Burkina Faso EMOP

Transcription

1 Burkina Faso EMOP Emergency response to High Food Prices in Burkina Faso main cities Duration: 12 months (1 Jan Dec 09) Number of beneficiaries: 294,000 WFP food tonnage: 4,996 mt WFP food assistance cost: US$12,604,580 Total cost to WFP: US$17,465,991 EXECUTIVE SUMMARY Burkina Faso is one of the poorest countries in the world, ranking 176th out of 177 in the United Nations Development Programme (UNDP) 2007 Human Development Index. The country is confronted with a large-scale nutrition crisis. According to the 2006 multiple-indicator cluster survey (MICS), 23 percent of children under-five are affected by moderate acute malnutrition. Over the past decade chronic malnutrition increased from 31 percent to 39 percent. Nearly two children out of ten die before the age of five in Burkina Faso. A similar deteriorating trend has been observed with respect to maternal health during the same period. The percentage of underweight women (Body Mass Index <18.5) of childbearing age increased from 15 percent to 21 percent. The increase of food and fuel prices has slowed down some informal sector activities affecting the employment opportunities of the poor households, as well as the business of small shopkeepers. A rapid high food prices impact assessment mission, conducted jointly by the Government, the United Nations Country Team (UNCT) and Save the Children (SCF-UK) in late June 2008, concluded that the poorest households are in an extremely difficult situation and have almost exhausted all their coping mechanisms. They are highly exposed to the risk of falling into complete destitution as they rely on shrinking and limited incomes while their only source of food is from market. The International Monetary Fund (IMF) and the World Bank strongly advocate for targeted safety net programs to respond to the current crisis. Cash transfer and/or subsidies for the poorest population groups, particularly in the urban context, were brought up as the most suitable, short-term targeted actions. On 4 July 2008, the Government of Burkina Faso, through the Ministry of Social Affairs sent a formal request to WFP to provide assistance to the populations most affected by the high food prices crisis with a clear focus on the urban households. To respond to the government request and considering that WFP is already actively intervening in rural areas through its protracted relief and recovery operation (PRRO) and country programme (CP), it was decided to geographically concentrate this operation in the country s two largest cities Ouagadougou and Bobo-Dioulasso. While the Government of Burkina Faso through its Ministry of Social Affairs will provide the necessary and continuous assistance to the most destitute caseload (handicapped, elderly, etc.) through the provision of in-kind food aid, WFP assistance will cater for the needs of the very poor and poor households to protect their livelihoods (Strategic Objective 1) and reduce chronic hunger and undernutrition (Strategic Objective 4). Some 30,000 very poor households (about 180,000 individuals) will receive monthly cash transfers to make up for their purchasing capacity s loss. Cash transfers will be provided through vouchers to be exchanged in selected shops against a basket which includes maize, cooking oil and soap. 1

2 Children under-two are perhaps the population group paying the highest cost of this crisis. Their largely inadequate dietary intake (in terms of quality and quantity) makes them highly at risk of undernutrition with irreversible physical and mental development consequences. Therefore, 6-24 months old children, and pregnant women and lactating mothers living in very poor and poor households (about 150,000 individuals) will respectively receive ready-to-use food for young children, such as Plumpy Doz and fortified foods. Given the widely recognized need to introduce safety net programs to address chronic poverty in Burkina Faso, the operation includes the implementation of a solid handover of the urban voucher scheme to the Ministry of Social Affairs. The country office is considering the possibility to obtain a full time secondment of a World Bank staff during the implementation of the emergency operation (EMOP) to facilitate the handover of the urban voucher scheme and its transition towards a wider safety net program fully integrated into the country s PRS (Strategic Objective 5). This objective will be complemented by the implementation of the Purchase for Progress (P4P) project which was submitted for approval. 1. SITUATION ANALYSIS AND SCENARIO(S) (a) The overall context 1. Burkina Faso is one of the poorest countries in the world, ranking 176th out of 177 in the UNDP s 2007 Human Development Index. It is a landlocked country in the Sahel region, highly exposed to desertification, locust invasions, cyclical droughts and floods. Despite a stabilization of the economy and an average GDP growth of 5.8 percent between 1994 and 2003, poverty remains widespread and inequities have increased. In 2007, the economic growth rate fell to 4.2 percent due the decrease of cotton production and prices. 2. The context of massive and pervasive poverty (more than 45 percent live below the poverty line of one dollar per day) and vulnerability exposes the population to a wide variety of crises and constitutes a major handicap impeding efforts to bring a sustainable development. Poverty is mainly the result of the rapid rate of population growth (3.2 percent annually 1 ) and low labour productivity, particularly in the agricultural sector which employs 80 percent of the working population. 3. Since 2007, the construction of buildings, one of the main economic activities in Ouagadougou has slowed down, affecting the employment opportunities of the poor households, as well as the business of small shopkeepers. Similarly, economic activities in the informal sector (mainly pettytrade, service activity and handicraft) which in normal time used to absorb 77 percent of the nonagricultural employment have slowed down as a result of a more general economic decline due to the increase in fuel price. 4. According to the joint assessment, retailers reported a reduction of the quantities traded and purchased by households due to the loss in their purchasing power. All traders are compelled to increase the price of their commodities as a result of the global price increase. Wholesalers are hoarding stocks to mitigate the impact of further price increases. Conversely, retailers and shopkeepers cannot afford to stockpile larger quantities of traded items. Furthermore, some of them are selling on credit in order to maintain their activity. 5. In February 2008, violent demonstrations took place in the country s main cities to protest against high food prices and the loss of purchasing power. (b) The food security and nutrition situation 1 United Nations Statistic division 2

