objectives The overall objective is to assist in the formulation, implementation and monitoring of policies that are pro-poor and gender equitable. Within this context, the specific objectives are to: G Strengthen institutions to be responsive to rural development needs. G Develop appropriate (technical/process) messages for changing rural systems. G Promote investment opportunities for poverty alleviation. G Build the capacity of stakeholders. 3.1.4 Strategic elements Capacity building Rural institutions and organizations including cooperatives, NGOs, and other farmer-based bodies will be targeted with a view to empowering the poor. Capacity building will focus on institutional strengthening by building partnerships between the private sector, government organizations and non-government organizations to provide the link between policy and action. It will provide access to information on research results to the primary beneficiaries and encourage their feedback and participation in policy formulation. FAO will focus its efforts on improving the skills of institution staff as well as of primary beneficiaries through, for example, training trainers and developing methods of teaching and learning based on experience. Advisory support to facilitate trade and build trade-negotiating capacity will be emphasized. Investment opportunities FAO will facilitate mobilization of private sector resources for rural and agricultural development, including credit, infrastructure and skilled human resources. It will also encourage donors to focus investments on development of pro-poor policies in trade and agricultural transformation. Message identification and adoption Messages include the processes involved in the identification of appropriate technologies and policies associated with trade and agricultural transformation. These messages will focus on facilitating: G Removal of biases in public spending for small farmers. G Improved access to land and other natural resources for small farmers. G Integration of gender considerations in policy and programme designs. G Harmonizing trade standards for the benefit of the rural poor. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 10 Unless appropriate technologies are formulated and implemented, opportunities resulting from changes in the market and in trade may, again, bypass small and marginal rural communities. In particular, these changes include: technological improvements in animal feeds and feed grain production, effective animal health measures, prevention of transboundary pests and diseases and prevention and mitigation of environmental degradation. Field verification and learning through action-oriented research FAO should facilitate testing of policies and their impact on the primary beneficiaries in order to incrementally adapt and modify them to meet real needs. This will be done through pilot programmes, projects, and an action-oriented research approach. 3.1.5 Outcomes G Self-reliance and reduced marginalization of the rural poor. G Improved agricultural performance in meeting market demand in terms of quality and quantity. G Improved trade in terms of market efficiency, export-import volumes, foreign exchange earnings, employment and income generation, and access to food by the poor. G Redirection of agricultural subsidies towards investments for agricultural sector growth, poverty alleviation and food security. 3.1.6 Impact indicators Policy G Sustained and broad-based agricultural growth. G Equitable growth. G Market orientation. G Fair trade regulations in favour of the poor. Institutions G Linkages and effective information flow between the different groups (e.g. private sector, government organizations and NGOs). G Access to formal credit. G Participation by primary beneficiaries. G Responsive institutions meeting stakeholders needs. G Fair trade regulations redressing the existing bias against the poor. G Training for government officials from countries with large pockets of poor, rural communities. Messages G Sound and appropriate economic, social, environmental and technical processes. G Promotion of growth and trade with social equality. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 11 Investment opportunities G Improved infrastructure. G Access to formal credit. Capacity building G Level of awareness of child labour and trafficking of women and children. G Increased competitiveness. G Responsive institutions meeting stakeholders needs (social services). G Adoption of appropriate technology. 3.2 Decentralizing governance in support of sustainable development 3.2.1 Rationale An increasing number of governments throughout the region are seeking new ways of service delivery in rural development. They are also devising innovative approaches to ensure participatory management of natural resources. Many have embarked on some form of decentralization programme to empower local communities as well as administrative units to manage their own affairs. This trend is driven partially by a growing appreciation of the contribution that civil society and the private sector can, as partners of government, bring to bear on increasingly complex development challenges. It also emanates from efforts to trim central bureaucracies, plus a history of failure by governments in delivering services and managing resources at the local level. The most severe impacts from these failures have affected those least able to cope: already vulnerable and disadvantaged groups. Decentralizing governance, from the centre to regions, districts, local governments and administrative units, as well as to local communities, cooperatives and the private sector, shows promise in achieving critical sustainable development objectives. It fosters planning and implementation of programmes and activities at the local level, and improves access to vital services and employment. Ultimately, decentralization facilitates the transfer of power closer to those who are most affected by the exercise of that power. Decentralized governance aims at contributing to sustainable rural livelihoods and more equitable access to resources. Appropriately implemented, decentralization meets the needs of the poor through local-level participation. It also makes government and administration more flexible, accountable and responsive. Regrettably, some programmes have encountered major challenges, disappointments and setbacks. Between policy and implementation, gaps remain. Many local actors and government agencies at all levels lack adequate human and financial resources to effectively take on new roles and responsibilities. It is evident that, in some countries, the initial impact of decentralization on reducing hunger and alleviating poverty for resource-poor people has been far from satisfactory. In some cases it has even led to further natural resource degradation. Instances of breakdown in coordination, planning and implementation of national development programmes have been noted. