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Food Aid and Food Assistance in Emergency and Transitional Contexts: a Review of Current Thinking

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Food Aid and Food Assistance in Emergency and Transitional Contexts: a Review of Current Thinking hpghpg hpg HumanitarianHumanitarian Humanitarian PolicyPolicy Group Group Policy Group Food aid and food assistance in emergency and transitional contexts: a review of current thinking Paul Harvey, Karen Proudlock, Edward Clay, Barry Riley and Susanne Jaspars June 2010 About the authors Paul Harvey is a Partner in Humanitarian Outcomes and a Research Associate at ODI. Karen Proudlock is an independent consultant working on food assistance; cash transfers in emergencies, gender and evaluation of humanitarian action. Barry Riley is an independent consultant works on issues of food security and food aid. Edward Clay is a Senior Research Associate in the International Economic Development Group at ODI. Susanne Jaspars is a Research Fellow in the Humanitarian Policy Group at ODI. Paul Harvey was the lead researcher for this review. Susanne Jaspars was the project manager within ODI. Karen Proudlock wrote the section on school feeding and, together with Ed Clay, the sections on food aid trends and de- livering food assistance. Ed Clay wrote the sections on the Food Aid Convention and food assistance trends. Barry Riley was responsible for the sections on US policy. Acknowledgements We would like to thank all those who gave their time to be interviewed for this review and for providing constructive comments on the initial draft of the report. Thanks to Joyce Maxwell for editing the report. Finally, we would like to thank BMZ for funding the study. The views expressed in this report are the authors’ alone. The authors accept sole responsibility for any factual inaccuracies. Humanitarian Policy Group Overseas Development Institute 111 Westminster Bridge Road London SE1 7JD United Kingdom Tel: +44(0) 20 7922 0300 Fax: +44(0) 20 7922 0399 Website: www.odi.org.uk/hpg Email: [email protected] Contents Acronyms v Executve summary 1 Chapter 1. Introducton 5 1.1 Methodology 5 Chapter 2. Evolvng dsaster contexts 7 2.1 Food price crisis 7 2.2 Food aid/assistance trends 8 2.2.1 Increase in humanitarian assistance levels 8 2.2.2 Downward trend in overall food aid levels 9 2.2.3 Change in types of food aid programmes 10 2.2.4 Changes in sources of food aid 11 2.2.5 Changes in donors or funders and recipients 13 2.2.6 Humanitarian reform: CERF and pooled funds 18 Chapter 3. Food securty archtecture 21 3.1 Towards a new food security architecture 21 3.2 A future Food Aid or Food Assistance Convention 21 3.2.1 Background: food aid as a special case 22 3.3.2 The basics of the Food Aid Convention 22 3.2.3 The WTO Dimension 23 3.2.4 A New Food Aid Convention? 24 3.2.5 The minimalist option 24 3.2.6 A more radical reconstruction: options for change 25 3.2.7 Convention membership and the Committee 26 Chapter 4. Defnng food assstance 27 Chapter 5. Lnkng relef and development: humantaran, transtonal and development 31 food assstance Chapter 6. Assessment, early warnng and analyss 33 Chapter 7. The food assstance toolbox 35 7.1 Cash and vouchers 35 7.2 Nutrition 38 7.3 School feeding 40 7.3.1 Definitions, aims and objectives 40 7.3.2 Evidence, policy and practice 40 7.3.3 School feeding in emergencies 41 7.4 Food and Cash for Work 41 7.5 Grey areas: other food security instruments 42 Chapter 8. Delverng food assstance 43 8.1 Food aid procurement 43 8.2 Local and Regional Procurement (LRP) 44 8.2.1 Donors and agency policies 46 8.3 Monetisation 47 HPG Commissioned Report HPG CommIssIonED REPort Chapter 9. operatonal programmng of food assstance 49 9.1 Rights, standards and principles 49 9.2 Targeting and sharing 49 9.3 Monitoring and evaluation 50 Chapter 10. Conclusons 53 Annexes 1. Interview guide 55 2. Policy Position of Selected Donor Governments, UN Agencies, Red Cross and 57 Red Crescent Movement and NGOs 3. List of people interviewed 87 References 89 Fgures, boxes and tables Figure 1: Total humanitarian assistance flows to emergencies, by year 9 Figure 2: Global food aid deliveries by governments, NGOs and WFP, 1990–2008 9 Figure 3: Global food aid flows by type of activity, 1999–2008 11 Figure 4: Global food aid flows by source or delivery mode, 1990–2008 13 Figure 5: Total non-DAC funding to WFP, 2005–10 16 Figure 6: Top ten donors to WFP, 2008 17 Figure 7: DAC and non-DAC contributions to WFP, 2005–10 17 Figure 8: Top non-DAC funders to WFP programmes, 2005–10 18 Figure 9: Decision tree for food assistance 43 Box 1: What is food assistance? Some recent definitions 27 Box 2: Innovative technologies for cash delivery 37 Box 3: GTZ Cash and Food for Work (CFW) in Nepal and Afghanistan 42 Box 4: WFP’s Purchase for Progress (P4P) Initiative 45 Box 5: CARE USA’s position on monetisation 48 Box 6: Targeting in complex emergencies 50 Box 7: Rations spread thinly 51 Table 1: Global food aid flows by type of activity, 1989–2008 12 Table 2: Global food aid flows by source or delivery mode, 1989–2008 14 Table 3: Selected donors and funders: total food aid flows by