This record is a partial extract of the original cable. The full text of the original cable is not available.

UNCLAS SECTION 01 OF 05 ROME 001370 
 
SIPDIS 
 
 
SENSITIVE 

STATE FOR IO/FO, IO/EDA BEHREND AND KOTOK 
STATE ALSO FOR E, EB, OES 
USAID FOR AA/EGAT SIMMONS, AA/DCHA WINTER, 
OFDA FOR MENGHETTI 
USDA/FAS FOR REICH, HUGHES AND CHAMBLISS 
 
FROM U.S. MISSION TO THE UN AGENCIES IN ROME 
 
E.O. 12958:  N/A 
TAGS: EAID AORC EAGR KUNR FAO
SUBJECT:  FAO'S EMERGENCY PROGRAMS: OVERVIEW 
 
¶1.  (SBU)  SUMMARY:  IN 2003, FAO DELIVERED $211 MILLION 
IN EMERGENCY ASSISTANCE IN THE AGRICULTURE AND FOOD 
SECURITY SECTOR TO CRISIS AREAS AROUND THE GLOBE.  FAO 
PROVIDES SEEDS, TOOLS, FERTILIZER AND FISHING GEAR; 
ASSISTS IN CROP PROTECTION AND LIVESTOCK REPLENISHMENT; 
REACTIVATES VETERINARY AND OTHER AGRICULTURAL SERVICES; 
REPAIRS IRRIGATION INFRASTRUCTURE; AND PROVIDES TECHNICAL 
EXPERTISE AND COORDINATES UN AGENCY AND NGO ACTIVITIES. 
THE AIM IS TO PROTECT AND RESTORE AGRICULTURE-BASED 
LIVELIHOODS AND LESSEN DEPENDENCE ON FOOD AID.  FAO HAS 
JUST ESTABLISHED A RAPID RESPONSE SPECIAL FUND FOR 
EMERGENCY AND REHABILITATION ACTIVITIES TO PERMIT SWIFTER 
STARTUPS OF EMERGENCY AID.  FAO'S EMERGENCY PROGRAMS ARE 
FUNDED ALMOST ENTIRELY FROM VOLUNTARY DONOR 
CONTRIBUTIONS, AND THESE HAVE FALLEN FAR SHORT OF 
IDENTIFIED NEEDS.  ACCORDING TO UNOFFICIAL FAO 
STATISTICS, U.S. CONTRIBUTIONS IN CY 2000-2003 AVERAGED 
$6.1 MILLION.  FAO'S EMERGENCY ASSISTANCE IS A HIGHLY 
    COST-EFFECTIVE WAY TO ADDRESS FOOD INSECURITY FOLLOWING 
NATURAL OR MAN-MADE EMERGENCIES.  WE BELIEVE THAT A 
MEASURABLY HIGHER LEVEL OF U.S. CONTRIBUTION WOULD BE 
JUSTIFIED AND WOULD ENJOY A GOOD COST-BENEFIT RETURN IN 
TERMS OF LESSENING THE OVERALL BURDEN ON U.S. FOOD 
ASSISTANCE PROGRAMS.   END SUMMARY. 
 
¶2.  (U) ON MARCH 10, FAO ASSISTANT DIRECTOR GENERAL FOR 
TECHNICAL COOPERATION HENRI CARSALADE AND DIRECTOR OF THE 
EMERGENCY OPERATIONS AND REHABILITATION DIVISION (TCE) 
ANNE BAUER LED AN INFORMAL BRIEFING FOR DONOR 
REPRESENTATIVES IN ROME ON FAO'S EMERGENCY ACTIVITIES. 
THE FOLLOWING IS A SYNOPSIS OF FAO'S PRESENTATION.  MORE 
DETAILED DISCUSSION OF FAO EMERGENCY ACTIVITIES IN 
SPECIFIC COUNTRIES AND REGIONS IS BEING REPORTED SEPTEL. 
 
BACKGROUND: FAO'S TECHNICAL COOPERATION DEPARTMENT 
--------------------------------------------- ----- 
 
¶3.  (U)  THE TECHNICAL COOPERATION DEPARTMENT (TCD) HAS 
OVERALL RESPONSIBILITY FOR THE OPERATIONAL ACTIVITIES OF 
THE ORGANIZATION, INCLUDING POLICY ASSISTANCE, INVESTMENT 
SUPPORT AND THE OVERALL MANAGEMENT OF ACTIVITIES 
ASSOCIATED WITH THE FORMULATION AND IMPLEMENTATION OF IN- 
COUNTRY, SUBREGIONAL AND REGIONAL PROGRAMS AND PROJECTS, 
INCLUDING THOSE IN RESPONSE TO A NATURAL OR MAN-MADE 
DISASTER.  IT MANAGES THE TECHNICAL COOPERATION PROGRAM 
(TCP) AND MOBILIZES RESOURCES FOR OPERATIONAL ACTIVITIES 
FROM GOVERNMENTAL, PRIVATE SECTOR AND OTHER NON- 
GOVERNMENTAL SOURCES.  MOST OF THE HUMAN RESOURCES ARE 
PROVIDED FROM PROJECT, SUPPORT-COST OR OTHER EXTRA- 
    BUDGETARY FUNDS, ALTHOUGH A SUBSTANTIAL CONTRIBUTION IS 
PROVIDED FROM FAO'S OWN BUDGET. 
 
