Towards A Food-Secure Asia and Pacific

RAP PUBLICATION 2004/06
TOWARDS A FOOD-SECURE ASIA AND PACIFIC
REGIONAL STRATEGIC FRAMEWORK

FOR ASIA AND THE PACIFIC
Second edition
FAO member nations in the Asia-Pacific region (46)
Afghanistan Myanmar
Australia Nauru
Bangladesh Nepal
Bhutan New Zealand
Cambodia Niue
China Pakistan
Cook Islands Palau
Democratic Peoples Republic of Korea Papua New Guinea
Fiji Philippines
France Republic of Korea
India Samoa
Indonesia Solomon Islands
Iran, Islamic Republic of Sri Lanka
Japan Tajikistan
Kazakhstan Thailand
Kiribati Timor-Leste
Kyrgyzstan Tonga
Lao Peoples Democratic Republic Turkmenistan
Malaysia Tuvalu
Maldives United States of America
Marshall Islands Uzbekistan
Micronesia, Federated States of Vanuatu
Mongolia Viet Nam
T OWARDS A F OOD-SECURE A SIA AND P ACIFIC
R EGIONAL S TRATEGIC FRAMEWORK FOR A SIA AND THE P ACIFIC
RAP PUBLICATION 2004/06
TOWARDS A FOOD-SECURE ASIA AND PACIFIC

REGIONAL STRATEGIC FRAMEWORK
FOR ASIA AND THE PACIFIC
Second edition
FOOD AND AGRICULTURE ORGANIZATION OF THE UNITED NATIONS

REGIONAL OFFICE FOR ASIA AND THE PACIFIC
Bangkok, 2004
i
T OWARDS A F OOD-S ECURE A SIA AND P ACIFIC
R EGIONAL STRATEGIC F RAMEWORK FOR A SIA AND THE P ACIFIC
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FAO Regional Office for Asia and the Pacific, Maliwan Mansion, 39 Phra Atit Road, Bangkok
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FAO 2004
First edition: May 2004

Second edition: October 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
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ii
PREFACE
The Strategic Framework for FAO 2000-2015 was adopted in 1999 to help member countries reach the
World Food Summit (WFS) target of halving the worlds undernourished by 2015. Guided by the
Global Strategic Framework (GSF), the Organizations rolling medium-term plans and successive biennial
programmes of work transformed agenda into action.
Four years into the GSF, it was felt that member countries of Asia-Pacific could be even better guided
by a Regional Strategic Framework (RSF). Such an RSF would not be separate from the GSF, but
would translate the GSF into regional actions, emphasizing the character, needs and trends of the
region. It is therefore essentially an integral part of the GSF.
With this in mind, the FAO Regional Office for Asia and the Pacific (RAP) embarked on a participatory
process in April 2003 to forge an RSF for the Asia-Pacific region. In carrying out the work,
interdisciplinarity and a broad-based participatory approach were stressed, as well as the need to broaden
partnerships and alliances, and leverage resources.
We sounded out national counterparts, informed our regional partners and held extensive, in-depth
discussions within RAP in a stepwise fashion to: assess major issues and trends; recognize challenges;
identify priority areas; analyze strengths, weaknesses, opportunities and threats; formulate an
implementation strategy; and prepare for monitoring and evaluation.
The product of this year-long effort is a document reiterating FAOs global vision and mission in
sustainable agriculture and food security, and articulating the elements of strategy that FAO and its
member countries in Asia and the Pacific might adopt to realize them.
Six thematic programme areas were identified to guide the Asia-Pacific region in national and collective
actions towards achieving the WFS target. These are: restructuring of the agricultural sector;
decentralizing governance in support of sustainable development; reducing vulnerability to disasters;
promoting effective and equitable management, conservation and sustainable use of natural resources;
strengthening biosecurity; and alleviating poverty in rice-based livelihood systems. Within each thematic
area, the general rationale, goal, objectives, strategic elements, outcomes and impact indicators were
constituted on the basis of the most pressing common challenges facing the Asia-Pacific region and
our collective capacities to meet them.
It is important for the reader to understand at the outset what this document is and what it is not. The
RSF is basically a set of priority areas for interdisciplinary action over and above RAPs comprehensive
regular and field programme activities. It purports to give a guide for RAP to work with partners and
regional member countries on some or all of the priority areas in pursuance of their own national
agricultural development strategies.
The RSF is not a prescribed strategy for Asia and the Pacific. Nor are its six thematic areas the only
ones that RAP will be collaborating on with member countries and regional and international partners,
now or in the foreseeable future. The readers policy-makers and senior executives in agriculture are
expected to take whatever is deemed useful to their unique country situations and for their own purposes.
RAP stands ready to work with partners, particularly with member countries individually and collectively,
on these six priority areas for interdisciplinary action. We are confident of our capacity to mobilize
the multidisciplinary expertise and attract the necessary resources within and outside the Organization
to make a difference in sustainable agriculture and rural development for food security in the region
through interventions on these priority areas.
He Changchui
Assistant Director-General and
FAO Regional Representative for Asia and the Pacific
iii
TABLE OF CONTENTS
Page
PREFACE ............................................................................................................................................. iii
1. PURPOSE OF THE REGIONAL STRATEGIC FRAMEWORK ..................................... 1
2. REGIONAL ISSUES AND LOCAL CONCERNS IN ASIA AND THE PACIFIC ......... 3
3. THEMATIC PROGRAMME AREAS ................................................................................... 8
3.1 Agriculture restructuring under changing market and trade conditions ........................ 8
3.2 Decentralizing governance in support of sustainable development .............................. 11
3.3 Reducing vulnerability to disasters .................................................................................. 13
3.4 Promoting effective and equitable management, conservation and sustainable use of
natural resources ............................................................................................................... 16
3.5 Strengthening biosecurity for food security and agricultural trade ............................... 19
3.6 Alleviating poverty in rice-based livelihood systems .................................................... 22
4. IMPLEMENTATION STRATEGY ........................................................................................ 26
4.1 Comparative advantage of FAOs regional office and emerging opportunities ........... 27
4.2 Challenges ......................................................................................................................... 28
4.3 Monitoring and evaluation ............................................................................................... 29
v
1. PURPOSE OF THE REGIONAL STRATEGIC FRAMEWORK
Global leaders gathered at the headquarters of the Food and Agriculture Organization of the United
Nations (FAO) in Rome for the first World Food Summit (WFS) in 1996 and pledged their commitment
to reduce the worlds hungry by half within two decades. At the follow-up WFS: five years later in
2002 they assessed progress, planned policy improvements and reaffirmed their commitment made at
the WFS.
The tasks urgency was reiterated at the UN Millennium Summit in 2000. Among the eight Millennium
Development Goals, eradicating extreme poverty and hunger was given top priority.
Earlier, at the 30th Session of FAOs Conference in November 1999, member countries approved the
Organizations first ever Strategic Framework. This document guides FAOs activities aimed at, among
other objectives, helping member countries reach the WFS target of halving the number of
undernourished by 2015. The Organizations rolling medium-term plans and successive biennial
programmes of work and budget are directed at accomplishing this priority task.
FAOs Corporate Strategic Framework 2000-2015 supports the Organizations fundamental role, namely
to promote the common welfare by furthering separate and collective actions for the purpose of:
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 humanitys freedom from hunger.
In addressing these challenges, 5 corporate strategies and 12 strategic objectives were defined (Box 1).
These strategies address cross-organizational issues in carrying out FAO programmes designed to ensure
excellence, enhance cooperation among different disciplines, broaden partnerships and alliances, improve
management processes, leverage resources and communicate FAOs messages.
The thrust of FAOs Strategic Framework is basically global and needs to be adapted to the specific
characteristics and diverse needs of the vast complex region that makes up Asia and the Pacific. For
this purpose, the FAO Regional Office for Asia and the Pacific (RAP) has drawn up a Regional Strategic
Framework (RSF): An Asia-Pacific guide specifically addressing the regions persistent problems of
poverty and hunger, despite its rapid political, social and economic progress.
Under the RSF, RAP offers technical assistance to its member nations, provides advice on policy
development, helps in building capacities and institutions, and facilitates transfer of knowledge and
technologies.
1
Box 1: FAOs strategies to address members needs
Strategy A: Contributing to the eradication of food insecurity and rural poverty
A.1 Sustaining rural livelihood and more equitable access to resources

