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TOWARDS A FOOD-SECURE ASIA AND PACIFIC

REGIONAL STRATEGIC FRAMEWORK

FOR ASIA AND THE PACIFIC

Second edition

RAP PUBLICATION 2004/06

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Afghanistan

Australia

Bangladesh

Bhutan

Cambodia

China

Cook Islands

Democratic People’s Republic of Korea

Fiji

France

India

Indonesia

Iran, Islamic Republic of

Japan

Kazakhstan

Kiribati

Kyrgyzstan

Lao People’s 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

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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

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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.

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 [email protected].



 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: [email protected]

First edition: May 2004

Second edition: October 2004

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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 world’s undernourished by 2015. Guided by the

Global Strategic Framework (GSF), the Organization’s 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 FAO’s 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 RAP’s 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

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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 FAO’s regional office and emerging opportunities ........... 27

4.2 Challenges ......................................................................................................................... 28

4.3 Monitoring and evaluation ............................................................................................... 29

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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 world’s 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 task’s 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

Session of FAO’s Conference in November 1999, member countries approved the

Organization’s first ever Strategic Framework. This document guides FAO’s activities aimed at, among

other objectives, helping member countries reach the WFS target of halving the number of

undernourished by 2015. The Organization’s rolling medium-term plans and successive biennial

programmes of work and budget are directed at accomplishing this priority task.

FAO’s Corporate Strategic Framework 2000-2015 supports the Organization’s fundamental role, namely

to promote the common welfare by furthering separate and collective actions for the purpose of:

● raising levels of nutrition and standards of living of the people;

● securing improvements in the efficiency of the production and distribution of all food and

agricultural products;

● bettering the condition of rural populations; and

● contributing towards an expanding world economy and ensuring humanity’s 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 FAO’s messages.

The thrust of FAO’s 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 region’s 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.

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Box 1: FAO’s 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

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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

world’s 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 world’s ill-fed. Women and

children, ethnic minorities and persons with disabilities constitute a disproportionately high percentage

of the vulnerable.

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 region’s 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 women’s 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 world’s 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

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 FAO’s flagship publication The State of Food Insecurity in the World

2003 (http://www.fao.org/SOF/sofi/index_en.htm).

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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 world’s 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 region’s 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 world’s 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 region’s livestock sector has the

potential to spearhead sustainable agriculture and rural development in the decade to 2015.

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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 region’s 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 region’s 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

world’s 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 world’s 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.

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Water scarcity and land degradation are worsening. Over 28 percent of the region’s landscape is

severely degraded and, though the region appears well endowed with water resources, its internal

renewable water resources are only about half the world’s 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 agriculture’s

sustainability. Of particular concern are their long-term impacts on the region’s 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. Agriculture’s 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 region’s 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.

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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.

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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 FAO’s 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 region’s undernourished by 2015 by raising agricultural

productivity and alleviating poverty while protecting the region’s 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

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 region’s 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

Agriculture includes crops, livestock, fisheries and forestry.

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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:

● Strengthen institutions to be responsive to rural development needs.

● Develop appropriate (technical/process) messages for changing rural systems.

● Promote investment opportunities for poverty alleviation.

● 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:

● Removal of biases in public spending for small farmers.

● Improved access to land and other natural resources for small farmers.

● Integration of gender considerations in policy and programme designs.

● Harmonizing trade standards for the benefit of the rural poor.

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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

● Self-reliance and reduced marginalization of the rural poor.

● Improved agricultural performance in meeting market demand in terms of quality and quantity.

● Improved trade in terms of market efficiency, export-import volumes, foreign exchange earnings,

employment and income generation, and access to food by the poor.

● Redirection of agricultural subsidies towards investments for agricultural sector growth, poverty

alleviation and food security.

3.1.6 Impact indicators

Policy

● Sustained and broad-based agricultural growth.

● Equitable growth.

● Market orientation.

● Fair trade regulations in favour of the poor.

Institutions

● Linkages and effective information flow between the different groups (e.g. private sector,

government organizations and NGOs).

● Access to formal credit.

● Participation by primary beneficiaries.

● Responsive institutions meeting stakeholders’ needs.

● Fair trade regulations redressing the existing bias against the poor.

● Training for government officials from countries with large pockets of poor, rural communities.

Messages

● Sound and appropriate economic, social, environmental and technical processes.

● Promotion of growth and trade with social equality.

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Investment opportunities

● Improved infrastructure.