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 12 Experience suggests that the complementary roles of national and subnational actors need to be clearly defined. Thus, relevant legislation to precisely specify the different roles of actors at various levels needs to be enacted. In addition, laws and policies must increase transparency and accountability at all levels. Reinforced training to enhance technical knowledge, management skills and participatory decision-making would buttress this needed legislative framework. So would systematized dissemination of up-to-date information to stakeholders at all levels. This integrated approach will result in an enabling environment to achieve sustainable development objectives, at both local and national levels. 3.2.2 Goal Decentralized governance that effectively empowers subnational and local governments, administrative units, and communities to realize sustainable development goals. 3.2.3 Objectives The general objective is to improve access by deprived, rural people to adequate inputs, services and natural resources and to strengthen their management capacity. The specific objectives are to: G Strengthen policies, legislation and institutional environments supportive of decentralized governance and participatory decision-making processes. G Build the capacities of stakeholders at all levels so institutional reforms can be effective. G Facilitate the organization of rural people, including farmers, fisherfolk, forest-dependent people, traders and labourers. G Improve the accessibility of up-to-date information and adequate resources that meet the needs of all stakeholders. G Enhance cooperation and partnerships among governments, civil society and private groups to facilitate determination of the complementary roles of national and subnational actors in development interventions. 3.2.4 Strategic elements Decentralized governance that effectively supports sustainable development requires assistance from various disciplines to address multidimensional, cross-cutting problems inherent in institutional, administrative and political reforms. Specifically, the following elements are needed: G Adequate resources to provide technical and policy advice. G Training programmes, methodologies, materials and equipment, technical advice and human resource development. G A framework for collecting and providing information to all levels of decision-making. G Assistance in budget development and management at the local level. G Institutional infrastructure for empowerment of the rural poor including cooperatives, farmers organizations, rural marketing and trade associations, credit societies and other groups. G Support networks at regional and national levels providing neutral fora for stakeholders. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 13 3.2.5 Outcomes Expected outcomes will be diverse and include the following: G Enactment of policies and legislative frameworks to support effective decentralized governance. G Enhanced technical, managerial and organizational capacities of local communities and administrative units. G Development and dissemination of appropriate information that satisfies the needs of the diverse stakeholders. G Adequate resources available at national and decentralized levels. G Clearly defined roles of national and subnational actors in development interventions. G Improved environmental conditions. G Effective networks for communication and the exchange of experiences among stakeholders. 3.2.6 Impact indicators The following qualitative indicators will provide insights into the effectiveness of FAOs assistance within the region in regard to decentralized governance: G Effective participation by subnational actors, especially vulnerable and disadvantaged groups, in social and economic decision-making. G Appropriate incentives encouraging participatory planning and management, equitable sharing of resources, improved natural resource management, transparency and accountability, and collaboration between actors at different levels. G Improved institutions and programmes for education and training. G Adequately funded social and productive services. G Roles of actors at different levels specified. G Local organizations established by the rural poor to look after their own interests, such as cooperatives, farmers organizations etc. 3.3 Reducing vulnerability to disasters 3.3.1 Rationale The majority of the worlds major natural and man-made disasters occur in Asia and the Pacific. The most destructive to the food and agriculture sector are the following categories of calamities: G Hydro-meteorological events: floods, droughts, windstorms, cyclones and typhoons. G Geological events ranging from earthquakes and volcano eruptions to mud and land slides. G Forest and plantation fires. G Pests and diseases in animals, plants and humans. Disasters cause much suffering, depredate resources and arrest poverty alleviation. Drought, the most damaging disaster, causes crop failures, undernourishment, land degradation and a decline in water resources. Further consequences are depletion of forage, overgrazing, indiscriminate cutting of vegetation and large-scale mortality of livestock. The consequent unemployment, desperate sale of productive TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 14 assets and out-migration strain the agricultural sectors capacity for sustainable agriculture and rural development. Consecutive multiyear droughts have occurred in Central and East Asia over the past decade. Riverine, flash and coastal floods are a major cause of upheavals in the region. There are about 31 million hectares of flood-prone areas in South and Southeast Asia. Of these, 13 million are cultivated and benefit from moderate flooding. Floods recur during the monsoon and rainy seasons, often with disastrous results: loss of human lives, homes, harvests, livestock and vital cropland. Frequent and devastating floods often swamp densely populated floodplains. Inundation of large river basins, in the Ganges, Mekong and Yangtze, is usually seasonal and can last for weeks. Storms, from typhoons to cyclones, often combine with floods to inflict suffering and chaos. They damage crops, livestock, property, forests and physical infrastructure. They also disrupt the livelihoods of fisherfolk. Storms as such cannot be prevented. But appropriate interventions can mitigate their impact and help hasten recovery. Fire is employed as a management tool in forestry and plantation agriculture. Not all fires flare up into disasters. But uncontrolled, they can wreak significant damage to forests, agriculture production, infrastructure, farm assets and public health. The transboundary health hazards of smoke from forest and agriculture-generated fires have been much in evidence in Southeast Asia in recent years. Earthquakes, volcano eruptions, and landslides and mudslides may occur less frequently. But their impact on local populations in terms of death and injury, livelihood disruption, unemployment, asset loss and out-migration is extremely severe. Unfortunately, Asia and the Pacific have recently been experiencing most of the worlds major geological disasters. There is a need to improve preparedness, early warning and recovery strategies, and action plans. Animal and plant diseases are of growing concern