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T Effective aid for agriculture and rural development: the search for coherence
Platform Policy Briefs are designed to inform and guide members in the delivery of assistance in agriculture and rural development. Global Donor Platform for Rural Development Tackling rural poverty, together
SUMMARY
he Paris Declaration on Aid Effectiveness of 2005 aimed to improve coherence and consistency of development policies and programmes. Six years later, which benefits can been seen in agriculture and rural development? For agriculture and rural development (ARD), policy coherence sets a stiff challenge. The sector is usually expected to contribute to a wide range of goals. Since agriculture is carried out across large and varying areas by many private farms, the relation of policies to outcomes can be difficult to judge. Yet it is not easy to set priorities and resolve uncertainties for ARD when rural populations are often not well organised and administrative responsibility of the sector is fragmented. Moreover, the rising importance of global concerns over higher food prices and climate change may increase the potential for incoherent policy.
Sorghum harvesting in Kondogola/Mali. The Platform's work in the area of aid effectiveness aims to benefit farmers all over the world. Photo: Didier Ruef
A study commissioned by the Platform found Country ownership is lacking and little progress has been made on aligning procedures. Aid is often aligned formally due to donor-funded programmes being broad and permissive, but in practice some donors insist on their own accounting, reporting and procurement methods. Country leadership is the key issue to be addressed. in the absence of clearer guidance and in combination with the uncertainties that surround ARD. Progress can usually be seen when interest groups form that are determined enough to see programmes through to a successful outcome. Such alliances are possible when attention is focused on a single issue, containing a crisis or opportunity, and preferably when shortterm gains can be made. The main inconsistencies are those between ARD and trade policy. While not the focus of the study, Policy Coherence for Development the term commonly used to refer to consisten-
For agriculture and rural development policy coherence is even more challenging
ARD is usually expected to contribute to a wide range of objectives: economic growth and export earnings; employment, poverty, equity, gender fairness, food and nutrition security; environmental conservation; and regional equity. Since a given strategy is unlikely to achieve goals equally across the range, priorities have to be set, in large part through value judgments. In addition, agriculture is less technically certain than most productive sectors, requiring adaptation to local conditions. Most farms, moreover, are small enterprises, vulnerable to market failures, especially in finance and insurance, for which solutions are in debate. Hence ARD is an area where commonly there can be uncertainty over both ends and means. Yet it is not easy to resolve such uncertainties. Support for ARD is often weak and unfocussed. Politically, especially in low income countries, rural populations are not well organised to express needs and aspirations. Administratively, responsibilities for providing rural public goods and services are spread over several ministries and agencies; while capacity to analyse the often quite complicated issues in ARD is often limited.
7] Partly compiled from Investing in Women as Drivers of Agricultural Growth (J. Ashby, M. Hartl, Y. Lambrou, G. Larson, A. Lubbock, E. Pehu, C. Ragasa) and IFAD (2010) Special Session Report The Farmers Forum in Conjunction with the ThirtyThird Session of IFADs Governing Council. Special Session: Promoting womens leadership in farmers and rural producers organizations. Held at IFAD Headquarters, Rome, on 13 February 2010. 8] These are the Gender in Agriculture Sourcebook http://worldbank.org/genderinag, The World Development Report: Agriculture for DevelopmentAgriculture for Development. The 2008 World Development Report. The World Bank. Washington, DC. 2007. and the International Assessment of Agricultural Science and Technology for Development [www.agassessment.org ]. 9] Farnworth, C.R. (2010) Gender aware approaches in agricultural programmes: a study of Sida-supported agricultural programmes. Sida Evaluation 2010: 3 10] Lastarria-Cornhiel, S. (2008) The Feminization of agriculture: trends and driving forces. Background paper for the World Development Report. http://siteresources.worldbank.org/I NTWDR2008/Resources/27950871191427986785/LastarriaCornhiel_F eminizationOfAgri.pdf 11] IAASTD (2008) Executive Summary of the Synthesis Report. 12] G. Rebosio, S. Gammage, and C. Manfre, A Pro-Poor Analysis of the Artichoke Value Chain in Peru,www.microlinks.org/file_down load.php/Artichoke_Peru_Research_ Brief.pdf?URL_ID=18386&filename=1 1861594421Artichoke_Peru_Researc h_Brief.pdf&filetype=application%2F pdf&filesize=299504&name=Artichok e_Peru_ Research_Brief.pdf&location=user-S. 13] Barrientos, S., C. Dolan, A. Tallontire. "A Gendered Value Chain Approach to Codes of Conduct in AFrican Horticlture." World Development 31 (9) (2003): 1511-1526. 14] Action Aid Securing womens right to land and livelihoods: a key to ending hunger and fighting AIDS http://www.actionaid.org/micrositeAs sets/eu/assets/women's%20right%2 0to%20land%20hiv%20and%20hunge donorplatform.org r%20jun08final.pdf
Overall, development partners have to engage in the long haul of building institutions and capacity in the widest sense and finding ways to bring otherwise marginalised stakeholders into political systems where power is unduly concentrated in the hands of elites. This may not be simple, inexpensive or rapid. But neither is it impossible. The costs, moreover, have to be set against the alternative of aid that is ineffective.