● Access to formal credit.

Capacity building

● Level of awareness of child labour and trafficking of women and children.

● Increased competitiveness.

● Responsive institutions meeting stakeholders’ needs (social services).

● 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.

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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:

● Strengthen policies, legislation and institutional environments supportive of decentralized

governance and participatory decision-making processes.

● Build the capacities of stakeholders at all levels so institutional reforms can be effective.

● Facilitate the organization of rural people, including farmers, fisherfolk, forest-dependent people,

traders and labourers.

● Improve the accessibility of up-to-date information and adequate resources that meet the needs

of all stakeholders.

● 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:

● Adequate resources to provide technical and policy advice.

● Training programmes, methodologies, materials and equipment, technical advice and human

resource development.

● A framework for collecting and providing information to all levels of decision-making.

● Assistance in budget development and management at the local level.

● Institutional infrastructure for empowerment of the rural poor including cooperatives, farmers’

organizations, rural marketing and trade associations, credit societies and other groups.

● Support networks at regional and national levels providing neutral fora for stakeholders.

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3.2.5 Outcomes

Expected outcomes will be diverse and include the following:

● Enactment of policies and legislative frameworks to support effective decentralized governance.

● Enhanced technical, managerial and organizational capacities of local communities and

administrative units.

● Development and dissemination of appropriate information that satisfies the needs of the diverse

stakeholders.

● Adequate resources available at national and decentralized levels.

● Clearly defined roles of national and subnational actors in development interventions.

● Improved environmental conditions.

● 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 FAO’s assistance

within the region in regard to decentralized governance:

● Effective participation by subnational actors, especially vulnerable and disadvantaged groups,

in social and economic decision-making.

● 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.

● Improved institutions and programmes for education and training.

● Adequately funded social and productive services.

● Roles of actors at different levels specified.

● 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 world’s 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:

● Hydro-meteorological events: floods, droughts, windstorms, cyclones and typhoons.

● Geological events ranging from earthquakes and volcano eruptions to mud and land slides.

● Forest and plantation fires.

● 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

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assets and out-migration strain the agricultural sector’s 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 world’s 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.

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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:

● Reduced risk of disasters in the agriculture sector and increased coping and recovery capacity.

● Improved food security and balanced nutrition.

● Sustainable agriculture applying environment-friendly farming system best practices and

protecting natural resource endowments.

● Prevention and control of human, animal and plant pests and diseases.

3.3.4 Strategic elements

RAP will promote the following strategic elements:

● Awareness building to mobilize commitment and resources from the government and the public

for disaster management and mitigation.

● Development of a policy regime and action plan.

● Establishing appropriate laws, rules and regulations for disaster management.

● Promoting cooperation among institutions currently involved in disaster management and setting

up necessary new institutions and cooperative networks.

● Encouraging agro-ecological zoning.

● Introducing Food Insecurity and Vulnerability Information Mapping Systems (FIVIMS).

● Strengthening land-use planning, monitoring and enforcement.

● Training of trainers in prevention, preparedness, early warning, needs assessment and

rehabilitation and sustainable development.

● R&D in resilient farming systems and best practices, especially in crop diversification, integrated

farming, contingency cropping, hazard-resistant methods and environment conservation.

● 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

● Resilient livelihoods in the face of disasters and other risks.

● Disaster management plans incorporated into national development plans for food and agriculture.

● Farmers in the rural sector practising environment-friendly agriculture and protecting local natural

resources.

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● Early warning and response systems/networks established.

● Supply of safe crop, livestock, and fisheries products.

3.3.6 Impact indicators

● Number of disasters.

● Intensity of disasters.

● Coordination amongst international stakeholders.

● Time frame from the advent of the disaster through impact assessment, relief, rehabilitation and

reconstruction to sustainable recovery.

● Growth of international agricultural trade, especially of livestock products.

● Rate of increase in emergency food aid.

● Incidence of malnutrition and undernutrition in disaster areas.

● 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, people’s 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 region’s

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 region’s 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

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diversity and may limit the region’s 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 region’s 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:

● 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.

● Sustainable management of natural resources is recognized as a priority and sufficient financial

and other resources are allocated for this purpose.

● Stakeholders have the capacity to effectively design, implement and monitor policies,

programmes, reforms and tangible changes and benefits to end users.

● Appropriate information and technologies are communicated to stakeholders, especially women,

the poor and marginal groups.

● International conventions and treaties are implemented and monitored.