FAO'S ROLE IN EMERGENCIES 
------------------------- 
 
¶4.  (U)  FAO SEES ITS ROLE IN DISASTERS AS RESPONDING TO 
NEEDS FOR EMERGENCY ASSISTANCE IN THE AGRICULTUAL, 
LIVESTOCK AND FISHERIES SECTORS IN DEVELOPING COUNTRIES 
AFFECTED BY EXCEPTIONAL NATURAL OR HUMAN-INDUCED 
CALAMITIES.  THE PRINCIPAL ACTIVITIES IT UNDERTAKES IN 
SUCH SITUATIONS INCLUDE DISTRIBUTION OF SEEDS, SEEDLINGS, 
HAND TOOLS, FERTILIZERS AND FISHING GEAR.  FAO ALSO 
PROVIDES SERVICES WITH REGARD TO CROP PROTECTION, 
LIVESTOCK REPLENISHMENT, REACTIVATION OF VETERINARY AND 
OTHER SERVICES, REPAIR OF IRRIGATION INFRASTRUCTURE, AND 
THE PROVISION OF TECHNICAL EXPERTISE AND COORDINATION OF 
OTHER UN AND NGO PARTNERS IN THE AGRICULTURE AND FOOD 
SECURITY SECTOR.  THESE ACTIVITIES ARE AIMED AT 
PROTECTING AND RESTORING AGRICULTURE-BASED LIVELIHOODS 
AND BRINGING END TO DEPENDENCY ON FOOD AID BY POPULATIONS 
 
ROME 00001370  001.2 OF 005 
 
ICULTURE AND FOOD 
SECURITY SECTOR TO CRISIS AREAS AROUND THE GLOBE.  FAO 
PROVIDES SEEDS, TOOLS, FERTILIZER AND FISHING GEAR; 
ASSISTS IN CROP PROTECTION AND LIVESTOCK REPLENISHMENT; 
REACTIVATES VETERINARY AND OTHER AGRICULTURAL SERVICES; 
REPAIRS IRRIGATION INFRASTRUCTURE; AND PROVIDES TECHNICAL 
EXPERTISE AND COORDINATES UN AGENCY AND NGO ACTIVITIES. 
THE AIM IS TO PROTECT AND RESTORE AGRICULTURE-BASED 
LIVELIHOODS AND LESSEN DEPENDENCE ON FOOD AID.  FAO HAS 
JUST ESTABLISHED A RAPID RESPONSE SPECIAL FUND FOR 
EMERGENCY AND REHABILITATION ACTIVITIES TO PERMIT SWIFTER 
STARTUPS OF EMERGENCY AID.  FAO'S EMERGENCY PROGRAMS ARE 
FUNDED ALMOST ENTIRELY FROM VOLUNTARY DONOR 
CONTRIBUTIONS, AND THESE HAVE FALLEN FAR SHORT OF 
IDENTIFIED NEEDS.  ACCORDING TO UNOFFICIAL FAO 
STATISTICS, U.S. CONTRIBUTIONS IN CY 2000-2003 AVERAGED 
$6.1 MILLION.  FAO'S EMERGENCY ASSISTANCE IS A HIGHLY 
    COST-EFFECTIVE WAY TO ADDRESS FOOD INSECURITY FOLLOWING 
NATURAL OR MAN-MADE EMERGENCIES.  WE BELIEVE THAT A 
MEASURABLY HIGHER LEVEL OF U.S. CONTRIBUTION WOULD BE 
JUSTIFIED AND WOULD ENJOY A GOOD COST-BENEFIT RETURN IN 
TERMS OF LESSENING THE OVERALL BURDEN ON U.S. FOOD 
ASSISTANCE PROGRAMS.   END SUMMARY. 
 
¶2.  (U) ON MARCH 10, FAO ASSISTANT DIRECTOR GENERAL FOR 
TECHNICAL COOPERATION HENRI CARSALADE AND DIRECTOR OF THE 
EMERGENCY OPERATIONS AND REHABILITATION DIVISION (TCE) 
ANNE BAUER LED AN INFORMAL BRIEFING FOR DONOR 
REPRESENTATIVES IN ROME ON FAO'S EMERGENCY ACTIVITIES. 
THE FOLLOWING IS A SYNOPSIS OF FAO'S PRESENTATION.  MORE 
DETAILED DISCUSSION OF FAO EMERGENCY ACTIVITIES IN 
SPECIFIC COUNTRIES AND REGIONS IS BEING REPORTED SEPTEL. 
 
