FOOD SECURITY AND DONOR ACTIVITY IN KENYA BY Gerrishon K. Ikiara A Note Prepared for the International Food Policy and Research Institute Revised Draft 14th May 2012 1 Contents 1.0 1.1 Introduction ...................................................................................................................................... 3 An Overview of Recent Food and Nutrition Security Status in Kenya .......................................... 3 2.0 The Coordination Mechanism for Food Security in Kenya ............................................................... 5 3.0 Donor and Government Investments and Expenditures on Food .................................................... 8 and Nutrition Security ........................................................................................................................ 8 3.1 An Overview of Investments by Development Partners in Food Security Related Activities ....... 8 3.2 Agricultural Sector Medium-Term Investment Plan 2010-2015 ................................................. 12 3.3 Government and Donor Contributions to the Protracted Relief and Recovery Operations Programme (PPRO) ........................................................................................................................ 14 2 Introduction: 1.0 Food and nutritional security has been a major challenge to Kenya for a long time as a result of a wide range of factors including inefficient and inadequate food production, poor distribution and management of available food supplies, challenges associated with climate change, influx of external refugees from neighbouring countries, internally displaced persons, poor coordination among various government institutions as well as among donors and other stakeholders involved in food security and related issues and financing constraints. After a brief overview of food and nutrition situation in Kenya in the last few years, this note reviews some of the major programmes targeted on food and nutrition security issues; the participation of government, donors and other stakeholders involved in the financing and implementation of the programmes; and the nature of coordination mechanisms within government ministries and other government institutions, as well as existing coordination mechanisms involving government on one hand development partners and other stakeholders, on the other. The note further makes observations on the strengths and weaknesses of the coordination mechanisms. The note focuses on the following related issues to food and nutrition security: 1) 2) 3) 4) The broad categories of food security that are underway in Kenya. An examination of the volume of foreign aid into food security efforts in Kenya in the recent past. Government efforts to coordinate foreign aid directed to food security and related efforts. Development partners coordination of aid among themselves and with government institutions. 1.1 An Overview of Recent Food and Nutrition Security Status in Kenya Kenya continues to suffer from high levels of food and nutritional insecurity. The country’s draft Sessional paper on Food and Nutrition security estimates that about 10 million people (25 percent of the total population) suffer from chronic food insecurity and poor nutrition while another 2 to 4 million need emergency food assistance throughout the year, (Republic of Kenya, National Food and Nutrition Security Policy, Draft, July 2011, p(vii). The country has faced major nutritional deficiencies for a long time. Official data from government sources including Central Bureau of Statistics, the Kenya Demographic and Health Surveys, show that about 35 percent of the children are stunted due to an insufficient and inadequately balanced diet and that for a whole decade between 1998 and 2008, there was no improvement in the nutritional status of this category of children. Kenya’s food security is especially influenced by droughts. For instance, while the country’s food insecurity had declined by more than 12 percent between 2002 and 2007 when there was no 3 major drought, the food security situation deteriorated dramatically soon after as a result of severe drought conditions during 2007-2009 period, leading to a six-fold increase in the number of people requiring food assistance, from 650,000 to 3.5 million respectively (Government of Kenya, Medium-Term Plan, 2010-2015,p2). Stressing the critical contribution of changing purchasing power to the trends in the country’s food security, Kenya Agricultural Sector 2010-2015 Medium-Term Plan notes: “low purchasing power is a significant driver of food insecurity in the country…and that increased food output alone is unlikely to significantly reduce food insecurity on aggregate” especially in a situation of escalating inflation (IBID). Despite the desire to meet the MDG goals, indications are that the country is unlikely to meet its 2015 MDG targets of reducing poverty and hunger by 50 percent, based on the Millennium Development Goals Report of 2009 and 2010. The country’s food security situation has been aggravated by a large number of refugees that the country has continued to host for more than two decades. The refugees are drawn from countries like Somalia, Ethiopia and Southern Sudan which have suffered from long-drawn civil wars or conflicts some of which have lasted for more than two decades. Kenya’s new draft Food and Nutrition Policy provides a broad framework bringing together various dimensions and a review of measures needed to strengthen the coordination of various food security and nutrition enhancement strategies for the Kenyan population. The policy also attempts to coordinate more effectively initiatives from various sectors as well as government