A.2 Access of vulnerable and disadvantaged groups to sufficient, safe and nutritionally adequate
food
A.3 Preparedness for, and effective and sustainable response to, food and agricultural emergencies
Strategy B: Promoting, developing and reinforcing policy and regulatory frameworks for
food, agriculture, fisheries and forestry
B.1 International instruments concerning food, agriculture, fisheries and forestry, and the
production, safe use and fair exchange of agricultural, fishery and forestry goods
B.2 National policies, legal instruments and supporting mechanisms that respond to domestic
requirements and are consistent with the international policy and regulatory frameworks
Strategy C: Creating sustainable increases in the supply and availability of food and other
products from the crop, livestock, fisheries and forestry sectors
C.1 Policy options and institutional measures to improve efficiency and adaptability in production,
processing and marketing systems, and meet the changing needs of producers and consumers
C.2 Adoption of appropriate technology to sustainably intensify production systems and to ensure
sufficient supplies of food and agricultural, fisheries and forestry goods and services
Strategy D: Supporting the conservation, improvement and sustainable use of natural

resources for food and agriculture
D.1 Integrated management of land, water, fisheries, forest and genetic resources
D.2 Conservation, rehabilitation and development of environments at greater risk
Strategy E: Improving decision-making through the provision of information and assessments

and fostering of knowledge management for food and agriculture
E.1 An integrated information resource base, with current, relevant and reliable statistics,
information and knowledge made accessible to all FAO clients
E.2 Regular assessments, analyses and outlook studies for food and agriculture
E.3 A central place for food security on the international agenda
2
2. REGIONAL ISSUES AND LOCAL CONCERNS IN ASIA AND