3 6. Even before the increase of food prices, food insecurity was already widespread. About 4.9 million people in rural areas, 49 percent of the rural population, are unable to meet their food requirements, according to the 2003 National Survey on Household Living Conditions. About 38.7 percent of children were stunted in 2003 compared with 29.4 percent in Micronutrient deficiencies, especially iron, was found to affect 92 percent of children and 54 percent of women. 7. According to the 2006 MICS, 23 percent of children under-five are affected by moderate acute malnutrition in Burkina Faso. The fast urban population growth is resulting in a decline of the socio-economic and nutritional situation in the main cities. According to the same study, the prevalence of wasting in the urban areas is 20 percent. 8. Nearly two children out of ten die before the age of five in Burkina Faso. A similar deteriorating trend has been observed with respect to maternal health. The percentage of underweight women (Body Mass Index <18.5) of childbearing age increased from 15 percent to 21 percent during the past decade. 9. The increase of food and fuel prices has slowed down some informal sector activities thus reducing the employment opportunities of the poorest. A rapid high food prices impact assessment mission, conducted jointly by the Government, UNCT and SCF-UK in late June 2008, concluded that these households are highly exposed to the risk of falling into complete destitution as they rely on shrinking, limited incomes and market is their only source to access food. They are in an extremely difficult situation having almost exhausted all their coping mechanisms and resorted to changes in their dietary intake, such as consuming less food and substituting to lower quality foods. 10. According to the West African Economic and Monetary Union s June 2008 report, Burkina Faso s real consumption prices have increased over the past twelve months by 15.1 percent, which is twice the Monetary Union countries average and the highest among the Union s eight countries. 11. Based on Burkina Faso s market information, since December 2007 the price of imported rice has increased by 52 percent. It is estimated that between December 2007 and October 2008, the price of a minimum food basket (including local cereals, pulses, and vegetable oil for the food component and soap for the non-food) has increased by 23 percent. When adding the basic imported commodities such as powder milk and rice, the food basket increased up to 50 percent. Despite a favourable harvest forecast, market prices for maize and sorghum/millet, which are largely produced in Burkina and consumed in the urban areas as rice substitution, are respectively 56 percent and 27 percent higher than a year ago. Meat, vegetable oil, milk, soap have increased by up to 60 percent. The rapid assessment found that many households in the capital city Ouagadougou and in the largest second city Bobo-Dioulasso are left with so little cash resources that they are obliged to buy common items such as soap on credit. 12. Given the sharp impoverishment of the urban households living conditions, the rapid high food prices impact assessment recommended the implementation of an EMOP to assist the poorest and most affected households in Ouagadougou and Bobo-Dioulasso. (c) Scenarios 13. The price of imported commodities (rice, sugar, edible oil) is likely to remain high for the time being. Conversely, the price of local staple foods (maize, sorghum and millet) is expected to decrease as the next harvest is expected to be good. However, this alone will not address the severe deterioration of the poorest urban households food security. Furthermore, the price of fuel is expected to remain high or even to further increase, impacting on transport costs and more generally on the economy, with a high risk of new social unrest. 14. The impact of higher food prices is likely to roll back the modest social and economic improvements of the recent years as the poorest households have reduced what they consider less 3