T ANALYSIS
// Policy coherence is a challenge for development
Individual policies, however well-conceived, can be undermined by other policies with different objectives. This applies all the more so when providing assistance from OECD countries to developing countries when there are two sets of policies to consider. Potential incoherence is clearest between aid and other policies of development partners. Aid programmes need be consistent across sectors, they need to align with the national policies of developing countries, and within those countries their policies need to cohere. Indeed, if the five principles set out in the Paris Declaration on Aid Effectiveness of 2005 ownership, alignment, harmonisation, results and mutual accountability are to be put into operation, policies have to be coherent across several dimensions.
// Conclusion 2: Further progress on harmonisation and alignment will be difficult without country leadership the key issue in ARD
Developing countries often fail to make clear strategy choices for ARD. Without clear guidance, policies and programmes proliferate. Some compete, duplicate or overlap. Fundamental issues affecting ARD can be obscured by less important concerns. A sector that lacks a sharp focus may lose out when competing for national resources. Reasons While donors may contribute to the problem by insisting on programmes and policies that reflect their preferences, two factors explain why developing countries do not establish a firmer line on their ARD policy. The relative complexity of ARD Opinions differ over choices of both ends and means, reflecting differing values and technical judgments differences that can contribute to fragmented, contested and changing policy. The matter of political economy The point of how political forces and distributional conflicts affect the choice of policies has emerged more strongly than expected. Problems with policies can be attributed to closely-related political, institutional and operational factors. donorplatform.org
Factors that seem to make a difference in otherwise unpromising circumstances A clear, single issue on which to focus. There has to be a substantial issue around which interests can coalesce. It has to be acknowledged, identified by stakeholders, with a degree of consensus about the problem or the opportunity. A crisis, a promise. Crises can galvanise latent interests, as can clear opportunities that promise high returns to initiative. Engaging only those with a real stake. Negotiations can be difficult enough without involving participants for whom this is not a burning issue. Limit participation to keep the costs of coordination down. Sustained interest and effort. Continuity of aims, purpose and resources helps. In two remarkable reforms from Mali, government and donors held together in common purpose for at least twenty years. While ideas about how to do things may change over time, leadership and vision must be part of the story. Short term wins. Tangible gains, preferably in the short term, have to be apparent. Not all gains have to come soon, but early progress encourages further effort. Of course, it helps if external circumstances are favourable and the contrary also applies. If intractable technical problems arise, if some leader or technocrat is unwaveringly venal, if stakeholders refuse to bridge the gaps between them and others, or if economic conditions move against the enterprise then well-conceived efforts may sink.
18] IFPRI, 2009 19] IFPRI, 2009 20] See compilation of studies in Farnworth, C.R. (2008) Module 5: Gender and Agricultural Markets. In Gender in Agriculture Sourcebook. World Bank. http://worldbank.org/genderinag 21] Kitinoja, Lisa. 2002. Identifying Scale-Appropriate Postharvest Technology. In Postharvest Technology of Horticultural Crops, 3rd ed., ed. Adel A. Kader, 48190. Oakland,CA: Division of Agriculture and Natural Resources and University of California. 22] Gurung, C., 2006. The role of women in the fruit and vegetable supply chain in Maharashtra and Tamil Nadu India: the new and expanded social and economic opportunities for vulnerable groups task order under the Women in Development IQC. Washington, DC: USAID. 23] USAID, Gender and Economic Value Chains: Two Case Studies from the GATE Project, www.usaid.gov/our_work/cross-cutting_programs/wid/eg/gate_valuechai n.html.24] Food and Agriculture Organization, 2009. The state of food insecurity in the World 2009. Rome. http://www.fao.org/docrep/012/i0876e /i0876e00.htm 25] DFID/DEFRA (March 2010) DFID/Defra Policy Narrative on Global Food Security and Sustainable Agriculture. 26] Farnworth, C.R. (2010) Zambia Country Report: Sida UTV Working donorplatform.org Paper 2010:8
Cinzana Agricultural Research Station in Mali's Province of Segou works to sustainably increase crop production and productivity through improved seed breeding. Photo: Didier Ruef
Success has come from agreement by government and donors to tackle an urgent problem, sustained support from donors; and coherent and sequenced set of reforms aligned with macroeconomic reforms.
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