THE PACIFIC
Asia and the Pacific today account for 58 percent of the global population. About 70 percent of the
worlds rural population live in this region. Yet per capita arable and permanent cropland availability
in the region is only 0.16 ha, compared to 0.37 ha in the rest of the world. An estimated 545 million
people in the region are undernourished, comprising 65 percent of the worlds ill-fed. Women and
children, ethnic minorities and persons with disabilities constitute a disproportionately high percentage
of the vulnerable.1
Despite limited natural resource endowments and its massive, mainly youthful, population base, Asia
and the Pacific made substantial inroads in eradicating poverty and food insecurity during the last
three decades. Since 1945, the regions economy grew faster than any other region. Literacy rates
have considerably increased, and improved nutrition and public health programmes have raised life
expectancies by over a generation in only half a century.
These past achievements form the context for new advances, many in critical development areas:
extensive education and agricultural research networks; developments in information and communications
technologies; modern biotechnology; social innovations in development including resource
decentralization; foreign direct investment; growing regional and global economic linkages; and
international trade.
Broader citizen participation in decision-making and governance is reflected in dynamic non-governmental

organizations (NGOs), increased womens suffrage and decision-making processes open to
multistakeholder participation. Information flows more freely in the media and within civil societies.
Historically, the region has been the centre of agricultural advances. Two of the four cradles of
agriculture emerged in the region. Domestication of farm animal and plant species dates back many
millennia. Aquaculture was first developed in Asia. And, more recently, the Green Revolution in rice
began here. Today, over 50 percent of the worlds industrial crops are produced in the Asia-Pacific
region and production continues to expand.
Enabling policy and economic environments have led to many success stories, including unique rural
development models: from agro-industrial entrepreneurship, cooperatives, and rural financial systems
to farmer field schools in integrated pest management.
Against this rapid progress there have been setbacks due to man-made or natural disasters. The
~ events brought widespread devastating droughts. The Asian economic crisis slowed growth in
El Nino
several countries and affected the livelihoods of millions of people. The severe acute respiratory
syndrome (SARS) epidemic in 2003 and the avian influenza outbreaks in Asia in 2004 caused enormous
economic losses and threatened human health.
Many factors in the region affect its ability to achieve sustainable food security for all. Ensuring
access to food for the hungry and poor will persist as a major challenge within the strategic time
horizon towards 2015. Identification and analysis of the important trends in the agricultural sector
1
The statistical data refer to the FAO member countries in the Asia-Pacific region (as listed on the inside front cover page)
excluding France and the United States of America. The estimate on undernourished people excludes countries with
no available data (Bhutan, Cook Islands, Fiji, Kiribati, Maldives, Marshall Islands, Micronesia, Nauru, Niue, Palau, Samoa,
Solomon Islands, Timor-Leste, Tonga, Tuvalu and Vanuatu). The data are taken from the FAOSTAT database as of
September 2004 (http://faostat.external.fao.org) and FAOs flagship publication The State of Food Insecurity in the World
2003 (http://www.fao.org/SOF/sofi/index_en.htm).
3
likely to have the greatest impact on achievement of sustainable agriculture and rural development are
outlined below.
The link between population growth and poverty remains strong, especially among the most deprived.
About two-thirds of the worlds 1.2 billion absolute poor live in this region. Continuing improvements
in public health programmes and education will result in further population increases, now estimated
to reach nearly four billion by 2015. In addition, rising living standards and consumer expectations
will impose ever-higher demands on the regions already strained natural resource base.
Out-migration of young males and the skilled has led to the greying and feminization of farms and
fishing villages rural communities peopled mainly by the elderly and women. Other demographic
trends also play a key role in vital developmental and environmental issues, including: formal education,
HIV/AIDS and rural health, urbanization and unemployment.
Subsistence-oriented agriculture is in transition as industrialization and commercialization increase.