BACKGROUND: FAO'S TECHNICAL COOPERATION DEPARTMENT 
--------------------------------------------- ----- 
 
¶3.  (U)  THE TECHNICAL COOPERATION DEPARTMENT (TCD) HAS 
OVERALL RESPONSIBILITY FOR THE OPERATIONAL ACTIVITIES OF 
THE ORGANIZATION, INCLUDING POLICY ASSISTANCE, INVESTMENT 
SUPPORT AND THE OVERALL MANAGEMENT OF ACTIVITIES 
ASSOCIATED WITH THE FORMULATION AND IMPLEMENTATION OF IN- 
COUNTRY, SUBREGIONAL AND REGIONAL PROGRAMS AND PROJECTS, 
INCLUDING THOSE IN RESPONSE TO A NATURAL OR MAN-MADE 
DISASTER.  IT MANAGES THE TECHNICAL COOPERATION PROGRAM 
(TCP) AND MOBILIZES RESOURCES FOR OPERATIONAL ACTIVITIES 
FROM GOVERNMENTAL, PRIVATE SECTOR AND OTHER NON- 
GOVERNMENTAL SOURCES.  MOST OF THE HUMAN RESOURCES ARE 
PROVIDED FROM PROJECT, SUPPORT-COST OR OTHER EXTRA- 
    BUDGETARY FUNDS, ALTHOUGH A SUBSTANTIAL CONTRIBUTION IS 
PROVIDED FROM FAO'S OWN BUDGET. 
 
FAO'S ROLE IN EMERGENCIES 
------------------------- 
 
¶4.  (U)  FAO SEES ITS ROLE IN DISASTERS AS RESPONDING TO 
NEEDS FOR EMERGENCY ASSISTANCE IN THE AGRICULTUAL, 
LIVESTOCK AND FISHERIES SECTORS IN DEVELOPING COUNTRIES 
AFFECTED BY EXCEPTIONAL NATURAL OR HUMAN-INDUCED 
CALAMITIES.  THE PRINCIPAL ACTIVITIES IT UNDERTAKES IN 
SUCH SITUATIONS INCLUDE DISTRIBUTION OF SEEDS, SEEDLINGS, 
HAND TOOLS, FERTILIZERS AND FISHING GEAR.  FAO ALSO 
PROVIDES SERVICES WITH REGARD TO CROP PROTECTION, 
LIVESTOCK REPLENISHMENT, REACTIVATION OF VETERINARY AND 
OTHER SERVICES, REPAIR OF IRRIGATION INFRASTRUCTURE, AND 
THE PROVISION OF TECHNICAL EXPERTISE AND COORDINATION OF 
OTHER UN AND NGO PARTNERS IN THE AGRICULTURE AND FOOD 
SECURITY SECTOR.  THESE ACTIVITIES ARE AIMED AT 
PROTECTING AND RESTORING AGRICULTURE-BASED LIVELIHOODS 
AND BRINGING END TO DEPENDENCY ON FOOD AID BY POPULATIONS 
 
ROME 00001370  002.1 OF 005 
 
)  IN HIS INTRODUCTORY REMARKS, CARSALADE 
HIGHLIGHTED THE IMPORTANCE AND DIFFICULTY OF MANAGING THE 
TRANSITION FROM RELIEF TO DEVELOPMENT, PARTICULARLY IN 
COMPLEX EMERGENCIES.  HE NOTED THE PARTICULAR CHALLENGES 
IN POST-CONFLICT SITUATIONS, WHERE THE TRANSITION FROM 
CONFLICT TO PEACE IS A FRAGILE PROCESS THAT REQUIRES 
INTERNATIONAL SUPPORT.  (SEE ALSO PARAS 8-9.)  CARSALADE 
STRESSED FAO'S ROLE AS A COORDINATOR OF DONOR 
INTERVENTIONS IN THE AGRICULTURAL SECTOR IN AFFECTED 
AREAS.  HE MADE SPECIAL REFERENCE TO THE IMPORTANCE OF 
ENHANCING COORDINATION BETWEEN FAO AND WFP, NOTING THAT 
HE AND WFP DEPUTY EXECUTIVE DIRECTOR FOR OPERATIONS JEAN- 
JACQUES GRAISSE HAD SENT A LETTER IN NOVEMBER 2003 TO ALL 
    THEIR RESPECTIVE OFFICES IN THE FIELD AND TO RELEVANT 
OFFICES IN ROME TO URGE THEIR ENGAGEMENT IN IMPROVING 
COORDINATION (SEPTEL). 
 
2003 CONTRIBUTIONS 
------------------ 
 
¶6.  (U)  CONTRIBUTIONS TO FAO EMERGENCY OPERATIONS, 
EXCLUDING IRAQ, AMOUNTED TO $74 MILLION, OF WHICH $15 
MILLION CAME FROM FAO'S OWN TCP RESOURCES AND $59 MILLION 
FROM DONORS, INCLUDING THE U.S. (SEE PARA 15 BELOW), AND 
OTHER UN PARTNERS.  IN 2000, 2001 AND 2002, TOTAL 
CONTRIBUTIONS (EXCLUDING OIL FOR FOOD) WERE $64 MILLION, 
$70 MILLION AND $82 MILLION, RESPECTIVELY. 
 