as disease related disasters occur with increasing frequency. Industrial livestock production and high animal densities in peri-urban areas are emerging as flash points and the source of new diseases. Outbreaks of disease cause direct economic losses to farmers and affect production, consumption and international trade. Heightened vigilance is necessary if large-scale outbreaks are to be prevented and measures adopted to address dangers posed by newly emerging diseases. Cases in point are the economic slowdown caused by the recent outbreak of severe acute respiratory syndrome and the threat posed by avian influenza, as well as the steady spread of HIV/AIDS in rural Asia. Other threats are on the horizon such as bovine spongiform encephalopathy, rabies, brucellosis and the nipah virus. Also worth noting is the parasitological spread of cystercercosis, schistosomiasis and taenia. Many factors come into play in these catastrophes. The more important of these interrelated determinants are poverty; settlement of fragile ecosystems; exploitative agricultural systems and practices; and land degradation and water scarcity, leading to even more food insecurity. This vicious cycle is exacerbated by widespread adoption of industrial farming methods, especially in livestock and fisheries enterprises, sometimes leading to pest and disease epidemics. Global warming and climate change will shift their destructive potential to a higher scale. These calamities inflict severe social and economic losses as well as human suffering on the victims. Particularly worrisome, they disrupt livelihoods, erode farm assets and destroy the environment, thereby making sustainable development difficult. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 15 3.3.2 Goal Reduced vulnerability to disasters, increased resilience of rural livelihoods and improved recovery capacity to enable sustainable agriculture and rural development. 3.3.3 Objectives The overall objective is improvement of livelihoods in disaster-prone areas. The specific objectives are: G Reduced risk of disasters in the agriculture sector and increased coping and recovery capacity. G Improved food security and balanced nutrition. G Sustainable agriculture applying environment-friendly farming system best practices and protecting natural resource endowments. G Prevention and control of human, animal and plant pests and diseases. 3.3.4 Strategic elements RAP will promote the following strategic elements: G Awareness building to mobilize commitment and resources from the government and the public for disaster management and mitigation. G Development of a policy regime and action plan. G Establishing appropriate laws, rules and regulations for disaster management. G Promoting cooperation among institutions currently involved in disaster management and setting up necessary new institutions and cooperative networks. G Encouraging agro-ecological zoning. G Introducing Food Insecurity and Vulnerability Information Mapping Systems (FIVIMS). G Strengthening land-use planning, monitoring and enforcement. G Training of trainers in prevention, preparedness, early warning, needs assessment and rehabilitation and sustainable development. G R&D in resilient farming systems and best practices, especially in crop diversification, integrated farming, contingency cropping, hazard-resistant methods and environment conservation. G Strengthening the rural employment generation programme with shelf projects ready for implementation when disasters strike. A long-term perspective in country programming, as well as recognition of the benefits of international cooperation, is crucial to reducing vulnerability to disasters. 3.3.5 Outcomes G Resilient livelihoods in the face of disasters and other risks. G Disaster management plans incorporated into national development plans for food and agriculture. G Farmers in the rural sector practising environment-friendly agriculture and protecting local natural resources. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 16 G Early warning and response systems/networks established. G Supply of safe crop, livestock, and fisheries products. 3.3.6 Impact indicators G Number of disasters. G Intensity of disasters. G Coordination amongst international stakeholders. G Time frame from the advent of the disaster through impact assessment, relief, rehabilitation and reconstruction to sustainable recovery. G Growth of international agricultural trade, especially of livestock products. G Rate of increase in emergency food aid. G Incidence of malnutrition and undernutrition in disaster areas. G Effectiveness of information and communications systems, and awareness of actions to be taken and rules to come into force in disaster management. 3.4 Promoting effective and equitable management, conservation and sustainable use of natural resources 3.4.1 Rationale Over the past 30 years, the natural resources of the Asia-Pacific region have been subjected to increasing degradation thereby threatening livelihoods, food security, peoples health and long-term sustainable development. Such environmental degradation has also increased the risks of natural disasters. Growing populations, urbanization, widespread poverty, ineffective governance, ambiguous property rights, weak institutions and inappropriate policies continue to exacerbate an alarming situation. Pressure on land, forest, water and aquatic resources in Asia and the Pacific is the most severe compared to other regions in the world. 850 million hectares, representing more than 28 percent of the regions land area, are affected by some form of land degradation. Deforestation, inappropriate agricultural practices, inefficient irrigation water use, excessive groundwater extraction and industrial development continue to contribute to land, soil and water degradation. Soil erosion and nutrient mining have reduced the agricultural potential of vast areas. The rapid increase in population and unprecedented economic growth have had the most severe impact on the regions freshwater resources, including water quality. Diminishing freshwater supplies, especially in populous and arid areas, have started to become a limiting factor in crop production and threaten the important contribution of aquatic resources to household food security and national economies. Wetlands and coastal ecosystems, particularly coral reefs, are threatened by the cumulative effects of agricultural runoff and silting, urban sewage, industrial pollution, destructive fishing techniques, tourism and the warming of water temperatures. The impact of climate change looms large over the low-lying areas and small islands, and threatens to increase the variability of climate and the incidence of floods and droughts. The transition from subsistence agriculture, livestock and fisheries towards greater intensification, commercialization and industrialization generates new patterns of natural resource use which may contribute to their degradation; it also often threatens the unique gene pool of plant and animal resources. The introduction of modern production systems has considerably contributed to the erosion of genetic TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 17 diversity and may limit the regions ability to respond to changing market and other conditions in the future. In particular, the numbers of farm animal breeds that are already extinct or endangered are a concern. Deforestation and forest degradation and their impact on the regions biodiversity remain a serious problem. Countries in the region generally recognize the need to shift from exploitative land management practices to more sustainable, equitable, economically viable and productive patterns of food production and natural resource management. Many governments have initiated far-reaching policy, legal, and institutional reforms for the management and use of natural resources and biodiversity. Some have adopted the participatory approach. These positive responses are supported by an improvement in available information, increased environmental awareness by NGOs and civil society, increasing incomes, the adoption of international environmental agreements and treaties, safety standards, codes of practice and criteria and indicators for sustainable management. However, inadequate law enforcement and weak capacities in participatory policy formulation and implementation hinder the effectiveness of present efforts. The challenge is to balance the elements of change, namely people, policy, technology and resources, for effective and equitable natural resource management. Particular difficulties reside in developing and implementing proper checks and balances, and managing potential conflicts between concerns for the public interest and legitimate aspirations for socio-economic development. Furthermore, the right combination of regulations, devolution of authority, coordinating initiatives between the various levels of decision-making and management, and financing conservation and sustainable use of natural resources require urgent attention. 3.4.2 Goal Conservation and sustainable use of natural resources in Asia and the Pacific for the benefit of all. 3.4.3 Objectives The objectives are to ensure that: G Member countries have effective national policies, legislation and institutions for the management, conservation and sustainable use of natural resources, and engage in regional cooperation to manage shared natural resources. G Sustainable management of natural resources is recognized as a priority and sufficient financial and other resources are allocated for this purpose. G Stakeholders have the capacity to effectively design, implement and monitor policies, programmes, reforms and tangible changes and benefits to end users. G Appropriate information and technologies are communicated to stakeholders, especially women, the poor and marginal groups. G International conventions and treaties are implemented and monitored. 3.4.4 Strategic elements G Strengthening education and the building the capacity of all stakeholders in sustainable management, use and conservation of natural resources. G Facilitating regional and transboundary agreements relating to natural resource management, conservation and use. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 18 G Promoting best practices of environmentally sound production, processing and marketing of food, industrial crops, wood and fibre, livestock and natural resource products. G Assisting in establishing enabling environments, including infrastructure and systems of property or access rights, for natural resources planning, conservation and management. G Advancing participatory planning, implementation, monitoring and evaluation at all stakeholder levels. G Adopting information and communications technologies for natural resource management. G Furthering equitable access to natural resources. G Developing and extending adaptive and mitigative strategies for climate change and mobilizing resources for action. G Advocating more sustainable and remunerative ways of using natural resources such as ecotourism and adding value to forest, fishery and agricultural products. G Extending efficient and environmentally sound management of watersheds, river basins and irrigation systems. 3.4.5 Outcomes G Improved policy instruments and institutions for enabling sustainable use, conservation and management of natural resources. G Enhanced allocation of resources for interventions required to attain sustainable management of natural resources and agricultural development. G Reinforced capacity of stakeholders to plan, implement, monitor and evaluate impacts of development and use of natural resources management and conservation. G Better utilization of relevant information and technologies, and application of best practices for sustained use of natural resources by users at all levels. G Entry into, and implementation of, relevant regional and international conventions, treaties etc. G Genetic resources for food and agriculture conserved and shared equitably. G Better integration of natural resource policies and interventions. G Improved rural livelihoods through more efficient use of natural resources, higher productivity, and more value addition. 3.4.6 Impact indicators People G Access to credit and inputs by stakeholders. G Participatory involvement in development and natural resource issues. G Incomes and livelihoods of rural people. G Best practice technologies used by stakeholders. G Level of self-reliance of rural communities. G Gender disaggregated data on access to natural resources. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 19 Policy G Revised policies and appropriate regulatory frameworks developed for the sustainable management of natural resources and improved agricultural practices. G Incentives for natural resource conservation. G Market-driven development of the forestry, fisheries and agriculture sectors. G Macro indicators on the status of natural resources, e.g. forest cover, water quality, genetic resources, soil fertility, fish stocks etc. Technology G Enhanced capacities of regional, national and local governments, NGOs, and local communities in the use, conservation and management of natural resources. G Access to improved technology packages for stakeholder use and guidance. G Technologies developed for sustainable use of natural resources. G Information systems for decision-makers. Resources G Government and donor resources applied to management and conservation. G Sources of finance for sustainable natural resource management. G Budget allocations for human resource development. G Investment rates in supportive infrastructure for natural resource management. G Research and development in natural resource conservation and use. 3.5 Strengthening biosecurity for food security and agricultural trade 3.5.1 Rationale Production systems in Asia and the Pacific are rapidly evolving in response to increasing demand for food and agricultural products as well as to globalization pressures. Modern biotechnological methods, and their capacity to enhance both the quality and volume of food and agricultural commodities and products, have moved to the forefront of policy discussions. The new technology affects natural resources, the environment, biodiversity and food quality, and also raises significant concerns related to biosecurity in the region. In fact, biosecurity is now one of the urgent issues that confronts both the region and the international community. Biosecurity is defined as: management of all biological and environmental risks associated with food and agriculture, including forestry and fisheries. It covers issues related to biosafety (reduction of risks associated with the use of products derived from modern biotechnology), food safety and plant as well as animal health. Risks include: introduction of genetically modified organisms (GMOs) and alien species, plant and animal pests, natural toxins, pesticide and antibiotic residues, biodiversity erosion, and the spread of transboundary animal and zoonotic diseases. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 20 Some risks associated with modern biotechnology products, such as transgenic crops, are widely debated. Recent reports estimate that GMOs are currently cultivated in 5 industrialized countries covering a total of 47.3 million hectares, and in 13 developing countries (in this region including China, India, Indonesia and the Philippines) covering an area of 20.4 million hectares. Argentina, Canada and the US account for 95 percent of this total. In Asia, China leads with 2.1 million hectares under transgenic crops. FAO has identified two basic categories of risk: risk to health (human and animal) and risk to the environment. An example of a health risk is the transfer of toxins and allergens from one life form to another, subsequently creating and spreading new toxins. Hazards to the environment include the introduction of GMOs into wild species, leading to the emergence and spread of herbicide and pest resistance, and even the generation of new pests. The introduction of alien species may alter habitats and consequently disturb ecosystem processes. The consequences for native species can be catastrophic. Often transported by anthropogenic means, alien species may prove invasive and can aggressively establish themselves in native ecosystems. This process, together with habitat destruction, has resulted in the displacement or even extinction of native species throughout the world. Biosecurity risks are also associated with animal and fish diseases. Foot-and-mouth disease, rinderpest, classical swine fever and white-spot syndrome virus (WSSV) in shrimp are categorised as transboundary diseases. Diseases that can be transmitted from animals to humans include BSE (bovine spongiform encephalopathy or mad-cow disease), rabies, tuberculosis, brucellosis, avian influenza and severe acute respiratory syndrome. They are related to food safety and affect regional and international trade and food security. If left unchecked, such diseases can decimate herds, harvests and fish stocks, adversely affecting the livelihoods of farmers, especially already impoverished producers. The existence of these diseases within a country also restricts free and safe regional and international trade. Intensification of production systems, land degradation, salinization, heavy metal and pesticide contamination, water table depletion, and chemical and antibiotic residues have increased hazards both to human health and environmental quality. Domestic and foreign consumers today are becoming increasingly concerned over food quality and safety arising from intensive agriculture. This concern is reflected in the higher quality and safety standards required by markets. As a result, producers are hard pressed to meet the standards demanded and, at the same time, ensure economic returns. They also lack access to adequate information regarding appropriate methods and production system options. Institutional support is patchy at best as national and regional institutions try to adapt from a production-based focus to a more holistic approach that includes the areas of food safety and environmental sustainability. The broad and complex problems related to biosecurity have given rise to a number of international, regional and intergovernmental bodies and have resulted in a number of recent international agreements. These include: the World Trade Organizations (WTO) Agreement on the Application of Sanitary and Phytosanitary Measures (SPS Agreement) covering food safety; and the Convention on Biological Diversity and the Cartagena Protocol to manage risks in the movement of living modified organisms. Countries also cooperate through the earlier Codex Alimentarius, the International Plant Protection Convention and the Office International des Epizooties (OIE). TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 21 Many of these agreements are highly specific, often related to either trade or safety. More coordinated efforts are required to take into account overlapping global and regional issues encompassing sustainable agriculture, food security, environmental protection, loss of biodiversity and trade. A variety of interrelated biosecurity issues in Asia and the Pacific remain inadequately understood or addressed. Responsibility for these issues is scattered among different sectors involving agriculture, health, the environment, forestry, fisheries, trade and industry. Rationalization of biosecurity issues, at the national and regional levels, will be required if overlaps are to be eliminated. 3.5.2 Goal Strengthened biosecurity to promote sustainable agriculture, food security, and regional and international trade. 3.5.3 Objectives The objectives are to: G Improve access to relevant, up-to-date information on biosecurity issues that meets the needs of stakeholders at all levels. G Assist in the development of national policies and regulatory frameworks relating to biosecurity and biosafety. G Support capacity building in biosecurity assessment and decision-making to address issues related to intensification and application of risky technologies in food and agriculture. G Advance risk assessment and control of invasive species and transboundary diseases, and implementation of WTO SPS measures aimed at livestock, fisheries and agricultural trade expansion. G Enhance regional networking and international collaboration and provide a neutral forum on biosecurity issues. 3.5.4 Strategic elements The following elements are critical for developing future strategies to strengthen biosecurity: G Capacity building for risk assessment, and management and development of a strong institutional framework for regulatory systems. G Risk/benefit analysis of the new production systems to address particular problems relative to existing technologies and other technological options. G Policy setting and priority identification based on information about the potential impact of different biotechnological interventions on poor people. G Stakeholder dialogue on the health and environmental risks of new trends in farming systems such as intensification and application of biotechnology to minimize these risks. G Strengthening linkages among research and development institutions dealing with biosecurity, biotechnology, biosafety and food safety. G Intellectual property management to facilitate access to proprietary technologies and strengthen private and public investment in the development and delivery of new products at prices that poor people can afford. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 22 G Ability of farmers to make informed decisions in support of biosecurity concerns. G Investment in a strategic research and development agenda and associated human resource development in order to generate new knowledge and its dissemination for the public good. 3.5.5 Outcomes RAP inputs relating to biosecurity, biosafety, biotechnology and intensified farming systems will contribute to the achievement of the following outcomes: G Information systems on biosecurity, biosafety and biotechnology established for improved access to neutral and balanced information. G Policies and regulatory frameworks developed/revised and put in place to support application of biosecurity measures. G Compliance with codes of conduct, protocols and international instruments relating to biosecurity. G Strengthened national capacity to evaluate and implement policies and regulations related to biosecurity. G Implementation of education programmes for farmers to enable informed decision-making on biosecurity. G Regional cooperation and networks of stakeholders developed, and enhanced public awareness of biosecurity issues. G Research into priority areas identified and promoted for implementation by relevant partner institutions and agencies. 3.5.6 Impact indicators G Positive feedback on the relevance and quality of information. G Biosecurity and biosafety incorporated into national regulatory framework. G Reported cases of alien invasive species minimized. G Regional transboundary disease control programmes established. G Incidence of certain transboundary diseases reduced. G Information on biosecurity issues shared and joint projects implemented. G Approved GMOs applied with no significant negative impact on agriculture and biodiversity following risk assessment and analysis. 3.6 Alleviating poverty in rice-based livelihood systems 3.6.1 Rationale Rice-based livelihoods characterize rural Asia and the Pacific. Grown in 26 nations, rice is consumed as a staple food in most of the 43 regional member countries. It is sown over a fifth of the total arable and permanent cropland. The crop also gives part-time work to some 300 million people who make up a sixth of the total agricultural population. There is archaeological evidence that rice (Oryza sativa) was domesticated 15 000 years ago in the Republic of Korea. Over the millennia, rice afforded sustainable, food-secure and even affluent lives in areas well endowed with land and water. But the present rice landscape is marred by factors and TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 23 forces associated with food insecurity and environmental degradation, although it is recognized that rice-based systems also provide positive externalities. Problems include: G Declining farm sizes and falling rice prices. G The vicious cycle of rainfed production: low productivity, natural resource exploitation, and poverty in 40 percent of rice lands. G A significant proportion of the 503 million hungry people survives within rice-based farming systems. G Climate change with the likelihood of coastal inundation, sea water seepage, erratic monsoonal precipitation, salinization and nutrient depletion as well as other damaging impacts will further threaten the productivity and sustainability of rice lands. G The Uruguay Round Agreement and expected further trade liberalization threaten high-cost producers of rice. Within this context, a significant number of rice growers face bleak prospects in terms of employment, income generation and sustainability of resource endowments. Many governments, for social and political reasons as well as lack of appropriate technology, continue to support expansion of production indiscriminately and lock farmers into producing rice, undermining alternatives for diversification. Clearly, rice is at a crossroads. One path is to continue along the same lines with the usual popular mix of input subsidy, concession credit, price and other fiscal incentives, regardless of comparative advantage. The other path is to restructure the rice sector through quick and comprehensive reallocation of resources for future cost-efficient production on a sustainable basis. There is a growing consensus that the rice sector can survive and contribute more to sustainable agriculture and rural development if the admittedly rougher pathway of restructuring is taken. But owing to cost and welfare considerations, the evidence to date is that developing countries are trying to strike a middle path, i.e. maximizing production for near-term poverty alleviation and simultaneously laying the foundations for restructuring the sector. The need to strengthen policies and programmes in this context is urgent. 3.6.2 Goal Livelihood systems that deliver sustained income growth and protect natural resources. 3.6.3 Objectives The overall objective is to alleviate poverty and enhance incomes of farm households whose livelihoods were traditionally based on rice production. The specific objectives are: G To attain and maintain comparative advantages of diversified livelihood systems. G To realize relatively high incomes from productive, resilient and diversified farming systems, non- and off-farm employment, and industrial and service activities. G To arrest and reverse natural resource degradation and environmental pollution. In perspective, this requires revisiting overall development plans with a view to reallocation of resources, including land amalgamation for more efficient management towards market-driven production, consumption and trade policies. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 24 3.6.4 Strategic elements The strategic elements in the development of rice-based livelihood systems for sustainable agriculture and rural development are as follows: G Rice sector policy analysis and decision support system (DSS) development. G Expanding intensifying livestock and poultry enterprises into rice-based farming systems and capturing rice-fish synergies. G Diversifying and intensifying sustainable cropping systems. G Optimizing farm size, improving irrigation, and mechanizing pre- and post-harvest operations. G Incorporating natural resources management and environmental protection into rice-based livelihood systems (erosion and water control, biodiversity and ecotourism). G Capacity strengthening in good farm management and practice Integrated Pest Management (IPM), integrated plant nutrient management (IPNM), Farmer Field Schools (FFS) and soil and water management. G Empowering farmers (building institutions and agricultural support and community services taking into account gender considerations). G Promoting farm-agribusiness linkages and agro-industrial management. G Promoting mechanisms and institutions for implementing FIVIMS and market monitoring and evaluation. 