4 essential spending such as health and education which remain a burden for households with small income and very few job opportunities. 15. Households now go to health centres only in case of extreme need and the use of traditional medicine in urban areas is widespread. Currently, the combination of heavy and continuous rains, poor housing quality and fewer cash resources is resulting in a larger number of malaria cases. 16. The already fragile nutritional and hygiene situation of the most vulnerable is deteriorating. Families have difficulties buying soap and they wash less. Pregnant and lactating women have a less diverse diet than previously. Health care staff reported that a higher number of children were admitted in therapeutic feeding centres; women are extending exclusive breastfeeding over 6 months as they do not have the resources to buy weaning foods for their children. 17. Academic inspectors have noticed a decline in school attendance, as families either can no longer afford the school fees and related expenditure, or need to send children to work. Several parents, whose children are enrolled in private schools because public schools are not available in their neighbourhoods, indicated that they cannot afford any longer to pay school fees. Drop-out rates are expected to increase particularly in the newly urbanized areas where during the past decade, investments in public infrastructures did not occur. 2. POLICIES, CAPACITIES AND ACTIONS OF THE GOVERNMENT(S) AND OTHERS (a) Policies, capacities and actions of the government 18. To respond to the civil unrest, the Government of Burkina Faso introduced a series of temporary measures to mitigate the impact of high food prices such as lifting custom duties and the value added tax (VAT) for the basic imported food commodities, subsidizing sale of locally produced cereals, and establishing an unofficial export ban for cereals. As these measures were expensive, in terms of government income loss, and were not targeted to the poorest, the cost-benefit of this operation turned out to be negative. 19. On the production side, the Government adopted longer term measures aiming at agricultural development and increased rice production while ensuring that farmers will also continue to grow local staple cereals (in particular maize and sorghum) as well as cotton, the country s largest cash crop. 20. The Government of Burkina Faso, particularly the Ministries of Social Affairs and Health, has been extensively involved in the joint high food prices impact assessment mission. As a result, the Ministry of Social Affairs indicated that they will cater for the needs of the most destitute caseload through the provision of in-kind food aid using the network of the welfare centres at the municipality level. Funding from the French Cooperation is likely to be secured for this purpose. 21. As the assessment mission identified two additional groups of households in need of assistance (the very poor and poor), the Ministry of Social Affairs sent on 4 July 2008 a formal request to WFP to provide assistance to the populations most affected by the high food prices crisis with a clear focus on urban households. (b) Policies, capacities and actions of other major actors 22. The donor community, under the leadership of the European Delegation and the African Development Bank, has initiated a dialogue among bilateral and multilateral partners to identify suitable, feasible, short and medium-term actions to be proposed to the Government. 23. Cash transfer and/or subsidies for the poorest population groups, particularly in the urban context, were brought up as the most suitable targeted actions to address the crisis in the short-term. The IMF and the World Bank are strong advocates of targeted safety net programs. As the country never developed a safety net program in the past, the high food prices crisis will provide the opportunity to set up a much needed mechanism of beneficiary selection for a voucher/cash 4