2003 DELIVERIES 
--------------- 
 
¶7.  (U)  AS FOR DELIVERY IN 2003, THE TOTAL AMOUNTED TO 
$211 MILLION.  THE PRINCIPAL BENEFICIARIES AND 
APPROXIMATE AMOUNTS DELIVERED, IN MILLION OF DOLLARS, 
WERE: 
 
          IRAQ                   111. 
          AFGHANISTAN             16.2 
          GREAT LAKES REGION      13.2 
          SOUTHERN AFRICA          9.8 
          ANGOLA                   9.6 
          SUDAN                    5.0 
          ETHIOPIA                 4.1 
          BURUNDI                  2.9 
              SOMALIA                  2.4 
          WESTERN AFRICA           2.0 
          TAJIKISTAN               1.8 
          SRI LANKA                1.8 
          DPR KOREA                1.7 
          KOSOVO                   1.6 
 
 
¶8.  (U)  BAUER ACKNOWLEDGED THAT THE ABOVE FIGURES MAY 
APPEAR LOW WHEN COMPARED WITH THE FINANCING RECEIVED BY 
WFP, BUT SHE CONTENDED THAT THE PRACTICAL RESULT OF FAO 
OPERATIONS IN TERMS OF INCREASED LOCAL FOOD PRODUCTION 
WAS EQUIVALENT TO SEVERAL BILLIONS DOLLARS OF FOOD AID 
THAT WOULD HAVE BEEN NECESSARY TO REPLACE THE FOOD THESE 
PROGRAMS GENERATED.  BAUER ALSO POINTED OUT THE LARGE 
IMBALANCES IN DONATIONS UNRELATED TO DIFFERENT NEEDS, 
WITH SOME COUNTRIES RECEIVING FAR MORE GENEROUS SUPPORT 
FROM DONORS THAN OTHERS. 
 
CONSEQUENCES OF UNDERFUNDING 
---------------------------- 
 
ROME 00001370  002.2 OF 005 
 
)  IN HIS INTRODUCTORY REMARKS, CARSALADE 
HIGHLIGHTED THE IMPORTANCE AND DIFFICULTY OF MANAGING THE 
TRANSITION FROM RELIEF TO DEVELOPMENT, PARTICULARLY IN 
COMPLEX EMERGENCIES.  HE NOTED THE PARTICULAR CHALLENGES 
IN POST-CONFLICT SITUATIONS, WHERE THE TRANSITION FROM 
CONFLICT TO PEACE IS A FRAGILE PROCESS THAT REQUIRES 
INTERNATIONAL SUPPORT.  (SEE ALSO PARAS 8-9.)  CARSALADE 
STRESSED FAO'S ROLE AS A COORDINATOR OF DONOR 
INTERVENTIONS IN THE AGRICULTURAL SECTOR IN AFFECTED 
AREAS.  HE MADE SPECIAL REFERENCE TO THE IMPORTANCE OF 
ENHANCING COORDINATION BETWEEN FAO AND WFP, NOTING THAT 
HE AND WFP DEPUTY EXECUTIVE DIRECTOR FOR OPERATIONS JEAN- 
JACQUES GRAISSE HAD SENT A LETTER IN NOVEMBER 2003 TO ALL 
    THEIR RESPECTIVE OFFICES IN THE FIELD AND TO RELEVANT 
OFFICES IN ROME TO URGE THEIR ENGAGEMENT IN IMPROVING 
COORDINATION (SEPTEL). 
 
2003 CONTRIBUTIONS 
------------------ 
 
¶6.  (U)  CONTRIBUTIONS TO FAO EMERGENCY OPERATIONS, 
EXCLUDING IRAQ, AMOUNTED TO $74 MILLION, OF WHICH $15 
MILLION CAME FROM FAO'S OWN TCP RESOURCES AND $59 MILLION 
FROM DONORS, INCLUDING THE U.S. (SEE PARA 15 BELOW), AND 
OTHER UN PARTNERS.  IN 2000, 2001 AND 2002, TOTAL 
CONTRIBUTIONS (EXCLUDING OIL FOR FOOD) WERE $64 MILLION, 
$70 MILLION AND $82 MILLION, RESPECTIVELY. 
 
2003 DELIVERIES 
--------------- 
 
¶7.  (U)  AS FOR DELIVERY IN 2003, THE TOTAL AMOUNTED TO 
$211 MILLION.  THE PRINCIPAL BENEFICIARIES AND 
APPROXIMATE AMOUNTS DELIVERED, IN MILLION OF DOLLARS, 
WERE: 
 
          IRAQ                   111. 
          AFGHANISTAN             16.2 
          GREAT LAKES REGION      13.2 
          SOUTHERN AFRICA          9.8 
          ANGOLA                   9.6 
          SUDAN                    5.0 
          ETHIOPIA                 4.1 
          BURUNDI                  2.9 
              SOMALIA                  2.4 
          WESTERN AFRICA           2.0 
          TAJIKISTAN               1.8 
          SRI LANKA                1.8 
          DPR KOREA                1.7 
          KOSOVO                   1.6 
 
 
¶8.  (U)  BAUER ACKNOWLEDGED THAT THE ABOVE FIGURES MAY 
APPEAR LOW WHEN COMPARED WITH THE FINANCING RECEIVED BY 
WFP, BUT SHE CONTENDED THAT THE PRACTICAL RESULT OF FAO 
OPERATIONS IN TERMS OF INCREASED LOCAL FOOD PRODUCTION 
WAS EQUIVALENT TO SEVERAL BILLIONS DOLLARS OF FOOD AID 
THAT WOULD HAVE BEEN NECESSARY TO REPLACE THE FOOD THESE 
PROGRAMS GENERATED.  BAUER ALSO POINTED OUT THE LARGE 
IMBALANCES IN DONATIONS UNRELATED TO DIFFERENT NEEDS, 
WITH SOME COUNTRIES RECEIVING FAR MORE GENEROUS SUPPORT 
FROM DONORS THAN OTHERS. 
 