and development partners initiatives, enhance better harmonization, alignment between activities and initiatives emanating from the sectoral groups, central government and development partners to ensure that efficiency and other benefits from these activities are maximized and that the initiatives are relevant, coordinated and adequately responsive to the rapidly changing conditions and challenges. A key objective of the proposed policy is to achieve the government’s stated objective that all Kenyans throughout their life-cycle will enjoy at all times safe food in sufficient quantity and quality to satisfy their nutritional needs for optimal health. The main objectives of the draft National Food and Nutrition Policy can be summarized as follows: 1. Attainment of good nutrition for optimal health of the country’s population 2. Increase the quantity and quality of food supplies in the country, which is readily accessible and affordable to the whole population at any time. 3. Enhancing value and creating synergy to existing initiatives by sectoral, government, and development partners initiatives. 4 4. The policy recognizes the importance and attempts to promote an all embracing multi-public and private sector participatory framework. 5. The policy is designed in a way that will enable it remain dynamic and able to handle situations and conditions in the country and globally. 6. Ensure that vulnerable groups are protected against food and nutrition insecurities through appropriate and innovative cost-effective safety net measures that are linked to long-term development. 7. The Policy is based on human rights, child rights and women’s rights including the universal “Right to Food”. After a long delay, the draft policy paper was discussed and adopted as a Sessional Paper by the Kenya Parliament in May 2012. 2.0 The Coordination Mechanism for Food Security in Kenya Until 1998, Kenya’s food security activities as well as early warning systems were largely uncoordinated, both among donor organizations as well as within government institutions. A large group of international organizations involved in early warning, food distribution, collection of data relating to food and nutritional status, etc, carried out activities independently and with limited consultation or exchange of information. The consequences of this weak coordination was lack of a consistent analysis of the situation, duplication of efforts leading to wastage, poor and sometimes contradictory policies, the emergence of parallel systems created by development partners and the government, and inefficient implementation of food and nutritional security programmes. One of the early efforts to create some coordination on food security and related issues was an initiative of the World Food Programme (WFP) in the early 1990s. The coordination efforts were chaired by the WFP with the participation of a limited number of international organizations. The initiative was in form of a bi-weekly forum, whose main objective was to share and exchange information relating to emergency food issues aimed at improving its operational efficiency and creating more coordinated structure for estimation financing and distribution of emergency food supplies. In 1998, WFP, Government of Kenya, development partners and other institutions agreed to establish a broader forum which would coordinate all parties involved in food security activities in Kenya. The Kenya Food Security Meeting (KFSM) was thus created with the broad objective of bringing together all parties involved in food security and widen the scope of the fora to include related activities such as running an early warning system, undertaking more accurate and comprehensive food security analysis and providing updates on the situation. Soon after members of the KFSM agreed to establish a steering group nominated from its members, known as the Kenya Food Security Information Steering Group (KFSSG).Its mandate was to develop a sustainable, comprehensive, and multi-agency coordination framework able to carry out early warning, food security status monitoring, and assessments for the country. 5 The overall Food Security Coordination structure today consists of: 1. The Kenya Food Security Meeting (KFSM) which is a national open forum comprising senior level representatives of all interested organizations involved in food security and related activities including senior GoK officials, United Nations agencies operating in Kenya, other development partners, international NGOs and other stakeholders. The meetings are usually co-chaired by the government and the UN (mainly WFP). This acts as the top policymaking organ for both Government and donor organizations. 2. Below KFSM is the Kenya Food Security Steering Group (KFSSG) which is a technical subcommittee of the KFSM. Its functions include provision of technical advisory services to members of KFSM on issues related to food security and drought. The sub-committee is also co-chaired by the GoK and the UN. Members of the sub-committee are usually appointed from the KFSM member organizations with technical capacity on issues related to food security and drought management. Some of the GoK representatives in KFSSG sub-committee are from the Office of the President, Ministries of Agriculture, Livestock Development, Water and Irrigation, Medical Services, Public Health and Sanitation and Education. Representatives of the donor organizations in the sub-committee include FAO, WFM, UNICEF, UNDP,USAID, World Vision, Oxfam, CARE-Kenya and a number of other development partners. KFSSG activities are expected to serve Sectoral Working Groups (SWGs) namely, Data and Information, Health and Nutrition, Agriculture and Livestock, Water and Sanitation, Food Aid Estimates, Education & Disaster Management. The Sector Working Groups work through coordination of sectoral activities in their areas of specialization and are usually chaired by the GoK representatives. 