3.6.5 Outcomes Expected outcomes of this priority area are wide-ranging. They include: G Regional rice policies on production, consumption and trade harmonized. G National rice policies rationalized. G Technology, management and organization of the rice sector upgraded. G Natural resource conservation and environmental protection measures built into rice-based livelihood systems. G Monitoring and evaluation of rice-based livelihood systems instituted, and linked to FIVIMS. G Income and employment generated through value addition and improved processing and marketing of agricultural products. G Diversified farms with production of high-value industrial and horticultural crops, livestock and aquaculture. G Restructured rice sectors wherein marginal and fragile rice areas are converted to other appropriate uses and enterprises, and productive areas are improved and amalgamated into farm size units that can be efficiently and profitably managed. G Educated and technologically competent farming communities, particularly women and youth. These expected outcomes would result in: increased employment, food security, balanced nutrition, resilient livelihoods, better education, improved health and sanitation, and adequate income. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 25 3.6.6 Impact indicators An extensive list of impact indicators already exists for food security and sustainable agriculture for rural development. But many are impractical. The more relevant indicators currently used fall under three categories, namely: estimates based on regular surveys; measures derived from government records; and qualitative assessments. The critical ones are: G Labour productivity. G Disposable income per household and household budgetary expenditure based on periodic surveys. G Food availability based on supply utilization account estimates. G Yields based on annual crop cutting surveys. G Birth weight, under-weight, stunting and wasting based on periodic nutrition surveys. G Infant mortality and under-five mortality rates. G Population below the poverty line. G Number of landless agricultural labourers. G Number of households with less than one ha of agricultural land. G Water productivity. G Government support services. G Capacity building based on farmers opportunities in and exposure to training. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 26 4. IMPLEMENTATION STRATEGY RAPs Strategic Framework articulates priorities, goals, strategic elements, objectives and outputs aimed at achieving food security through sustainable agriculture and rural development. RAP shares its vision with member countries in the Asia and Pacific region. Realizing the vision will ultimately depend on actions taken by regional, national and local stakeholders and mobilization of considerable resources. RAP will adopt a three-pronged approach aimed at mobilizing resources, creating an enabling environment for sustainable agriculture and rural development and improving cost-effective operational systems and methods. Resource mobilization Every effort will be directed at raising resources for implementing RAPs thematic programmes and in helping member countries increase investments in agriculture and food security from diverse sources. RAP can mobilize extrabudgetary resources as well as promote funding of FAOs Regular and Field Programmes from donor countries, intergovernmental banks, international funding agencies and even governments of beneficiary countries and private companies. For this purpose, RAP will: G Enhance collaboration with existing funding agencies such as international banks, the United Nations Development Programme (UNDP) and other UN bodies and donor governments. G Establish financing linkages with potential and new contributors including public and private agencies of beneficiary countries, multinationals, international charity organizations and others. G Expand and strengthen South-South cooperation. G Develop procedures to facilitate contributions from all donors and collaborators. G Prepare a shelf of continuously updated project ideas in collaboration with beneficiary countries and actively promote it to funding agencies. G Promote in-kind contributions including experts, facilities and equipment. G Direct resources to the least-developed countries thereby avoiding the spread of resources too thinly. Enabling environment In order to realize the vision of a food-secure Asia-Pacific, there must be an enabling environment. RAPs implementation strategy will assist in creating this enabling environment. Its building blocks are good governance, effective institutions and support services, pro-poor approaches and environmentally sound systems and practices. Under the six thematic programme areas, RAP will: G Help in mobilizing the political commitment for and promotion of a policy environment conducive to an increase of investment by intergovernmental bodies, national and local governments, public and private sector agencies, and civil society groups as well as local communities and individual farmers in sustainable agriculture and rural development. G Enhance the application of service-oriented, applied and strategic research by strengthening linkages with educational and extension institutions. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 27 G Support knowledge sharing and the development and spread of information technologies to rapidly overcome the research-extension-farmer knowledge gap. G Base its activities, whenever appropriate, on traditional knowledge. G Facilitate a paradigm shift from exploitative agriculture to environmentally sound natural resource management and farming practices. G Promote awareness of the need by vulnerable groups to a diversified and nutritionally balanced diet. G Foster fair and responsible investment and trade in agriculture, paying attention to the special needs of the low-income food deficit countries, food quality and safety, and environmental standards. G Assist in decentralization and devolution of natural resource management and sustainable agriculture, and the provision of social services in rural development. G Help to expand broad-based partnership approaches and alliances with government agencies, academic institutions, the private sector, non-governmental and civil society organizations, donors and other interested partners. Cost-effectiveness RAP will act to improve the cost-effectiveness of operational systems and methods, as well as strengthen capacity. RAP will: G Strengthen the multidisciplinary approach and enhance cross-sectoral cooperation. G Develop a critical mass of technical experts able to respond to member countries emerging needs. G Harness information and communications technologies to improve efficiency in programme development and implementation, and ensure effective knowledge and information dissemination. G Take a proactive approach in translating the strategic framework into action programmes in collaboration with member countries and other partners. G Promote a corporate culture and rapid response system through continuous review of management and communication practices. 