CONSEQUENCES OF UNDERFUNDING 
---------------------------- 
 
ROME 00001370  003.1 OF 005 
 
 OF THE PROTECTION AND 
RESTORATION OF AGRICULTURAL LIVELIHOODS HAS HAMPERED 
FAO'S CAPACITY TO BE AN EFFECTIVE PARTNER TO WFP.  THIS, 
THEY BELIEVE, HAS HAD VARIOUS NEGATIVE CONSEQUENCES, 
INCLUDING: 
 
-- CONTINUED DEPENDENCE ON FOOD AID; 
 
-- CONTINUING TENSION OVER SCARCE RESOURCES LEADING TO 
INCREASED OR NEW CONFLICTS; 
 
-- PRESSURE ON PEOPLE TO ADAPT OR CHANGE THEIR 
LIVELIHOODS; AND 
 
-- PRESSURE ON PEOPLE TO MOVE IN SEARCH OF WORK, CAUSING 
SOCIAL DISRUPTIONS AND POSSIBLE INCREASES IN PROBLEMS 
    SUCH PROSTITUTION, HIV/AIDS, TRUANCY AND CHILD LABOR. 
 
POST-CONFLICT TRANSITION 
------------------------ 
 
¶10.  (U)  RICHARD CHINA, COORDINATOR OF THE 
REHABILITATION AND HUMANITARIAN POLICIES UNIT, MADE A 
PRESENTATION ON FAO'S EVOLVING ROLE IN POST-CONFLICT 
TRANSITIONS.  SOME 30 COUNTRIES ARE AFFECTED BY MULTI- 
FACETED AND PROTRACTED CRISES WHERE AUTHORITY HAS BROKEN 
DOWN DUE TO CONFLICT.  IN SUCH COMPLEX EMERGENCIES, 
OPTIONS FOR REBUILDING INFRASTRUCTURE AND INSTITUTIONS 
ARE LIMITED, AND THE FOCUS IS MAINLY ON LIFE-SAVING 
ASSISTANCE AND, TO SOME EXTENT, THE PROTECTION OF 
LIVELIHOODS.  TRANSITIONS FROM CONFLICT TO PEACE ARE 
RARELY LINEAR, AND PLANNING MUST ANTICIPATE REVERSALS. 
THERE IS A SIMULTANEOUS NEED FOR EMERGENCY RELIEF (TO 
SAVE LIVES), REHABILITATION (TO INITIATE RECONSTRUCTION 
AND PROTECT LIVELIHOODS) AND DEVELOPMENT (TO ADDRESS 
LONGER-TERM OBJECTIVES). 
 
¶11.  (U)  ACCORDING TO R. CHINA, FAO'S COMPARATIVE 
ADVANTAGE IN SUCH CONTEXTS LIES IN ITS ABILITY TO: 
 
-- PROVIDE TECHNICAL ASSISTANCE FOR ASSESSMENT OF 
PRIORITIES, INFORMATION SHARING AND STANDARD SETTING FOR 
ALL ACTORS IN THE PROTECTION AND REHABILITATION OF RURAL 
LIVELIHOODS; 
 
-- REDUCE DONORS' TRANSACTION COSTS AND ASSURE QUALITY OF 
IMPLEMENTATION BY NGOS; AND 

-- PROVIDE TWO-WAY LINKS WITH FAO'S NORMATIVE WORK AND 
CAPACITY BUILDING TOWARDS APPROPRIATE POLICIES. 
 
HE CITED EXAMPLES OF FAO INVOLVEMENT IN NE SRI LANKA, 
LIBERIA, SUDAN, AND LOOMING NEEDS IN HAITI, COLOMBIA AND 
COTE D'IVOIRE. 
 
SPECIAL FUND FOR EMERGENCY AND REHABILITATION ACTIVITIES 
--------------------------------------------- ----------- 
 
¶12.  (U)  WITH THE ENDORSEMENT OF THE FAO PROGRAM AND 
FINANCE COMMITTEES, FAO IS ESTABLISHING IN MARCH-APRIL 
2004 A RAPID RESPONSE FUND FOR EMERGENCY AND 
REHABILITATION ACTIVITIES, WITH A TARGET FUNDING LEVEL OF 
$2 MILLION.  ACCORDING TO BAUER, SUCH A FUND IS NEEDED TO 
ASSURE OR PERMIT: 
 
-- EARLY INVOLVEMENT IN EMERGENCY OPERATIONS; 
 
-- ESTABLISHMENT OF EMERGENCY COORDINATION UNITS; 
 
ROME 00001370  003.2 OF 005 
 
 OF THE PROTECTION AND 
RESTORATION OF AGRICULTURAL LIVELIHOODS HAS HAMPERED 
FAO'S CAPACITY TO BE AN EFFECTIVE PARTNER TO WFP.  THIS, 
THEY BELIEVE, HAS HAD VARIOUS NEGATIVE CONSEQUENCES, 
INCLUDING: 
 
-- CONTINUED DEPENDENCE ON FOOD AID; 
 
-- CONTINUING TENSION OVER SCARCE RESOURCES LEADING TO 
INCREASED OR NEW CONFLICTS; 
 
-- PRESSURE ON PEOPLE TO ADAPT OR CHANGE THEIR 
LIVELIHOODS; AND 
 
-- PRESSURE ON PEOPLE TO MOVE IN SEARCH OF WORK, CAUSING 
SOCIAL DISRUPTIONS AND POSSIBLE INCREASES IN PROBLEMS 
    SUCH PROSTITUTION, HIV/AIDS, TRUANCY AND CHILD LABOR. 
 