3. Food Security Coordination Committee is another component of the food security coordination mechanism. It is comprised of senior government officials from the key relevant ministries such as Agriculture and Livestock, Water andIrrigation, Health and Nutrition, Special Programmes, etc. The committee is chaired by the Head of Public Service and meets periodically to review the nation’s food security situation, drought and other related issues, based on the technical information from KSSG. The high level representation from the key ministries is meant to facilitate quick decision making and implementation of agreed actors. 4. Food Security Executive Committee is another focal point and takes place in Cabinet meetings held to discuss food security issues especially those requiring urgent national attention. The meetings are chaired by the President. 5. In addition to the above national and sectoral forums, Kenya’s food security coordination mechanism is decentralized to the district level in form of the District Steering Groups (DSGs), chaired by the District Commissioners and acting as KFSM at the district level. Technical District Steering Groups, consisting of technical arms of DSGs, play a similar role 6 to that of KFSSG; and Community Level structures especially in areas where communities have received some training and organized in local community development committees or other relevant committee actively participate in managing food security, drought and related issues such as transparency and accountability in food distribution. Fig 1. National Level Kenya Food Security Coordination Structures Kenya Food Security Meeting Health & Nutrition WG Kenya Food Security Steering Group Emergency Education WG WESCORD Data & Information WG Disaster Management WG Food Aid Estimates Agriculture & Livestock WG Information & Reporting Flow Management Support Source: Ministry of Special Programes 7 3.0 Donor and Government Investments and Expenditures on Food and Nutrition Security This section of the note looks at the relative levels of participation of donor institutions and government of Kenya in financing two programmes. The first example is on the financing of Agricultural sector’s Medium-Term Plan aimed at creating sustainable medium-term and longterm structures for enhancing food and nutrition security in the country, while the second example looks at the participation of World Food Programme (WFP) and Government of Kenya in food relief and recovery programme for the vulnerable populations in 24 arid and semi-arid districts that suffer from prolonged drought periods. 3.1 An Overview of Investments by Development Partners in Food Security Related Activities Development Partners have played a key role in Kenya’s food security through directly funding some of the food security activities and indirectly through broad support to the agricultural and infrastructural projects that have facilitated more efficient and good distribution of available food. In its latest Agricultural Development support programme, the government identifies the following as the country’s “major development partners” in the Kenya’s agricultural and rural development sectors: the World Bank, ADB, EU, FAO, FAD, WFP, UNDP with regard to multilateral institutions and GTZ, Denmark, Sweden, USAID, Finland and Japan in the case of bilateral donors (Republic of Kenya, “Agricultural Sector Development Support Programme: Programme Document” Ministry of Agriculture, Sept 2011, Nairobi). World Food Programme (WFP) According to the Ministry of Special Programmes the World Food Programme is the most dominant player in Kenya’s provision and handling of emergency relief food distribution in the country. Thus, out of the 4.3 million people requiring emergency food supplies between May and December 2011, about 3.8 million of the people were under WFP while only 0.5 million were under GoK run food programmes, underlining the dominant position of WFP. The organization also supports about 550,000 refugees in the country’s two main refugee camps, Dadaab and Kakuma catering for refugees from Somalia and Southern Sudan respectively. WFP has also been the main supporter for the country’s supplementary feeding programme catering for an estimated 80,000 malnourished under-5 year old children and the school meals programme targeted at about 630,000 pre-primary and primary school children in the arid and semi-arid areas and slum areas of Nairobi. 8 The GoK is also providing school meals to about 659,000 such needy children who were previously under the WFP as part of the changing policy of WFP to move away from short-term intervention measures for Kenya’s food security problem to measures that are more sustainable and are targeted at economic recovery including food-for-assets and cash-for-assets support activities for enhancing the country’s food security status. It is estimated that by end of 2012, about 950,000 people would be involved in these projects, with half of them participating in food distribution and the other half through cash-for-assets programmes. As part its longer term projects aimed at enhancing of sustainable food security, WFP has been working with other development partners and GOK to build capacities of small holder farmers in food production, food storage technologies, management of warehousing facilities, quality control and record keeping. In addition to food security issues, WFP has also been supporting the country’s programmes related to