3.4.4 Strategic elements

● Strengthening education and the building the capacity of all stakeholders in sustainable

management, use and conservation of natural resources.

● Facilitating regional and transboundary agreements relating to natural resource management,

conservation and use.

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● Promoting best practices of environmentally sound production, processing and marketing of

food, industrial crops, wood and fibre, livestock and natural resource products.

● Assisting in establishing enabling environments, including infrastructure and systems of property

or access rights, for natural resources planning, conservation and management.

● Advancing participatory planning, implementation, monitoring and evaluation at all stakeholder

levels.

● Adopting information and communications technologies for natural resource management.

● Furthering equitable access to natural resources.

● Developing and extending adaptive and mitigative strategies for climate change and mobilizing

resources for action.

● Advocating more sustainable and remunerative ways of using natural resources such as ecotourism

and adding value to forest, fishery and agricultural products.

● Extending efficient and environmentally sound management of watersheds, river basins and

irrigation systems.

3.4.5 Outcomes

● Improved policy instruments and institutions for enabling sustainable use, conservation and

management of natural resources.

● Enhanced allocation of resources for interventions required to attain sustainable management of

natural resources and agricultural development.

● Reinforced capacity of stakeholders to plan, implement, monitor and evaluate impacts of

development and use of natural resources management and conservation.

● Better utilization of relevant information and technologies, and application of best practices for

sustained use of natural resources by users at all levels.

● Entry into, and implementation of, relevant regional and international conventions, treaties etc.

● Genetic resources for food and agriculture conserved and shared equitably.

● Better integration of natural resource policies and interventions.

● Improved rural livelihoods through more efficient use of natural resources, higher productivity,

and more value addition.

3.4.6 Impact indicators

People

● Access to credit and inputs by stakeholders.

● Participatory involvement in development and natural resource issues.

● Incomes and livelihoods of rural people.

● Best practice technologies used by stakeholders.

● Level of self-reliance of rural communities.

● Gender disaggregated data on access to natural resources.

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Policy

● Revised policies and appropriate regulatory frameworks developed for the sustainable

management of natural resources and improved agricultural practices.

● Incentives for natural resource conservation.

● Market-driven development of the forestry, fisheries and agriculture sectors.

● Macro indicators on the status of natural resources, e.g. forest cover, water quality, genetic

resources, soil fertility, fish stocks etc.

Technology

● Enhanced capacities of regional, national and local governments, NGOs, and local communities

in the use, conservation and management of natural resources.

● Access to improved technology packages for stakeholder use and guidance.

● Technologies developed for sustainable use of natural resources.

● Information systems for decision-makers.

Resources

● Government and donor resources applied to management and conservation.

● Sources of finance for sustainable natural resource management.

● Budget allocations for human resource development.

● Investment rates in supportive infrastructure for natural resource management.

● 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.

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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 Organization’s (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).

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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:

● Improve access to relevant, up-to-date information on biosecurity issues that meets the needs of

stakeholders at all levels.

● Assist in the development of national policies and regulatory frameworks relating to biosecurity

and biosafety.

● Support capacity building in biosecurity assessment and decision-making to address issues related

to intensification and application of risky technologies in food and agriculture.

● 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.

● 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:

● Capacity building for risk assessment, and management and development of a strong institutional

framework for regulatory systems.

● Risk/benefit analysis of the new production systems to address particular problems relative to

existing technologies and other technological options.

● Policy setting and priority identification based on information about the potential impact of

different biotechnological interventions on poor people.

● 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.

● Strengthening linkages among research and development institutions dealing with biosecurity,

biotechnology, biosafety and food safety.

● 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.

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● Ability of farmers to make informed decisions in support of biosecurity concerns.

● 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:

● Information systems on biosecurity, biosafety and biotechnology established for improved access

to neutral and balanced information.

● Policies and regulatory frameworks developed/revised and put in place to support application

of biosecurity measures.

● Compliance with codes of conduct, protocols and international instruments relating to biosecurity.

● Strengthened national capacity to evaluate and implement policies and regulations related to

biosecurity.

● Implementation of education programmes for farmers to enable informed decision-making on

biosecurity.

● Regional cooperation and networks of stakeholders developed, and enhanced public awareness

of biosecurity issues.

● Research into priority areas identified and promoted for implementation by relevant partner

institutions and agencies.

3.5.6 Impact indicators

● Positive feedback on the relevance and quality of information.

● Biosecurity and biosafety incorporated into national regulatory framework.