4.1 Comparative advantage of FAOs regional office and emerging opportunities RAP, working as a team with headquarters-based staff, draws strength from its pool of wide-ranging expertise in food, horticultural and industrial crops, plant protection, animal production and health, fisheries, forestry, institutional development, policy, commodities and trade, statistics, nutrition, irrigation and natural resource management. Its experts can provide a critical mass to address the technical, policy, social and economic aspects of agricultural development and natural resource management. Over the years, RAP has established its credentials as a neutral forum. This encourages an objective and wide-ranging exchange of ideas and experiences on challenges to the regions development. RAP is linked through its extensive networking with national and international partners including the Consultative Group on International Agricultural Research (CGIAR) Centres and donor communities. It can mobilize expertise and some financial resources from these partners to reinforce its own to bear on current as well as emerging development concerns. In addition, RAP is the base for many TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 28 intergovernmental and interinstitutional networks, commissions and other groupings in which it participates or provides the secretariat. This facilitates technical collaboration. This extensive structure includes, among others, regional commissions on plant protection, animal production and health, forestry, fisheries and statistics. The Organization sponsors networks on credit, marketing, nutrition and agricultural research, among others. RAP also draws technical, managerial and organizational support from FAOs special programmes on integrated pest management, food security, conservation and sustainable use of plant genetic resources for food and agriculture and others. Initiatives like the Emergency Prevention Service for Transboundary Animal and Plant Pest and Diseases as well as the Livestock Environment and Development Programme and the Asia-Pacific Food Insecurity and Vulnerability Information and Mapping Systems address specific concerns. The FAO Regional Conference for Asia and the Pacific and other policy-level meetings have adopted policy guidelines and various declarations dealing with common problems affecting member countries. These can provide clear insights and directions when governments formulate policies and programmes. RAPs strength lies also in its field programme development and implementation, with a rich portfolio of projects spanning a wide spectrum including agriculture, fisheries, forestry, nutrition and food security. The experience gained in implementing these projects, with an annual budget of over US$30 million, can serve countries well. The WFS for the first time set a common development target halving the worlds hungry by 2015. The formulation of policies and programmes, as well as the monitoring and evaluation of their implementation, provides a major opportunity for RAP to work with member countries. Swift communication and increasing interdependence of countries have heightened alertness and awareness of the consequences of complex emergencies, like water scarcity, cross-border infestation of pests and diseases, multiyear drought, financial crises and others. Countries are likely to turn to RAP with its vast expertise in multiple disciplines to promote regional cooperation. Governments and the private sector appreciate the potential of sharing benefits. Wider sharing of research findings, especially in water use, forestry and fisheries, prompt governments to respond and international donors to provide support for an increasing number of international initiatives. These cover information systems, biosafety, hybrid rice, conservation and sustainable use of plant genetic resources and others. RAP can have a useful, enlarged role to play in providing technical support and services in the development of these defining technologies. The present thrust towards empowerment of the rural poor presents another opportunity for RAP to strengthen its role and make its work more relevant. There is much that RAP can do in the areas of decentralization and devolution of sustainable development, farmers organizations, rural credit and finance, land reform, marketing and others. 4.2 Challenges Globalization and dynamic regional groupings represent both challenges and opportunities in the region. In many developing countries, especially small island developing states, the enabling environment required to support sustainable development does not exist yet. Macroeconomic stability, open markets, basic physical and institutional infrastructures and even civil order are often inadequate. TOWARDS A FOOD-SECURE ASIA AND PACIFIC REGIONAL STRATEGIC FRAMEWORK FOR ASIA AND THE PACIFIC 29 Natural processes cannot be hurried. In forestry or natural resources management, for example, progress and benefits are often incremental. They require time frames that extend beyond political cycles or budget deadlines of both governments and international agencies. Unless a full-blown crisis emerges, member countries sometimes delay needed policy changes, revamping of institutions or adjustment of budget allocations. Effective responses to complex problems require actions by many stakeholders. Often, interventions by only one ministry result in the weak commitment and contribution of other players. Conflicting interests affect most development efforts. This can be among countries, like the conflict between exporters and importers in the rice-trade liberalization question. It can also be among different groups within countries, such as on issues of public distribution systems, pricing, export-import controls and others. Quality of governance and enforcement systems can undercut support for policy and institutional changes called for. Diplomatic discretion can replace willingness to challenge members on potentially acrimonious issues. Obviously these factors, as they change with time, need to be fully analyzed and taken into consideration when transforming the Regional Strategy into action programmes. 4.3 Monitoring and evaluation As an integral part of the overall FAO Medium Term Plan, the monitoring and evaluation of the RAP Regional Strategic Framework will be periodically conducted within existing Programme of Work and Budget processes. Exceptional thematic evaluation may be undertaken for specific purposes such as advocacy and raising awareness or resources. For purposes of tracking the Frameworks progress in the context of regional specificity, information will be systematically collated for reporting under existing Programme of Work and Budget mechanisms. Desired outcome indicators as outlined in the thematic programme areas will be periodically evaluated within the framework of the Medium Term Plan and the Regional Strategic Framework. Outcomes will be fed back for reformulation of action programmes. The Regional Strategic Framework will be reviewed and revised if necessary, taking into consideration the changing conditions and needs of the Asia-Pacific region and the recommendations and priorities of member countries. Livros Grtis ( http://www.livrosgratis.com.br )
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