POST-CONFLICT TRANSITION 
------------------------ 
 
¶10.  (U)  RICHARD CHINA, COORDINATOR OF THE 
REHABILITATION AND HUMANITARIAN POLICIES UNIT, MADE A 
PRESENTATION ON FAO'S EVOLVING ROLE IN POST-CONFLICT 
TRANSITIONS.  SOME 30 COUNTRIES ARE AFFECTED BY MULTI- 
FACETED AND PROTRACTED CRISES WHERE AUTHORITY HAS BROKEN 
DOWN DUE TO CONFLICT.  IN SUCH COMPLEX EMERGENCIES, 
OPTIONS FOR REBUILDING INFRASTRUCTURE AND INSTITUTIONS 
ARE LIMITED, AND THE FOCUS IS MAINLY ON LIFE-SAVING 
ASSISTANCE AND, TO SOME EXTENT, THE PROTECTION OF 
LIVELIHOODS.  TRANSITIONS FROM CONFLICT TO PEACE ARE 
RARELY LINEAR, AND PLANNING MUST ANTICIPATE REVERSALS. 
THERE IS A SIMULTANEOUS NEED FOR EMERGENCY RELIEF (TO 
SAVE LIVES), REHABILITATION (TO INITIATE RECONSTRUCTION 
AND PROTECT LIVELIHOODS) AND DEVELOPMENT (TO ADDRESS 
LONGER-TERM OBJECTIVES). 
 
¶11.  (U)  ACCORDING TO R. CHINA, FAO'S COMPARATIVE 
ADVANTAGE IN SUCH CONTEXTS LIES IN ITS ABILITY TO: 
 
-- PROVIDE TECHNICAL ASSISTANCE FOR ASSESSMENT OF 
PRIORITIES, INFORMATION SHARING AND STANDARD SETTING FOR 
ALL ACTORS IN THE PROTECTION AND REHABILITATION OF RURAL 
LIVELIHOODS; 
 
-- REDUCE DONORS' TRANSACTION COSTS AND ASSURE QUALITY OF 
IMPLEMENTATION BY NGOS; AND 

-- PROVIDE TWO-WAY LINKS WITH FAO'S NORMATIVE WORK AND 
CAPACITY BUILDING TOWARDS APPROPRIATE POLICIES. 
 
HE CITED EXAMPLES OF FAO INVOLVEMENT IN NE SRI LANKA, 
LIBERIA, SUDAN, AND LOOMING NEEDS IN HAITI, COLOMBIA AND 
COTE D'IVOIRE. 
 
SPECIAL FUND FOR EMERGENCY AND REHABILITATION ACTIVITIES 
--------------------------------------------- ----------- 
 
¶12.  (U)  WITH THE ENDORSEMENT OF THE FAO PROGRAM AND 
FINANCE COMMITTEES, FAO IS ESTABLISHING IN MARCH-APRIL 
2004 A RAPID RESPONSE FUND FOR EMERGENCY AND 
REHABILITATION ACTIVITIES, WITH A TARGET FUNDING LEVEL OF 
$2 MILLION.  ACCORDING TO BAUER, SUCH A FUND IS NEEDED TO 
ASSURE OR PERMIT: 
 
-- EARLY INVOLVEMENT IN EMERGENCY OPERATIONS; 
 
-- ESTABLISHMENT OF EMERGENCY COORDINATION UNITS; 
 
ROME 00001370  004.1 OF 005 
 
 
-- AN EARLY START AND PREPARATION OF A PROGRAM FRAMEWORK 
AND PROJECTS; 
 
-- CONTINUITY IN THE FUNDING OF EMERGENCY COORDINATORS; 
AND 
 
-- FINANCING FOR REHABILITATION ADVISERS DURING POST- 
CONFLICT TRANSITIONS AND THE PROGRAMMING OF TRANSITION 
ACTIVITIES. 
 
¶13.  (U)  THE SPECIAL FUND WILL OPERATE ACCORDING TO THE 
FOLLOWING PRINCIPLES: 
 
-- DIRECT CONTRIBUTIONS FROM DONORS; 
 
    -- DONOR FUNDING FOR SPECIFIC PROJECTS WILL BE PRE- 
FINANCED FROM THE SPECIAL FUND, PENDING RECEIPT OF THE 
FUNDS SPECIFICALLY EARMARKED CONTRIBUTION; 
 
-- FUND BALANCES ON COMPLETED PROJECTS WILL BE RETAINED 
OR TRANSFERRED, AS AUTHORIZED BY DONORS; 
 
-- INTEREST EARNINGS OF PROJECT FUND BALANCES WILL BE 
RETAINED OR TRANSFERRED, PER DONOR INSTRUCTIONS; 
 
-- TRANSFER OF A SHARE OF FUNDS FROM THE DIRECT OPERATING 
COST RECOVERY ACCOUNT. 
 
¶14.  (U)  NOW THAT THE SPECIAL FUND HAS BEEN ESTABLISHED 
INSTITUTIONALLY, FAO WILL BEGIN A FORMAL APPEAL FOR DONOR 
SUPPORT. 
 