5 transfer program that could eventually be integrated into the Government Poverty Reduction Strategy. 24. The French Cooperation has already mobilized Euro 80,000 to undertake the household data collection necessary for the beneficiary registration of the voucher program in Ouagadougou and Bobo-Dioulasso. The national Red Cross has been tasked with the beneficiary selection and registration which was completed in December The UNCT together with the African Development Bank and the Permanent Interstate Committee for Drought Control in the Sahel (CILSS) 2 has set up a task force to assess the impact of high food and fuel prices in Burkina Faso in order to design a comprehensive joint response. At this stage, WFP EMOP is the first operational measure of its type yet designed at the national level by a multilateral and/or non governmental actor. Some donors have already expressed their willingness to support WFP operation. (c) Coordination 26. The Office for the Coordination of Humanitarian Affairs (OCHA) is hosting a monthly humanitarian contact group meeting where food security and nutrition matters are discussed. In addition, WFP has been working very closely with the Ministries of Social Affairs and Health to design the various stages of this operation. Furthermore, monthly implementation follow-up meetings are planned with both ministries and a Memorandum of Understanding will be signed with them in order to formalize the collaboration with WFP and enhance Government s ownership of the response. 3. OBJECTIVES OF WFP ASSISTANCE 27. Given the beneficiaries needs and the assessment recommendations, this EMOP is designed around three of the five WFP Strategic Objectives. 28. Strategic Objective 1 (Save lives and Protect livelihoods in emergencies) To protect the livelihoods of the "very poor households which are the most affected by the high food prices crisis and currently highly at risk of becoming destitute, WFP will provide assistance through a voucher distribution scheme. Immediate objectives will be to ensure adequate food energy consumption over assisted period for targeted beneficiaries and to reduce (or prevent) the use of negative coping strategies. 29. Strategic Objective 4 (Reduce Chronic hunger and under nutrition) The population group paying the highest price of this crisis are children under-two. Their largely inadequate dietary intake (in terms of quality and quantity) makes them highly at risk of undernutrition with irreversible consequences on their physical and mental development. To prevent the undernutrition of the 6-24 months old children living in the very poor and poor households, a blanket distribution of Plumpy doz or a similar product will take place along with the voucher distribution. The Plumpy doz will also be provided to children under-two living in the destitute families as the food ration provided by the Ministry of Social Affair does not include weaning foods. Furthermore, pregnant women and lactating mothers will receive a six-month period inkind assistance including fortified food commodities during the lean season. The immediate objective will be to reduce and/or stabilize acute malnutrition among targeted children. 30. Strategic Objective 5 (Strengthen the capacities of countries to reduce hunger, including through hand-over strategies and local purchase) The EMOP includes the implementation of a solid safety net handover strategy which will eventually be used by the Government as part of its Poverty Reduction Strategy. This objective will be complemented by the implementation of the P4P project currently ready for approval. 4. BENEFICIARIES AND TARGETING 2 Comité permanent inter-états de lutte contre la sécheresse dans le Sahel (CILSS). 5

6 31. To respond to the government request and considering that WFP is already actively intervening in rural areas through its PRRO and CP, it has been decided to geographically concentrate this operation in the country s two largest cities Ouagadougou and Bobo-Dioulasso. 32. The objectives and the activities of WFP assistance are those recommended by the joint high food prices impact assessment mission. Assistance will target destitute, very poor and poor households. 33. The Government of Burkina Faso through its Ministry of Social Affairs will provide the necessary continuous assistance to the most destitute caseload (disabled, elderly, etc.) through the provision of in-kind food aid. 34. WFP assistance will cater for the needs of the very poor and poor households as they are extremely vulnerable, using detrimental coping mechanisms and prone to fall into destitution. Assistance to these two groups will be two-fold: 1) distribution of vouchers and fortified/ready-touse foods to the very poor; 2) fortified/ready-to-use foods only, for the destitute and for the poor households. 35. Destitute 3 households will receive in-kind food rations from the Ministry of Social Affairs. As these rations do not include complementary foods suitable to under-two children, they will receive the Plumpy doz only if they have children under-two. However, the caseload will be very small as these are normally one-member household. 36. The very poor households are largely female-headed households, renting a 8-10 sq meter housing without latrine. They make a living out of unskilled, irregular daily labor for which they receive a very low income. Children do not go to school and their health access is from traditional healers and medicines bought on the streets. They do not own any asset have a few cardboard boxes filled with personal effects. They are exposed to a very high risk of falling into complete destitution. Through WFP assistance, they will benefit from a cash transfer through unconditional vouchers, a preventive distribution of Plumpy doz for the 6-24 months old children as well as a 1,200 Kcal food basket for pregnant women and lactating mothers. It is estimated that 20,000 of these households are present in Ouagadougou and 10,000 in Bobo-Dioulasso for a total population of about 180,000 individuals of whom 36,000 are children under two, pregnant women and lactating mothers. 37. Poor households are normally male-headed, owning a sq meters accommodation which frequently has a latrine. Although they also receive a low and irregular income as daily workers, these households are characterized by at least two active adults. Their access to health is also very poor, through street medicine or self-medication. They own more personal effects than the very poor, including often a bike, a radio and sleeping mats. In these households, young children are those most at risk of undernutrition. They will benefit from a blanket distribution of Plumpy doz (only the 6-24 months old) in order compensate for the deterioration of their dietary intake. Pregnant and lactating women will receive a six-month in-kind assistance including fortified food items. It is estimated that poor households are about 50,000 in Ouagadougou and 20,000 in Bobo- Dioulasso for a total population of about 560,000 people, 112,000 of whom are children under two, pregnant women and lactating mothers. 3 Destitute are usually one-member household, either disable or elder. 6