the implementation of all the Millennium Development Goals (MDGs) and the country’s Vision 2030 programme aimed at transforming Kenya into a middleincome developing country by 2030. WFP food security and related activities programme for Kenya 2012 are planned to cover 5,243,500 beneficiaries requiring 345,281 metric tonnes of food at a total cost of approximately USD 369 million Africa Development Bank (ADB) The African Development Bank (ADB) continues to be a key investor in programmes that directly and indirectly address food security issues in Kenya. ADB has established a close relationship with the government and is rated very highly with regard to its implementation of the Paris Declaration on aid effectiveness. It has for instance, aligned its Country Strategy Paper 2008/2012, with the government’s Medium Term Investment Plan (MTIP). The Bank’s investment programme is strongly tilted towards infrastructural projects which account for almost 68 percent of its portifolio in its 2008-2012 country strategy with agricultural related projects having a 17.6 percent sharing (Republic of Kenya, 2011, p.9). some of the road projects funded by ADB have opened up large areas of the arid North-Eastern province significantly improving transportation of food in the region by private sector traders as well as for government food distribution efforts. Department for International Development (DFID) The UK’s Department for International Development (DFID) has also been a major donor in support of food security in Kenya. It has largely focused on assistance to arid and semi-arid areas 9 of Kenya, especially in North-Eastern Province which has been one of the highly vulnerable areas in Kenya in terms of food security. Since 2008, DFID has given financial resources for technical support to the Ministry of State for Northern Kenya, first established as a Ministry in 2008 to help deal with special problems of the area.DFID has also been the main supporter for the Hunger Safety net Programme, providing cash transfer resources for the elderly and the poor in the region. DFID has negotiated with GoK to increase its support for Northern Kenya for UK Pounds 15 million starting in 2011. European Union (EU) The European Union continues to be a key development partner investing in food security and related issues in Kenya, with special focus on promotion of “agricultural productivity and commercializing the development of ASALs and livestock security” (Republic of Kenya, 2011, p.9). Apart from direct financing a wide range of developmental programmes such as infrastuture water and energy, EU is one of the major contributers to WFP resource base that find their way in food security related activities making EU a key player in enhancing Kenya’s food security directly and indirectly. During a recent official visit to Kenya by the EU’s commissioner for development Mr Piebalgs it was announced that EU has budgeted 4.3 billion ksh (USD 5.2) for investment in food security programmes (Daily Nation, 3rd May 2012 p.9) The World Bank The World Bank is associated with the support of the Kenya Agricultural Productivity and Agribusiness Project (KAPAD). The project is in its second phase and is described by the Ministry of Agriculture as “one of the main agricultural programmes in Kenya”. Its main objective is to raise agricultural productivity and increases for small scale farmers in the project areas, through modernization of agricultural technologies, promotion of agribusiness and empowerment of the project participants and other stakeholders. The Bank has been negotiating with the Kenya Government to extend q credit facility of USD 50 million for the extension of cash transfer programmes to covet more beneficiaries in more parts of the country. Nordic Countries The government of Netherlands has been another important development partner in the financing of food security enhancing activities in northern Kenya. With its aid channeled through SNV Kenya, Dutch assistance has been directed at raising agricultural productivity, improving access to markets and to opening up domestic, regional and international trade opportunities. Finland has provided key financial support to the Programme of Agriculture and Livelihoods in western communities (PALWECO) of Kenya. The programme focuses on improving the region’s food security through enhancement of the rural population’s livelihoods. The current 10 budgeted resources for the programme amount to Euros 30.5 million with the project being implemented by the Ministry of State Planning and National Development and Vision 2030. Jointly Funded Food Security Programmes: Cash Transfer Initiatives As part of the country’s food security programme, Kenya has been implementing some Cash Transfer Programme for the orphans and vulnerable children (OVC), The Elderly and the Hunger Safety net Programme mainly in the country’s ASAL pastoralist areas of Northern Kenya. These cash transfer programmes have been implemented in collaboration with a number of key development partners, notably the World Bank, DFID, UNICEF and others (See Table 1). While the development partners played a leading role at the initial stages of these cash transfer programmes, the government’s participation in financing the programmes has dramatically expanded between 2005/06 and 2008/09 financial years from a budget of USD 800,000 to more than USD 9 million. This trend of rapid expansion of government financing of cash transfer (programmes for the most food security vulnerable sections of the Kenyan population continued during the 2009/10 and 2010/12 financial years with the government shouldering increasingly heavier responsibilities.. The main objectives of the programme include reduction of malnutrition among children aged below 5 years and pregnant mothers or those with babies, provisions of safety nets and facilitated by asset creation for vulnerable communities to raise their capacity to cope with some of the sources of food insecurity, support and help sustain livelihoods for more secure food and nutrition status, and improvement of nutritional status for vulnerable women and children. The programme is expected to be aligned with relevant government strategies as well as with those of the United Nations e.g the United Nations Development Assistance Framework 20092013. 