U.S. CONTRIBUTIONS 
------------------ 
 
¶15.  (U)  ACCORDING TO INFORMAL FAO STATISTICS, U.S. 
CONTRIBUTIONS TO THE ORGANIZATION'S EMERGENCY ACTIVITIES 
IN RECENT YEARS, IN MILLIONS OF DOLLARS, WERE: 
 
          CY 2000    $4.2 
          CY 2001    $5.6 
          CY 2002    $8.3 
          CY 2003    $6.5 
          CY 2004    $3.0 (TO DATE) 
 
THE ABOVE FIGURES MAY DIFFER FROM USG STATISTICS BECAUSE 
    OF THE CALENDAR/FISCAL YEAR DIFFERENCE, ROUNDING, AND 
WHETHER THE ACTUAL DATE OF FUND TRANSFER OR THE PROJECT 
IMPLEMENTATION DATE IS USED FOR CREDITING CONTRIBUTIONS. 
 
¶16.  (U)  U.S. CONTRIBUTIONS TO FAO EMERGENCY PROJECTS IN 
CY 2000-2004 (TO DATE), ACCORDING TO AN UNOFFICIAL FAO 
TALLY AND SUBJECT TO THE SAME CAVEATS GIVEN ABOVE, WERE 
ALLOCATED PRINCIPALLY TO THE FOLLOWING COUNTRIES OR 
PROGRAMS: 
 
          AFGHANISTAN         $5.9 
          ANGOLA              $5.6 
          SUDAN               $3.8 
          BURUNDI             $2.2 
          SOMALIA             $1.4 
          DR CONGO            $1.3 
          AF REGIONAL OFFICE  $1.3 
          GEORGIA             $1.0 
          FYR MACEDONIA       $1.0 
          REP. CONGO          $0.9 
 
ROME 00001370  004.2 OF 005 
 
 
-- AN EARLY START AND PREPARATION OF A PROGRAM FRAMEWORK 
AND PROJECTS; 
 
-- CONTINUITY IN THE FUNDING OF EMERGENCY COORDINATORS; 
AND 
 
-- FINANCING FOR REHABILITATION ADVISERS DURING POST- 
CONFLICT TRANSITIONS AND THE PROGRAMMING OF TRANSITION 
ACTIVITIES. 
 
¶13.  (U)  THE SPECIAL FUND WILL OPERATE ACCORDING TO THE 
FOLLOWING PRINCIPLES: 
 
-- DIRECT CONTRIBUTIONS FROM DONORS; 
 
    -- DONOR FUNDING FOR SPECIFIC PROJECTS WILL BE PRE- 
FINANCED FROM THE SPECIAL FUND, PENDING RECEIPT OF THE 
FUNDS SPECIFICALLY EARMARKED CONTRIBUTION; 
 
-- FUND BALANCES ON COMPLETED PROJECTS WILL BE RETAINED 
OR TRANSFERRED, AS AUTHORIZED BY DONORS; 
 
-- INTEREST EARNINGS OF PROJECT FUND BALANCES WILL BE 
RETAINED OR TRANSFERRED, PER DONOR INSTRUCTIONS; 
 
-- TRANSFER OF A SHARE OF FUNDS FROM THE DIRECT OPERATING 
COST RECOVERY ACCOUNT. 
 
¶14.  (U)  NOW THAT THE SPECIAL FUND HAS BEEN ESTABLISHED 
INSTITUTIONALLY, FAO WILL BEGIN A FORMAL APPEAL FOR DONOR 
SUPPORT. 
 
U.S. CONTRIBUTIONS 
------------------ 
 
¶15.  (U)  ACCORDING TO INFORMAL FAO STATISTICS, U.S. 
CONTRIBUTIONS TO THE ORGANIZATION'S EMERGENCY ACTIVITIES 
IN RECENT YEARS, IN MILLIONS OF DOLLARS, WERE: 
 
          CY 2000    $4.2 
          CY 2001    $5.6 
          CY 2002    $8.3 
          CY 2003    $6.5 
          CY 2004    $3.0 (TO DATE) 
 
THE ABOVE FIGURES MAY DIFFER FROM USG STATISTICS BECAUSE 
    OF THE CALENDAR/FISCAL YEAR DIFFERENCE, ROUNDING, AND 
WHETHER THE ACTUAL DATE OF FUND TRANSFER OR THE PROJECT 
IMPLEMENTATION DATE IS USED FOR CREDITING CONTRIBUTIONS. 
 
¶16.  (U)  U.S. CONTRIBUTIONS TO FAO EMERGENCY PROJECTS IN 
CY 2000-2004 (TO DATE), ACCORDING TO AN UNOFFICIAL FAO 
TALLY AND SUBJECT TO THE SAME CAVEATS GIVEN ABOVE, WERE 
ALLOCATED PRINCIPALLY TO THE FOLLOWING COUNTRIES OR 
PROGRAMS: 
 
          AFGHANISTAN         $5.9 
          ANGOLA              $5.6 
          SUDAN               $3.8 
          BURUNDI             $2.2 
          SOMALIA             $1.4 
          DR CONGO            $1.3 
          AF REGIONAL OFFICE  $1.3 
          GEORGIA             $1.0 
          FYR MACEDONIA       $1.0 
          REP. CONGO          $0.9 
 
ROME 00001370  005.1 OF 005 
 
TO LIBERIA, ETHIOPIA, AND WEST 
BANK/GAZA. 
 