7 TABLE 1. BENEFICIARIES BY TYPE OF ASSISTANCE Type of Assistance Men Women Total Vouchers distributions 79, , ,000 Nutrition for 6-24 months old 38,000 38,000 76,000 4 Nutrition for pregnant and lactating mothers 74,000 74, The Burkinabe Red Cross, financially supported by the French Cooperation and technically advised by the French Overseas Research Institute, conducted a massive household registration in order to prepare the beneficiary lists for Ouagadougou and Bobo-Dioulasso. The lists will be jointly reviewed by the Ministry of Social Affairs with WFP and the cooperating partners to double check their reliability and to ensure proper assistance coverage of the three identified household groups. 39. The caseload of moderately undernourished children in the two cities will be assisted through the on-going PRRO , while UNICEF is providing Plumpy nut to severely malnourished children. 5. NUTRITIONAL CONSIDERATIONS AND RATIONS 40. Very poor households food consumption in cities is mainly based on local cereals (maize, millet or sorghum) meals called To. Pulses and rice are more expensive and cannot be afforded any longer (or very seldom). This is also the case for the locally produced cooking oil. Their diet lacks animal proteins, fruits and vegetables. According to surveys conducted by the French Overseas Research Institute (IRD), the very poor households consume less than four food groups per day. Children s diet is extremely monotonous, usually consisting of a cereal-based porridge which is getting more liquid as households are not able to access the same quantity of cereals as before. 41. Cheap, cereal-based meals sold on the street are still widely available although their prices have soared during the last 10 months making them much less accessible to the poorest. These people, as they do not have enough cash to buy on the market the necessary quantity of cereals, condiment and wood to prepare the daily family meal, usually consume street-foods. Several poor households also indicated that they are now compelled to consume these types of foods as a result of the higher cost of wood and charcoal. TABLE 2. DAILY RATION SCALES (g/person/day) Activities Cereals CSB VOil Sugar RUSF Total Daily Kcal Kcal from Protein Kcal from Fat 1) Voucher: Monthly individual transfer (equivalent to) ,002 2) Nutrition: 6 24 months old 3) Nutrition: pregnant and lactating mothers % 58% ,200 15% 26% 4 About 18,000 children are also beneficiaries under the voucher distribution component. 5 About 18,000 pregnant and lactating women are also beneficiaries under the voucher distribution component. 7