source, 2008 15 Table 4: Top 10 donors to WFP in 2009 15 Table 5: Major recipients of emergency food aid, 2007–8 16 Table 6: FAC 1999 signatories: total food aid as percent of minimum contribution 23 in wheat and grain equivalent Table 7: Food assistance instruments: issues and grey areas 36 Food aid and food assistance HPG CommIssIonED REPort Acronyms ACDI/VoCA Agricultural Cooperative Development International/Volunteers in Overseas Cooperative Assistance ACF Action Contre La Faim AoA Agreement on Agriculture (WTO) BEHT Bill Emerson Humanitarian Trust BEsT Bellmon Estimation Studies for Title II BmZ Bundesministerium für Wirtschaftliche Zusammenarbeit und Entwicklung (Federal Ministry for Economic Cooperation and Development) CARE Cooperative for Assistance and Relief Everywhere CERF Central Emergency Response Fund CFs Committee on Food Security CHF Common Humanitarian Fund CoA Committee on Agriculture (WTO) CRs Catholic Relief Services DAC Development Assistance Committee DDR Doha Development Round (WTO) ERF Emergency Response Fund FAC Food Aid Convention FAo Food and Agriculture Organization FEWsnET Famine Early Warning System Network FTs Financial Tracking Service GFRP Global Food Crisis Response Programme GHFsI Global Hunger and Food Security Initiative GTZ German Technical Cooperation IAsC Inter-Agency Standing Committee IGC International Grains Council InTERFAIs International Food Aid Information System (WFP) Iom International Organisation for Migration LRP Local and Regional Procurement m&E Monitoring and Evaluation mDG Millennium Development Goal mmT Million Metric Tons nGo Non-Governmental Organisation oDA Official Development Assistance PL 480 Public Law 480 PRRo Protracted Relief and Recovery Operation HPG Commissioned Report HPG CommIssIonED REPort TAFAD Trans-Atlantic Food Aid Dialogue UsAID United States Agency for International Development UsDA United States Department of Agriculture UsGAo United States Government Accountability Office WE wheat equivalent WFP World Food Programme WTo World Trade Organization v Food aid and food assistance HPG CommIssIonED REPort Executve summary This report presents the findings of a review of changes in From food ad to food assstance food aid and food assistance policies and strategies within the international aid system. It was carried out between January An increasing number of donors and aid agencies are using and May 2010 for the German Federal Ministry for Economic the term food assistance as an alternative to food aid. For Cooperation and Development (BMZ). The study provides an instance, WFP, in its new strategic plan, refers to the shift overview of key current issues in donor government and aid from being a food aid to a food assistance agency. ECHO talks agency policies and programming practices regarding food about a gradual and important shift over the last 15 years assistance. The study was commissioned by BMZ to inform from using in-kind commodity food aid as a default response the German government’s revision of its food assistance policy to emergency needs towards considering a broader and more in emergency and transitional contexts. It involved interviews effective set of humanitarian food assistance tools. A major with a representative selection of officials from bilateral reason for the evolution in terminology is to allow agencies to donors, international agencies and NGOs, and a review of include the provision of cash for food-related purposes within recent literature and organisational policies. definitions of food assistance. A review of changes in food assistance policies and practices However, the ways different stakeholders presently define food is important for a number of reasons: assistance vary considerably. Some definitions embrace all interventions that address food insecurity and nutrition (including 1. A shift from food aid to food assistance by key donors, UN in-kind food aid, cash transfers, some forms of production and agencies and NGOs. In terms of assistance programming, market support) while others limit food assistance to direct significant trends include the shift from in-kind food aid to food and cash-based transfers. The growing use of the term local and regional procurement, an increase in the use of ‘food assistance’ instead of ‘food aid’, but without a clear cash transfers and an increasing role for social protection definition, raises conceptual and practical issues. When should and hunger safety nets. cash transfers be considered food assistance? With regard to 2. Changes in the context in which food assistance is ODA (Official Development Assistance), should export credits provided. The global food, finance and fuel crises and or only grants be considered food assistance? What about climate change, as well as the ever more protracted nature programme aid for budgetary support or monetisation? There of some internal conflicts are all factors which are putting is an urgent need for clarity in what is becoming a definitional pressure on the international community for a change of morass, not only to provide a basis for a possible new Food focus in food assistance policy and practice.
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