● Reported cases of alien invasive species minimized.

● Regional transboundary disease control programmes established.

● Incidence of certain transboundary diseases reduced.

● Information on biosecurity issues shared and joint projects implemented.

● 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

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forces associated with food insecurity and environmental degradation, although it is recognized that

rice-based systems also provide positive externalities. Problems include:

● Declining farm sizes and falling rice prices.

● The vicious cycle of rainfed production: low productivity, natural resource exploitation, and

poverty in 40 percent of rice lands.

● A significant proportion of the 503 million hungry people survives within rice-based farming

systems.

● 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.

● 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:

● To attain and maintain comparative advantages of diversified livelihood systems.

● To realize relatively high incomes from productive, resilient and diversified farming systems,

non- and off-farm employment, and industrial and service activities.

● 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.

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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:

● Rice sector policy analysis and decision support system (DSS) development.

● Expanding intensifying livestock and poultry enterprises into rice-based farming systems and

capturing rice-fish synergies.

● Diversifying and intensifying sustainable cropping systems.

● Optimizing farm size, improving irrigation, and mechanizing pre- and post-harvest operations.

● Incorporating natural resources management and environmental protection into rice-based

livelihood systems (erosion and water control, biodiversity and ecotourism).

● 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.

● Empowering farmers (building institutions and agricultural support and community services

taking into account gender considerations).

● Promoting farm-agribusiness linkages and agro-industrial management.

● 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:

● Regional rice policies on production, consumption and trade harmonized.

● National rice policies rationalized.

● Technology, management and organization of the rice sector upgraded.

● Natural resource conservation and environmental protection measures built into rice-based

livelihood systems.

● Monitoring and evaluation of rice-based livelihood systems instituted, and linked to FIVIMS.

● Income and employment generated through value addition and improved processing and

marketing of agricultural products.

● Diversified farms with production of high-value industrial and horticultural crops, livestock and

aquaculture.

● 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.

● 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.

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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:

● Labour productivity.

● Disposable income per household and household budgetary expenditure based on periodic surveys.

● Food availability based on supply utilization account estimates.

● Yields based on annual crop cutting surveys.

● Birth weight, under-weight, stunting and wasting based on periodic nutrition surveys.

● Infant mortality and under-five mortality rates.

● Population below the poverty line.

● Number of landless agricultural labourers.

● Number of households with less than one ha of agricultural land.

● Water productivity.

● Government support services.

● Capacity building based on farmers’ opportunities in and exposure to training.

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4. IMPLEMENTATION STRATEGY

RAP’s 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 RAP’s 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 FAO’s 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:

● Enhance collaboration with existing funding agencies such as international banks, the United

Nations Development Programme (UNDP) and other UN bodies and donor governments.

● Establish financing linkages with potential and new contributors including public and private

agencies of beneficiary countries, multinationals, international charity organizations and others.

● Expand and strengthen South-South cooperation.

● Develop procedures to facilitate contributions from all donors and collaborators.

● Prepare a shelf of continuously updated project ideas in collaboration with beneficiary countries

and actively promote it to funding agencies.

● Promote in-kind contributions including experts, facilities and equipment.

● 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.

RAP’s 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:

● 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.

● Enhance the application of service-oriented, applied and strategic research by strengthening

linkages with educational and extension institutions.

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● Support knowledge sharing and the development and spread of information technologies to

rapidly overcome the research-extension-farmer knowledge gap.

● Base its activities, whenever appropriate, on traditional knowledge.

● Facilitate a paradigm shift from exploitative agriculture to environmentally sound natural resource

management and farming practices.

● Promote awareness of the need by vulnerable groups to a diversified and nutritionally balanced

diet.

● 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.

● Assist in decentralization and devolution of natural resource management and sustainable

agriculture, and the provision of social services in rural development.

● 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:

● Strengthen the multidisciplinary approach and enhance cross-sectoral cooperation.

● Develop a critical mass of technical experts able to respond to member countries’ emerging

needs.

● Harness information and communications technologies to improve efficiency in programme

development and implementation, and ensure effective knowledge and information dissemination.

● Take a proactive approach in translating the strategic framework into action programmes in

collaboration with member countries and other partners.

● Promote a corporate culture and rapid response system through continuous review of management

and communication practices.

4.1 Comparative advantage of FAO’s 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 region’s 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

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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 FAO’s 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.

RAP’s 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 world’s 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.

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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 Framework’s 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.

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