The needed growth in agricultural production must come from intensification and wider use of modern
technology. Capacity building and investment in natural resource conservation and technology transfer
are, as a consequence, rising in priority. As a result, intervention strategies and requests for external
assistance are likely to increase, especially in: biotechnology, efficient water use, integrated pest
management, nutrient and weed management, food safety, on-farm diversification, agribusiness and
marketing.
Asian agriculture remains highly labour intensive, but the growth of industries and commerce is drawing
the talented and trained to urban centres, leaving the unskilled in rural areas. The employment and
integration of (surplus) rural workers into modernizing economies requires sustained skill development
built around comprehensive human resource development programmes.
The incidence and impact of disasters are increasing. Historically, the region suffers from
a proportionally larger share of the worlds catastrophic natural and man-made disasters. These range
from wild fires, cyclones, landslides, floods and drought to transboundary animal and plant pests and
diseases, war, civil unrest and economic crises. Both floods and droughts cause the bulk of losses in
agriculture, exceeding over US$90 billion yearly worldwide.
Disasters inflict a toll on people, property and economies, especially on agriculture, the rural poor and
small farmers; the impact of avian influenza outbreaks is a typical example. Economic losses are
increasing as infrastructure expands and populations grow in disaster-prone and high-risk areas, often
avoided in the past.
There is increasing recognition of the need for concerted regional action on disaster management and
mitigation in the food and agriculture sector. Such regional cooperation should be aimed at strengthening
national capacity in managing the full disaster cycle of prevention, preparedness, early warning, needs
assessment, relief, rehabilitation, reconstruction and sustainable recovery. Building resilient rural
communities and introducing improved agricultural practices will be crucial for cushioning the impact
of disasters.
A livestock revolution is reshaping the industry. Asia and the Pacific account for the largest animal
population worldwide. The region also possesses the biggest pool of farm animal genetic resources.
Owing to consumer-driven demand, meat and milk production grew at 5 percent while egg output
expanded at 7 percent per annum in the 1990s. This contrasts with 1.4 percent and 0.9 percent
respectively for the rest of the world. If this advance is sustained, the regions livestock sector has the
potential to spearhead sustainable agriculture and rural development in the decade to 2015.
4
Unsustainable production practices in the livestock sector, though, have resulted in serious environmental
degradation stemming primarily from inadequate livestock policies and the faulty application of new
technologies, particularly in intensification, feeding and disease control.
Moreover, expanding international trade of livestock and livestock products and growing international
travel have sharply increased the risk of disastrous pest outbreaks and transboundary diseases, including
zoonotic diseases. Effective prevention and progressive control of transboundary animal diseases at
regional and international levels are urgently needed.
Policy measures to gradually reduce animal production and processing in areas with high animal
concentrations and waste loads need to be adopted. Approaches that encourage mixed farming and
integrated crop-livestock production systems in rural areas should be encouraged.
The high pressure on forest resources remains a concern. In the regions tropical countries, loss of
natural forests continued at a rate of around 2.5 million hectares annually between 1991 and 2000.
Today, about 28 percent of the regions land area retains forest cover, equivalent to only a quarter of
a hectare of wooded land per person the lowest rate for any region.
One of the most significant trends has been the shift from exploitation of natural forests towards
development and use of forest plantations. Asia and the Pacific lead the world in tropical forest
plantation development. During the 1990s, the forest plantation area increased by 3.5 million hectares
annually, which is equivalent to 79 percent of the global growth rate.
Throughout the region, foresters are facing calls for sustainable forest management while, at the same
time, government budgets for forest administrations are falling and forest product prices are in decline.
In view of this, financing the implementation of sustainable forest management has become a major
challenge and is receiving increased attention by policy-makers and forest managers at the local, national
and international levels. In recent years, an increasing number of governments throughout the region
have also embarked on decentralization and devolution to empower local communities, local governments
and civil society organizations in managing their own affairs in forestry. This trend is driven, in part,
by a desire to enhance the roles of civil society as a partner of government in supporting rural
development and natural resource management. The shift has also been fuelled by an increasing number
of conflicts between the state and local people, widespread illegal activities and the recognition that
many forest departments have neither the capacities nor the finances to deal with the multifaceted
requirements of modern forest management and the contributions forestry can make to poverty reduction.
Aquatic resources are under intense pressure. Asia and the Pacific account for 55 percent of the
worlds fish catch, but a worldwide decline in fisheries production has had apparent negative trends in
Asia and the Pacific. Almost two-thirds of the major fish species are either fully exploited or
overexploited. To maintain production volume, fishers now capture more trash fish. This slump
impacts the poorest who are often highly dependent on fish as a major source of animal protein.
~ and other weather aberrations
Aside from destructive fishing, like use of dynamite and poison, El Nino
affect the industry. High technology gear is efficient but can, if not effectively regulated, damage
fishing grounds severely.
Conversely, the region produces 90 percent of the worlds aquacultural output, representing the greatest
diversity of species and systems. The growing global trade in fisheries products makes this a growth
area, but problems are emerging owing to environmental impacts and increasing trade barriers.
Management and governance of fisheries resources are often weak or non-existent. The importance of
aquatic resources and other water ecosystem products has not yet been fully realized and given the
priority it merits in policy and programmes.
5
Water scarcity and land degradation are worsening. Over 28 percent of the regions landscape is
severely degraded and, though the region appears well endowed with water resources, its internal
renewable water resources are only about half the worlds average.
Over-exploitation of water and land degradation is aggravated by the lack of clearly defined property
rights and vague institutional arrangements. A growing number of industries and residential users
compete for limited water supplies. Shortages have triggered conflicts, affecting agriculture.
Increasing cropping intensity in agriculture, livestock and aquaculture intensification, and industrialization
have also led to land degradation, pollution and the compounded risk of pests and diseases.
This stress is reflected in other problems: from widespread topsoil erosion and desertification,
waterlogging, salinization of aquifers, agricultural pollution of aquifers and water bodies to eutrophication
from high levels of nitrogen use and even loss of biodiversity. These developments threaten agricultures
sustainability. Of particular concern are their long-term impacts on the regions ability to feed itself.
Introduction of improved agricultural practices and environmental accounting are of special relevance.
So is community as well as private sector participation in resource management. In this regard, there
is growing evidence of the benefits brought about by the devolution of authority and funds to support
rural development. Such participatory approaches will accelerate appropriate on-farm technology
adoption.
Information and communications technologies are under-utilized. Agricultures ability to respond