8 6. IMPLEMENTATION ARRANGEMENTS a) Vouchers program 42. The objective of the program is to protect the already meagre livelihood of the most affected households by providing the differential value between their purchasing power before and after the crisis. In other words, the value of the monthly vouchers is equivalent to their purchasing power loss and should allow them to maintain a standard of living similar to the one before the crisis thus preventing the use of negative coping mechanisms. The calculation of their purchasing capacity s loss was based on the combination of the increased cost of a basic food and non-food basket (maize/sorghum, cooking oil, pulses and soap) and the decreased income due to fewer job opportunities since December It is estimated that the cost of the basic food and non-food basket has increased by percent and that the income loss due to the reduced job opportunities is likely to be 20 percent. The combined loss in their purchasing capacity would thus be CFA 6 1,500 per person/month (US$3.5). It is estimated that the current average household income of the targeted voucher beneficiaries is about 20,000 CFA (US$47) per month. As their typical household size is six members, the monthly cash transfer will correspond to 45 percent of their current monthly income. 44. Given the very poor hygiene situation of the targeted population, the magnitude and variety of the problems they are confronted with since market prices have started to soar, and in light of the joint assessment recommendations, it has been decided to include soap as part of the monthly voucher. Considering the commodities price trend and the prospect of a very good harvest, the price for local cereals is expected to drop back to 2007 levels. With CFA 1,500/month one can buy 8 kg of maize, 250 g of cooking oil and half a bar of soap (about 200 g). All these items are locally produced and regularly supplied to shops. 45. In order to ensure as much as possible that the cash transfer will be used to cover food needs, beneficiaries will receive monthly vouchers to buy a limited number of food items (locally produced cereals and cooking oil). However, beneficiaries will have the freedom to adjust the quantities of the items they are entitled to access according to their needs. 46. Beneficiaries will be able to exchange their vouchers against selected food items from the registered grocers within a predefined time period. The grocers will redeem the vouchers from the cooperating partners and/or the Bank. The cooperating partners and WFP will closely monitor the grocers to ensure that they do not undervalue vouchers and the recipients are able to procure the same food basket as they would have procured with cash. 47. WFP is currently discussing standard Field Level Agreements (FLAs) with Save the Children, Catholic Relief Service, the Burkinabe Red Cross and Oxfam for the implementation of the operation. The FLAs will be amended to reflect the specific requirements of the implementation of a voucher program including system to select shops, content of the agreement with shops, vouchers design and serial numbers system, vouchers printing and distribution, control measures and monitoring system, financial arrangements, reporting, etc. This will be based on the lessons learnt from other WFP country offices and in line with WFP interim guidance on cash transfers pilot projects. A special attention will be given to control measures. 48. Cooperating partners will use beneficiary lists established by the Burkinabe Red Cross and jointly cleared by the Ministry of Social Affair and WFP for the final registration of the voucher beneficiaries. Monthly vouchers will specify to the family size, the place of residence, the selected shop where households can exchange the voucher and the name of the household head. Vouchers will be issued in the name of the woman within each household; exceptions will be made for eligible male-single parent households. 6 Communauté Financière d Afrique 8

9 49. WFP will sign a Memorandum of Understanding with the Ministry of Social Affairs for all matters related to the program including beneficiary sensitization, program monitoring, evaluation and hand-over. b) Mother-and-child health (MCH) with blanket Plumpy Doz distribution for 6-24 months old children and fortified food basket for pregnant and lactating women 50. WFP has already started discussions and will sign a Memorandum of Understanding with the Ministry of Health to distribute, through the primary health care facilities in Ouagadougou (50) and Bobo-Dioulasso (25), Plumpy Doz for the 6-24 months old children for the duration of the operation and of a fortified food basket (improved CSB, vegetable oil and sugar) for pregnant women and lactating mothers during the lean season. 51. The beneficiaries under this activity will be women and mothers of 6-24 months old children targeted through the voucher program and those identified to belong to the poor household group. Every two weeks children will receive a Plumpy doz ration of about 700 g whereas pregnant and lactating women will receive a monthly ration consisting of 7.5 kg of improved CSB, 600 g of vegetable oil and 300 g of sugar. According to the nutrition department and the French Overseas Research Institute, the distribution of Plumpy doz and fortified foods through the health centres should act as an incentive for women to make use of health facilities and will give the opportunity to the health personnel to perform a regular monitoring of the child development. 52. WFP and the Ministry of Health will organize a simple information campaign made of posters, leaflets and pictures in order to clearly explain to mothers the critical and life long importance of this assistance for their babies. It will also insist on the fact that the ration of Plumpy doz should not be used for other purposes or given to other children in the family. 53. WFP is already working with these primary health care centres within the framework of PRRO Hence, issues related to storage, stock management and transportation to the centres have already been addressed. Plumpy Doz can only be procured in France and improved CSB in South Africa. Therefore, sea freight and landside transport, storage and handling (LTSH) costs (ex-port of discharge to Burkina Faso) will be reflected in the EMOP budget. 7. PERFORMANCE MONITORING 54. Standard corporate indicators and project-specific indicators related to the outcomes, outputs and processes will be collected and analyzed by the country office s monitoring and evaluation unit (see LogFrame in Annex III). A results-based management monitoring and evaluation tool is being used by the country office to provide useful measurements of program results for management. Enhanced Commitments to Women will be included in all monitoring and evaluation activities. 55. A market analysis geared to providing operational guidance will be undertaken prior to the implementation of the program. Vulnerability analysis and mapping (VAM) studies will analyze and track changes in the vulnerability and coping mechanisms of beneficiaries. This will be complemented by the joint cooperating partners monitoring reports and other necessary surveys and secondary data reviews. 56. A mid-term assessment of the food security situation and evaluation of the program will take place in March 2009 with the technical support of the French Overseas Research Institute to measure the impact of the response. The mid-term evaluation of the program will also be used to decide on how to continue the assistance during the lean season, from May/June to September 2009, as this could shift towards conditional cash transfer. 9