COMMENT 
------- 
 
¶17.  (SBU)  FAO'S EMERGENCY ASSISTANCE HAS PLAYED AN 
IMPORTANT ROLE IN CRISES AROUND THE WORLD, RESTORING 
AGRICULTURE-BASED LIVELIHOODS AND FOSTERING INCREASED 
SELF-RELIANCE AND LESSENING DEPENDENCY ON FOOD AID. 
FAO HAS IN RECENT YEARS WORKED TO STRENGTHEN ITS EFFORTS 
IN THIS AREA, INCLUDING IMPROVED EMERGENCY NEEDS 
ASSESSMENTS.  OVER THE PAST TWO YEARS, U.S. MISSION 
OFFICERS HAVE VISITED NUMEROUS CRISIS AREAS, AND HAVE 
GIVEN HIGH MARKS TO FAO FIELD STAFF AT MOST, THOUGH NOT 
ALL, OF THESE LOCATIONS.  WE WERE PARTICULARLY IMPRESSED 
    BY FAO'S EMERGENCY WORK IN DR CONGO AND SOUTHERN AFRICA. 
FAO HAS ALSO MOVED AGGRESSIVELY TO UPGRADE THE QUALITY OF 
ITS EMERGENCY SUPERVISORY STAFF. 
 
¶18.  (SBU)  THE USG HAS BEEN A GENEROUS CONTRIBUTOR OF 
FOOD AID TO COUNTRIES AND REGIONS IN CRISIS, HAVING 
CONTRIBUTED WELL OVER $1 BILLION IN FY 2003.  AGAINST 
THIS FIGURE, USG CONTRIBUTIONS TO FAO EMERGENCY 
ACTIVITIES -- WHICH ARE GEARED TO FOSTER A TRANSITION 
FROM RELIEF TO DEVELOPMENT -- HAVE AVERAGED A MODEST 
$6 MILLION.  GIVEN THE UNMET NEEDS IN THIS AREA, WE 
BELIEVE THAT A MEASURABLY HIGHER LEVEL OF U.S. 
CONTRIBUTION WOULD BE JUSTIFIED, AND OFTEN HIGHLY COST 
EFFECTIVE IN TERMS OF LESSENING THE OVERALL BURDEN OF 
FOOD ASSISTANCE. 
 
¶19.  (U)  BAGHDAD, KABUL, KHARTOUM, PORT AU PRINCE 
MINIMIZE CONSIDERED. 
 
HALL 
 
ROME 00001370  005.2 OF 005 
 
TO LIBERIA, ETHIOPIA, AND WEST 
BANK/GAZA. 
 
COMMENT 
------- 
 
¶17.  (SBU)  FAO'S EMERGENCY ASSISTANCE HAS PLAYED AN 
IMPORTANT ROLE IN CRISES AROUND THE WORLD, RESTORING 
AGRICULTURE-BASED LIVELIHOODS AND FOSTERING INCREASED 
SELF-RELIANCE AND LESSENING DEPENDENCY ON FOOD AID. 
FAO HAS IN RECENT YEARS WORKED TO STRENGTHEN ITS EFFORTS 
IN THIS AREA, INCLUDING IMPROVED EMERGENCY NEEDS 
ASSESSMENTS.  OVER THE PAST TWO YEARS, U.S. MISSION 
OFFICERS HAVE VISITED NUMEROUS CRISIS AREAS, AND HAVE 
GIVEN HIGH MARKS TO FAO FIELD STAFF AT MOST, THOUGH NOT 
ALL, OF THESE LOCATIONS.  WE WERE PARTICULARLY IMPRESSED 
    BY FAO'S EMERGENCY WORK IN DR CONGO AND SOUTHERN AFRICA. 
FAO HAS ALSO MOVED AGGRESSIVELY TO UPGRADE THE QUALITY OF 
ITS EMERGENCY SUPERVISORY STAFF. 
 
¶18.  (SBU)  THE USG HAS BEEN A GENEROUS CONTRIBUTOR OF 
FOOD AID TO COUNTRIES AND REGIONS IN CRISIS, HAVING 
CONTRIBUTED WELL OVER $1 BILLION IN FY 2003.  AGAINST 
THIS FIGURE, USG CONTRIBUTIONS TO FAO EMERGENCY 
ACTIVITIES -- WHICH ARE GEARED TO FOSTER A TRANSITION 
FROM RELIEF TO DEVELOPMENT -- HAVE AVERAGED A MODEST 
$6 MILLION.  GIVEN THE UNMET NEEDS IN THIS AREA, WE 
BELIEVE THAT A MEASURABLY HIGHER LEVEL OF U.S. 
CONTRIBUTION WOULD BE JUSTIFIED, AND OFTEN HIGHLY COST 
EFFECTIVE IN TERMS OF LESSENING THE OVERALL BURDEN OF 
FOOD ASSISTANCE. 
 
¶19.  (U)  BAGHDAD, KABUL, KHARTOUM, PORT AU PRINCE 
MINIMIZE CONSIDERED. 
 
HALL 
 
NNNN 
 2004ROME01370 - Classification: UNCLASSIFIED