to the demand for sustainable production will increasingly rely on its growth as a science and
information-based sector. By 2015, Asia and the Pacific will, for example, witness the emergence of
biotechnology as a contributing factor to sustainable production in developing countries.
Tapping such potentials will depend on strengthening currently limited capacities in information and
communications technologies (ICTs). Failure to act decisively may further widen the digital divide
between rural and urban populations, as well as the so-called molecular gap between the South and
North. Most public sector agencies still neglect adapting ICTs to disseminate the results of research
and development more rapidly and widely.
Globalization is reshaping the regions trade and investment landscape. As market integration across
countries advances, food safety and nutrition standards will require increased attention. Governments
are called upon to facilitate an enabling environment for the whole agricultural production and marketing
chain to encourage much needed investments in rural areas.
Amidst rapid change, national governments need to revise development strategies and policies and
restructure agriculture towards market-driven production. In addition, many countries in the region
suffer from weak institutions at the local level. This constraint is most apparent in farmers organizations,
rural credit and finance, and marketing systems. It also strains the traditional safety-nets of food-insecure
households.
International organizations are pressed in various fora to increase efforts to help create a level playing
field in the international trade of agricultural products for developing countries. Developing countries
have stressed the urgent need for building institutions and human capacity directed at gains in
productivity, sustainability and market access.
The need for concerted action at subregional and regional levels to develop the institutional infrastructure
for sustainable agriculture and rural development has become more pronounced. This trend will impose
significant changes in the roles of government, NGOs, civil society organizations and farmers
organizations, as well as in the mechanisms used by international organizations as service providers.
6
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.
7
3. THEMATIC PROGRAMME AREAS
To lead the region in addressing the issues and responding to the challenges facing the Asia-Pacific,
i.e. to substantially reduce the number of food-insecure people and to assist member countries in their
efforts to develop the agricultural sector while protecting the regions natural resource base, the work
of the FAO regional office will be driven by six thematic programme areas. These programme areas
will guide FAOs work in the region until 2015 and help in realizing its vision and mission.
Vision
A food-secure Asia-Pacific region
Mission
To help member countries halve the regions undernourished by 2015 by raising agricultural
productivity and alleviating poverty while protecting the regions natural resource base
Thematic programme areas
1 Agriculture restructuring under changing market and trade conditions

2 Decentralizing governance in support of sustainable development
3 Reducing vulnerability to disasters
4 Promoting effective and equitable management, conservation and sustainable use of natural
resources
5 Strengthening biosecurity for food security and agricultural trade
6 Alleviating poverty in rice-based livelihood systems
3.1 Agriculture restructuring under changing market and trade conditions1
3.1.1 Rationale
Global trends and changing market and trade conditions call for appropriate responses in the structure
and organization of the agriculture and rural sector to meet the challenges posed by persistent food
insecurity.
Impressive social gains have been accompanied by economic and agricultural growth in Asia and the
Pacific over the past three decades. Population growth has declined in many developing countries
thereby facilitating economic adjustments, but future progress will depend largely on how policies,
agricultural technologies and institutions respond to changing market and trade conditions as well as to
social and political factors. Yet progress will only come about if a level playing field for fair trade
and equitable distribution of costs and benefits are adopted.
Despite the regions economic growth, persistent pockets of food insecurity and chronic poverty remain.
Globalization and external instability pose formidable challenges, particularly for vulnerable groups
lacking safety nets. Migration outflows have left behind the elderly and women, leading to the greying
1
Agriculture includes crops, livestock, fisheries and forestry.
8
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.
9
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.
10
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.
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.
The following qualitative indicators will provide insights into the effectiveness of FAOs 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 worlds major natural and man-made disasters occur in Asia and the Pacific. The
most destructive to the food and agriculture sector are the following categories of calamities:
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 sectors capacity for sustainable agriculture and rural
development. Consecutive multiyear droughts have occurred in Central and East Asia over the past
decade.
Riverine, flash and coastal floods are a major cause of upheavals in the region. There are about
31 million hectares of flood-prone areas in South and Southeast Asia. Of these, 13 million are cultivated
and benefit from moderate flooding. Floods recur during the monsoon and rainy seasons, often with
disastrous results: loss of human lives, homes, harvests, livestock and vital cropland. Frequent and
devastating floods often swamp densely populated floodplains. Inundation of large river basins, in the
Ganges, Mekong and Yangtze, is usually seasonal and can last for weeks.
Storms, from typhoons to cyclones, often combine with floods to inflict suffering and chaos. They
damage crops, livestock, property, forests and physical infrastructure. They also disrupt the livelihoods
of fisherfolk. Storms as such cannot be prevented. But appropriate interventions can mitigate their
impact and help hasten recovery.
Fire is employed as a management tool in forestry and plantation agriculture. Not all fires flare up
into disasters. But uncontrolled, they can wreak significant damage to forests, agriculture production,
infrastructure, farm assets and public health. The transboundary health hazards of smoke from forest
and agriculture-generated fires have been much in evidence in Southeast Asia in recent years.
Earthquakes, volcano eruptions, and landslides and mudslides may occur less frequently. But their
impact on local populations in terms of death and injury, livelihood disruption, unemployment, asset
loss and out-migration is extremely severe.
Unfortunately, Asia and the Pacific have recently been experiencing most of the worlds major geological
disasters. There is a need to improve preparedness, early warning and recovery strategies, and action
plans.
Animal and plant diseases are of growing concern as disease related disasters occur with increasing
frequency. Industrial livestock production and high animal densities in peri-urban areas are emerging
as flash points and the source of new diseases. Outbreaks of disease cause direct economic losses to
farmers and affect production, consumption and international trade. Heightened vigilance is necessary
if large-scale outbreaks are to be prevented and measures adopted to address dangers posed by newly
emerging diseases. Cases in point are the economic slowdown caused by the recent outbreak of severe
acute respiratory syndrome and the threat posed by avian influenza, as well as the steady spread of
HIV/AIDS in rural Asia. Other threats are on the horizon such as bovine spongiform encephalopathy,
rabies, brucellosis and the nipah virus. Also worth noting is the parasitological spread of cystercercosis,
schistosomiasis and taenia.
Many factors come into play in these catastrophes. The more important of these interrelated determinants
are poverty; settlement of fragile ecosystems; exploitative agricultural systems and practices; and land
degradation and water scarcity, leading to even more food insecurity. This vicious cycle is exacerbated
by widespread adoption of industrial farming methods, especially in livestock and fisheries enterprises,
sometimes leading to pest and disease epidemics. Global warming and climate change will shift their
destructive potential to a higher scale.
These calamities inflict severe social and economic losses as well as human suffering on the victims.
Particularly worrisome, they disrupt livelihoods, erode farm assets and destroy the environment, thereby
making sustainable development difficult.
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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.
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.
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, peoples health and long-term sustainable
development. Such environmental degradation has also increased the risks of natural disasters. Growing
populations, urbanization, widespread poverty, ineffective governance, ambiguous property rights, weak
institutions and inappropriate policies continue to exacerbate an alarming situation.
Pressure on land, forest, water and aquatic resources in Asia and the Pacific is the most severe compared
to other regions in the world. 850 million hectares, representing more than 28 percent of the regions
land area, are affected by some form of land degradation. Deforestation, inappropriate agricultural
practices, inefficient irrigation water use, excessive groundwater extraction and industrial development
continue to contribute to land, soil and water degradation. Soil erosion and nutrient mining have
reduced the agricultural potential of vast areas.
The rapid increase in population and unprecedented economic growth have had the most severe impact
on the regions freshwater resources, including water quality. Diminishing freshwater supplies, especially
in populous and arid areas, have started to become a limiting factor in crop production and threaten the
important contribution of aquatic resources to household food security and national economies. Wetlands
and coastal ecosystems, particularly coral reefs, are threatened by the cumulative effects of agricultural
runoff and silting, urban sewage, industrial pollution, destructive fishing techniques, tourism and the
warming of water temperatures. The impact of climate change looms large over the low-lying areas
and small islands, and threatens to increase the variability of climate and the incidence of floods and
droughts.
The transition from subsistence agriculture, livestock and fisheries towards greater intensification,
commercialization and industrialization generates new patterns of natural resource use which may
contribute to their degradation; it also often threatens the unique gene pool of plant and animal resources.
The introduction of modern production systems has considerably contributed to the erosion of genetic
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diversity and may limit the regions ability to respond to changing market and other conditions in the
future. In particular, the numbers of farm animal breeds that are already extinct or endangered are
a concern. Deforestation and forest degradation and their impact on the regions biodiversity remain
a serious problem.
Countries in the region generally recognize the need to shift from exploitative land management practices
to more sustainable, equitable, economically viable and productive patterns of food production and
natural resource management. Many governments have initiated far-reaching policy, legal, and
institutional reforms for the management and use of natural resources and biodiversity. Some have
adopted the participatory approach.
These positive responses are supported by an improvement in available information, increased