10 8. HANDOVER STRATEGY 57. The vouchers component of the operation will provide the opportunity to set up the foundations of an innovative safety net program for urban food-insecure households affected by the high food prices crisis. 58. This type of assistance is consistent with the Burkina Faso s PRS and strongly supported by the International Monetary Fund, the African Development Bank and the World Bank as it can eventually be expanded and/or replicated by the Government to address chronic poverty. UNDP and the French Cooperation have already expressed their strong interest in supporting the project handover. 59. The timeframe for WFP exit strategy will be based on government guidance and on the food security situation. However, the country office is considering the possibility to obtain the full time secondment of a World Bank staff during the implementation of the EMOP to facilitate a gradual handover of the urban voucher scheme to the Ministry of Social Affairs and its transition towards a wider safety net program fully integrated into the country s PRS. 60. Furthermore, as Burkina Faso is one of the first pilot countries implementing the P4P initiative, special attention will be given to make linkages between the two operations, in particular that food items procured with the vouchers are all produced locally. 61. Strong partnerships and government ownership of the response will play a critical role in facilitating the implementation of the handover strategy. In this regard, the country office plans to organize three consensus building" workshops to increase the level of engagement with all the relevant stakeholders. These workshops will be held at the beginning of the operation, upon completion of the mid-term review (to adjust activities if needed and to agree on the way forward) and upon completion of the activities. They will focus on the objectives, modus operandi, achievements and handover strategy of the operation. 62. The World Bank staff seconded to the country office will play a critical role in engaging all stakeholders through the consensus building workshops but also throughout the whole implementation process, by liaising actively with the African Development Bank, the Bretton Woods Institutions and the line Ministries in charge of social welfare. 9. SECURITY CONSIDERATIONS 63. The whole country of Burkina Faso is ranked with zero security phase by the United Nations Department of Safety and Security (UNDSS). However standard MOSS measures are in place in the WFP premises, sub-offices and warehouses where the Plumpy doz will be stored. The use of vouchers is a not a risk multiplier element 1

11 10. RECOMMENDATION 64. The Executive Director and Director-General of FAO are requested to approve the proposed Emergency Operation in Burkina Faso Emergency response to High Food Prices in Burkina Faso main cities : EMOP APPROVAL... Josette Sheeran Dr Jacques Diouf Executive Director Director-General of FAO World Food Programme UN Food and Agriculture Organization Date: Date:. 1

12 ANNEX I A PROJECT COST BREAKDOWN ANNEX I B DIRECT SUPPORT REQUIREMENTS ANNEX II LIST OF ACRONYMS ANNEX III LOGICAL FRAMEWORK SUMMARY ANNEX IV MAP ANNEX V DETAILED PROJECT BUDGET PLAN ANNEX VI PROJECT STATISTICS ANNEX VII RATIONS SHEET ANNEX VIII VOUCHERS OPERATIONAL GUIDELINES ANNEX IX LTSH MATRIX ANNEX X PROJECT BUDGET ESTIMATE 1

13 ANNEX IA WFP PROJECT COST BREAKDOWN COSTS A. Direct operational costs Quantity (mt) Average cost (US$) per mt Value (US$) Cash in lieu of commodities 13, ,670,000 Plumpy Doz 1,267 3,800 4,814,600 CSB 3, ,731,600 Vegetable Oil 266 1, ,200 Sugar , Total vouchers and commodities 18,288 12,604,580 External transport 527,354 Landside transport ITSH Total LTSH 866,130 Other direct operational costs 1,280,000 Total direct operational costs 15,278,064 B. Direct support costs (see Annex IB table below for details) 1,045,292 C. Indirect support costs (7 percent of total direct costs) 1,142,635 TOTAL WFP COSTS 17,465,991 2