environmental awareness by NGOs and civil society, increasing incomes, the adoption of international
environmental agreements and treaties, safety standards, codes of practice and criteria and indicators
for sustainable management. However, inadequate law enforcement and weak capacities in participatory
policy formulation and implementation hinder the effectiveness of present efforts.
The challenge is to balance the elements of change, namely people, policy, technology and resources,
for effective and equitable natural resource management. Particular difficulties reside in developing
and implementing proper checks and balances, and managing potential conflicts between concerns for
the public interest and legitimate aspirations for socio-economic development. Furthermore, the right
combination of regulations, devolution of authority, coordinating initiatives between the various levels
of decision-making and management, and financing conservation and sustainable use of natural resources
require urgent attention.
3.4.2 Goal
Conservation and sustainable use of natural resources in Asia and the Pacific for the benefit of all.
3.4.3 Objectives
The objectives are to ensure that:
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.
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.
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.
19
Some risks associated with modern biotechnology products, such as transgenic crops, are widely debated.
Recent reports estimate that GMOs are currently cultivated in 5 industrialized countries covering
a total of 47.3 million hectares, and in 13 developing countries (in this region including China, India,
Indonesia and the Philippines) covering an area of 20.4 million hectares. Argentina, Canada and the
US account for 95 percent of this total. In Asia, China leads with 2.1 million hectares under transgenic
crops.
FAO has identified two basic categories of risk: risk to health (human and animal) and risk to the
environment.
An example of a health risk is the transfer of toxins and allergens from one life form to another,
subsequently creating and spreading new toxins. Hazards to the environment include the introduction
of GMOs into wild species, leading to the emergence and spread of herbicide and pest resistance, and
even the generation of new pests.
The introduction of alien species may alter habitats and consequently disturb ecosystem processes.
The consequences for native species can be catastrophic. Often transported by anthropogenic means,
alien species may prove invasive and can aggressively establish themselves in native ecosystems. This
process, together with habitat destruction, has resulted in the displacement or even extinction of native
species throughout the world.
Biosecurity risks are also associated with animal and fish diseases. Foot-and-mouth disease, rinderpest,
classical swine fever and white-spot syndrome virus (WSSV) in shrimp are categorised as transboundary
diseases. Diseases that can be transmitted from animals to humans include BSE (bovine spongiform
encephalopathy or mad-cow disease), rabies, tuberculosis, brucellosis, avian influenza and severe acute
respiratory syndrome. They are related to food safety and affect regional and international trade and
food security.
If left unchecked, such diseases can decimate herds, harvests and fish stocks, adversely affecting the
livelihoods of farmers, especially already impoverished producers. The existence of these diseases
within a country also restricts free and safe regional and international trade.
Intensification of production systems, land degradation, salinization, heavy metal and pesticide
contamination, water table depletion, and chemical and antibiotic residues have increased hazards both
to human health and environmental quality.
Domestic and foreign consumers today are becoming increasingly concerned over food quality and
safety arising from intensive agriculture. This concern is reflected in the higher quality and safety
standards required by markets. As a result, producers are hard pressed to meet the standards demanded
and, at the same time, ensure economic returns. They also lack access to adequate information regarding
appropriate methods and production system options. Institutional support is patchy at best as national
and regional institutions try to adapt from a production-based focus to a more holistic approach that
includes the areas of food safety and environmental sustainability.
The broad and complex problems related to biosecurity have given rise to a number of international,
regional and intergovernmental bodies and have resulted in a number of recent international agreements.
These include: the World Trade Organizations (WTO) Agreement on the Application of Sanitary and
Phytosanitary Measures (SPS Agreement) covering food safety; and the Convention on Biological
Diversity and the Cartagena Protocol to manage risks in the movement of living modified organisms.
Countries also cooperate through the earlier Codex Alimentarius, the International Plant Protection
Convention and the Office International des Epizooties (OIE).
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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.
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.
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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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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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
RAPs Strategic Framework articulates priorities, goals, strategic elements, objectives and outputs aimed
at achieving food security through sustainable agriculture and rural development. RAP shares its vision
with member countries in the Asia and Pacific region. Realizing the vision will ultimately depend on
actions taken by regional, national and local stakeholders and mobilization of considerable resources.
RAP will adopt a three-pronged approach aimed at mobilizing resources, creating an enabling
environment for sustainable agriculture and rural development and improving cost-effective operational
systems and methods.
Resource mobilization
Every effort will be directed at raising resources for implementing RAPs thematic programmes and in
helping member countries increase investments in agriculture and food security from diverse sources.
RAP can mobilize extrabudgetary resources as well as promote funding of FAOs Regular and Field
Programmes from donor countries, intergovernmental banks, international funding agencies and even
governments of beneficiary countries and private companies. For this purpose, RAP will:
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.
RAPs implementation strategy will assist in creating this enabling environment. Its building blocks
are good governance, effective institutions and support services, pro-poor approaches and environmentally
sound systems and practices.
Under the six thematic programme areas, RAP will:
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.
26
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 FAOs regional office and emerging opportunities
RAP, working as a team with headquarters-based staff, draws strength from its pool of wide-ranging
expertise in food, horticultural and industrial crops, plant protection, animal production and health,
fisheries, forestry, institutional development, policy, commodities and trade, statistics, nutrition, irrigation
and natural resource management. Its experts can provide a critical mass to address the technical,
policy, social and economic aspects of agricultural development and natural resource management.
Over the years, RAP has established its credentials as a neutral forum. This encourages an objective
and wide-ranging exchange of ideas and experiences on challenges to the regions development.
RAP is linked through its extensive networking with national and international partners including the
Consultative Group on International Agricultural Research (CGIAR) Centres and donor communities.
It can mobilize expertise and some financial resources from these partners to reinforce its own to bear
on current as well as emerging development concerns. In addition, RAP is the base for many
27
intergovernmental and interinstitutional networks, commissions and other groupings in which it

participates or provides the secretariat. This facilitates technical collaboration.
This extensive structure includes, among others, regional commissions on plant protection, animal
production and health, forestry, fisheries and statistics. The Organization sponsors networks on credit,
marketing, nutrition and agricultural research, among others.
RAP also draws technical, managerial and organizational support from FAOs special programmes on
integrated pest management, food security, conservation and sustainable use of plant genetic resources
for food and agriculture and others.
Initiatives like the Emergency Prevention Service for Transboundary Animal and Plant Pest and Diseases
as well as the Livestock Environment and Development Programme and the Asia-Pacific Food Insecurity
and Vulnerability Information and Mapping Systems address specific concerns.
The FAO Regional Conference for Asia and the Pacific and other policy-level meetings have adopted
policy guidelines and various declarations dealing with common problems affecting member countries.
These can provide clear insights and directions when governments formulate policies and programmes.
RAPs strength lies also in its field programme development and implementation, with a rich portfolio
of projects spanning a wide spectrum including agriculture, fisheries, forestry, nutrition and food security.
The experience gained in implementing these projects, with an annual budget of over US$30 million,
can serve countries well.
The WFS for the first time set a common development target halving the worlds hungry by 2015.
The formulation of policies and programmes, as well as the monitoring and evaluation of their
implementation, provides a major opportunity for RAP to work with member countries.
Swift communication and increasing interdependence of countries have heightened alertness and
awareness of the consequences of complex emergencies, like water scarcity, cross-border infestation of
pests and diseases, multiyear drought, financial crises and others. Countries are likely to turn to RAP
with its vast expertise in multiple disciplines to promote regional cooperation.
Governments and the private sector appreciate the potential of sharing benefits. Wider sharing of
research findings, especially in water use, forestry and fisheries, prompt governments to respond and
international donors to provide support for an increasing number of international initiatives. These
cover information systems, biosafety, hybrid rice, conservation and sustainable use of plant genetic
resources and others. RAP can have a useful, enlarged role to play in providing technical support and
services in the development of these defining technologies.
The present thrust towards empowerment of the rural poor presents another opportunity for RAP to
strengthen its role and make its work more relevant. There is much that RAP can do in the areas of
decentralization and devolution of sustainable development, farmers organizations, rural credit and
finance, land reform, marketing and others.
4.2 Challenges
Globalization and dynamic regional groupings represent both challenges and opportunities in the region.
In many developing countries, especially small island developing states, the enabling environment
required to support sustainable development does not exist yet. Macroeconomic stability, open markets,
basic physical and institutional infrastructures and even civil order are often inadequate.
28
Natural processes cannot be hurried. In forestry or natural resources management, for example, progress
and benefits are often incremental. They require time frames that extend beyond political cycles or
budget deadlines of both governments and international agencies.
Unless a full-blown crisis emerges, member countries sometimes delay needed policy changes, revamping
of institutions or adjustment of budget allocations.
Effective responses to complex problems require actions by many stakeholders. Often, interventions
by only one ministry result in the weak commitment and contribution of other players.
Conflicting interests affect most development efforts. This can be among countries, like the conflict
between exporters and importers in the rice-trade liberalization question. It can also be among different
groups within countries, such as on issues of public distribution systems, pricing, export-import controls
and others.
Quality of governance and enforcement systems can undercut support for policy and institutional changes
called for. Diplomatic discretion can replace willingness to challenge members on potentially
acrimonious issues.
Obviously these factors, as they change with time, need to be fully analyzed and taken into consideration
when transforming the Regional Strategy into action programmes.
4.3 Monitoring and evaluation
As an integral part of the overall FAO Medium Term Plan, the monitoring and evaluation of the RAP
Regional Strategic Framework will be periodically conducted within existing Programme of Work and
Budget processes.
Exceptional thematic evaluation may be undertaken for specific purposes such as advocacy and raising
awareness or resources. For purposes of tracking the Frameworks progress in the context of regional
specificity, information will be systematically collated for reporting under existing Programme of Work
and Budget mechanisms.
Desired outcome indicators as outlined in the thematic programme areas will be periodically evaluated
within the framework of the Medium Term Plan and the Regional Strategic Framework. Outcomes
will be fed back for reformulation of action programmes.
The Regional Strategic Framework will be reviewed and revised if necessary, taking into consideration
the changing conditions and needs of the Asia-Pacific region and the recommendations and priorities
of member countries.
29