14 ANNEX IB DIRECT SUPPORT REQUIREMENTS (US$) Staff International professional staff 444,510 National professional officers 37,400 National general service staff 99,200 Temporary assistance UNV 54,183 International Consultants 100,000 National Consultants 50,000 Staff duty travel 45,000 Staff training and development 4,000 Subtotal 834,292 Office expenses and other recurrent costs Rental of facility 6,000 Utilities (general) 12,000 Office supplies 8,000 Communication and IT services 35,000 Insurance 5,000 Equipment repair and maintenance 13,000 Vehicle maintenance and running cost 23,500 Other office expenses 13,800 United Nations Organizations Services 20,000 Subtotal 136,300 Equipment and other fixed costs Furniture, tools and equipment 14,000 Vehicles 26,000 TC/IT equipment 34,700 Subtotal 74,700 TOTAL DIRECT SUPPORT COSTS 1,045,292 3

15 ANNEX II - LIST OF ACRONYMS CFA CILSS CP CSB EMOP FAO FLA GDP IMF IRD LTSH M&E MOSS OCHA PRRO PRS P4P SCF-UK SO UN UNCT UNDP UNDSS UNICEF US$ VAM VAT WFP Communauté Financière d Afrique (currency) Permanent inter States Committee for drought control in the Sahel Country Programme Corn Soya Blend Emergency Operation Food and Agriculture Organization of the United Nations Field Level Agreement Gross Domestic Product International Monetary Fund Institut de Recherche et Développement Landside Transport Storage Handling Monitoring and evaluation Minimum Operating Security Standards Office of the Coordination of Humanitarian Affairs Protracted relief and recovery operation Poverty Reduction Strategy Purchase for Progress Save the Children Fund - UK Strategic Objective United Nations United Nations Country Team United Nations Development Programme United Nations Department of Safety and Security United Nations Children s Fund United States Dollar Vulnerability analysis and mapping Value Added Tax World Food Programme 1

16 ANNEX III - Log Frame Summary of Burkina Faso: EMOP Emergency response to High Food Prices in Burkina Faso main cities Results-Chain (Logic Model) Performance Indicators Risks, Assumptions STRATEGIC OBJECTIVE SO1: Save lives and Protect livelihoods in emergencies (Tool: Targeted food assistance though a vouchers scheme system for very poor households in Ouaga and Bobo) Outcome 1 Adequate food energy consumption (kcal) over assisted period for targeted beneficiaries is assured Output 1.1 Timely distribution of food vouchers to targeted households Outcome 2 Reduced adoption of negative coping strategies Proportion of beneficiary household expenditures devoted to food Dietary Diversity: Targeted household consume at least 5 food groups per day Actual number of beneficiaries receiving vouchers (planned vs. actual) Value of vouchers redeemed (value of vouchers issued vs. value of voucher redeemed) Changes in coping strategies as measured by CSI-type data or from qualitative data 1

17 STRATEGIC OBJECTIVE SO 4: Reduce Chronic hunger and undernutrition (Tool: Preventive blanket distribution of Plumpy doz to 6-24 months old children from destitute, very poor and poor households. Seasonal preventive distribution of supplementary rations to pregnant women and lactating mothers in Ouaga and Bobo). Outcome 1 Prevent increasing acute malnutrition among targeted children Output 1.1 Timely provision of sufficient nutritious food in sufficient quantities for targeted children (6-24 months) Prevalence of GAM among children under two is < 10% (assessed using weight for height) Actual beneficiaries receiving RUSF as a percentage of planned beneficiaries. Actual MT of RUSF as a percentage of planned distributions. 2

18 STRATEGIC OBJECTIVE SO 5: Strengthen the capacities of countries to reduce hunger, including through hand-over strategies and local purchase (Tool: Assist the Ministry of Social Affairs - together with the WB and bilateral donors - to set up a safety net system based on vouchers distribution for food and basic hygiene items as an effective and efficient tool for poverty reduction) Outcome 1 Increased capacity to reduce hunger through a comprehensive safety net program Output 1.1 Provision of capacity building assistance to the Ministry of Social Affairs (and National Red Cross) Capacity building score (as per Strategic Results Matrix/ WFP Indicator Compendium) Number of counterpart staff trained by WFP with WB support on safety net programs design, targeting and management. Numbers of areas of technical services and cooperation where capacity-building activities were provided 3

19 ANNEX IV - MAP 1