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RAP PUBLICATION 2004/06

TOWARDS A FOOD-SECURE ASIA AND PACIFIC

REGIONAL STRATEGIC FRAMEWORK

RAP PUBLICATION 2004/06

TOWARDS A FOOD-SECURE ASIA AND PACIFIC

FOOD AND AGRICULTURE ORGANIZATION OF THE UNITED NATIONS

First edition: May 2004

PREFACE ............................................................................................................................................. iii

1. PURPOSE OF THE REGIONAL STRATEGIC FRAMEWORK ..................................... 1

3. THEMATIC PROGRAMME AREAS ................................................................................... 8

4. IMPLEMENTATION STRATEGY ........................................................................................ 26

1. PURPOSE OF THE REGIONAL STRATEGIC FRAMEWORK

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

Box 1: FAOs strategies to address members needs

Strategy A: Contributing to the eradication of food insecurity and rural poverty

A.1 Sustaining rural livelihood and more equitable access to resources

Strategy D: Supporting the conservation, improvement and sustainable use of natural

D.2 Conservation, rehabilitation and development of environments at greater risk

Strategy E: Improving decision-making through the provision of information and assessments

2. REGIONAL ISSUES AND LOCAL CONCERNS IN ASIA AND

Broader citizen participation in decision-making and governance is reflected in dynamic non-governmental

Subsistence-oriented agriculture is in transition as industrialization and commercialization increase.

Information and communications technologies are under-utilized. Agricultures ability to respond

3. THEMATIC PROGRAMME AREAS

A food-secure Asia-Pacific region

Thematic programme areas

1 Agriculture restructuring under changing market and trade conditions

3.1 Agriculture restructuring under changing market and trade conditions1

of rural communities and feminization of agriculture. Continuing deprivation of women, marginal

Strengthen institutions to be responsive to rural development needs.

3.1.4 Strategic elements

Message identification and adoption

Removal of biases in public spending for small farmers.

Field verification and learning through action-oriented research

Self-reliance and reduced marginalization of the rural poor.

3.1.6 Impact indicators

Sustained and broad-based agricultural growth.

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

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

3.2 Decentralizing governance in support of sustainable development

Reinforced training to enhance technical knowledge, management skills and participatory

The specific objectives are to:

Strengthen policies, legislation and institutional environments supportive of decentralized

3.2.4 Strategic elements

Adequate resources to provide technical and policy advice.

Expected outcomes will be diverse and include the following:

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

3.2.6 Impact indicators

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

3.3 Reducing vulnerability to disasters

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

The overall objective is improvement of livelihoods in disaster-prone areas.

The specific objectives are:

3.3.4 Strategic elements

RAP will promote the following strategic elements:

A long-term perspective in country programming, as well as recognition of the benefits of international

Resilient livelihoods in the face of disasters and other risks.

Early warning and response systems/networks established.

3.3.6 Impact indicators

3.4 Promoting effective and equitable management, conservation and

These positive responses are supported by an improvement in available information, increased

The objectives are to ensure that:

3.4.4 Strategic elements