11 Table 1: The scale-up of Kenya’s OVC-CT programme 2005-2010 Scale-up 2005 2006 2007 2008 2009 2010 Household coverage 500 3,000 12,500 25,000 70,000 100,000 District coverage 3 17 37 37 47 47 Partners GOK, Sida, UNICEF GOK, Sida, UNICEF GOK, Sida, UNICEF , DFID GOK, Sida, UNICEF , DFID, Danida GOK, Sida, UNICEF, DFID, Danida, World Bank GOK, Sida, UNICEF, DFID, Danida, World Bank 7 Source: UNICEF Kenya. 3.2 Agricultural Sector Medium-Term Investment Plan 2010-2015 Kenya has developed a 5-year Medium-Term Investment Plan, 2010-2015 as a key strategy for enhancing her food and nutrition security. The plan has a budget of 247 billion ksh (3.1 million USD) and consists of 6 main investment pillars: increasing productivity, commercialization and competitiveness promotion of private sector participation; strengthening sustainable land and resource management; performing delivery of agricultural services; increasing market access and trade; ensuring effective coordination and implementation.(Government of Kenya, Agricultural Sector Development Strategy: Medium-Term Investment Plan: 2010-2015, p45). Each of these investment pillars attempts to address important areas that are regarded as crucial in strengthening the country’s food and nutrition security in the medium term and to address one of the major weaknesses in the country’s food and nutrition security with regard to over emphasis on emergency responses at the expense of medium and long-term sustainable situations. 12 Table 2 shows the main investment pillars of the plan and budgetary share of each of them, while Table 3 gives the financial contributions by the Government, development partners, the private sector and the resulting financing gap. The highest priority is accorded to promotion of sustainable land and natural resource management which is allocated 103.7 billion ksh(1297 million USD)- 42 percent of the total budget for the five-year period. The second in priority pillar is enhancing productivity, commercialization and competiveness, which is allocated88.92 billion ksh(1,112 million USD) – 36 percent of the total budget for the period (See Table 2). The Government of Kenya is expected to play the most dominant role in the financing of the medium-term plan, accounting for approximately 65.3 percent of the total budget. Development Partners are expected to meet about 31 percent of the budget, approximately 77 billion ksh during the period, with the private sector expected to contribute 2.6 billion ksh or 1 percent of the total budget. A funding gap of almost 35 percent is projected (see Table 3). The investment plan is designed to be implemented in a coordinated framework that allows all stakeholders including development partners, private sector and government to participate effectively in its three-layer mechanism, ,i.e at the national, sub-national, and local levels. Table 2: The 5-year MTIP budget 2010-2015 Investment Pillar Ksh Billion USD million Budget Share (%) 1. Increasing productivity, commercialization and competitiveness 2. Promoting private sector participation 3. Promoting sustainable land and natural resource management 4. Reforming delivery of agricultural services 5. Increasing market access and trade 6. Ensuring effective coordination and implementation TOTAL 88.9 21,112 36.0 30.88 386 12.5 103.74 1,297 42.0 2.47 31.0 1.0 19.75 247 8 1.24 15 0.5 247 3,088 Source: Ministry of Agriculture, Kenya 13 Table 3: MTIP financing (Kshs billion)(2010-2015) Year 1 Year 2 Year 3 Year 4 Year 5 Total Share Total MTIP 37.05 46.93 46.93 53.34 61.75 247.00 100% GoK 28.45 30.35 32.24 34.14 36.04 161.22 65.3% Contribution Funding Gap 8.60 16.58 14.69 20.20 25.71 85.78 34.7% Development 15.4 15.4 15.4 15.4 15.4 77.00 31.2% Partners Private 0.46 0.48 0.51 0.54 0.57 2.55 1.0% Sector Remaining 6.23 2.5% Gap Source: Agricultural Sector Development Strategy: Medium-Term Investment Plan:2010-2015, Government of Kenya, 2010 3.3 Government and Donor Contributions to the Protracted Relief and Recovery Operations Programme (PPRO) Twenty-four districts in Kenya are currently listed as areas which suffer from prolonged food insecurity and needing relief and recovery activities most of the time. The estimated number of people or beneficiaries needing relief food in these districts was estimated to be 2,352,000 (See Appendix table). In 2010, out of 2,352,000 beneficiaries of the PPRO programme, slightly more than half of them (i.e. 1.2 million) were under the general food distribution programme, with the rest involved in food for assets, supplementary feeding for mother and child health care and expanded school feeding programmes. To handle the problems associated with these programmes, the Protracted Relief and Recovery Operations programme (PPRO) was created in May 2009 as a joint programme implemented and coordinated jointly by the Government of Kenya through the relevant ministries and the World Food Programme (WFP). The programme was to run between May 2009 and April 2012. The main objective of PPRO is to undertake relief and recovery to the vulnerable population in the country, with special attention to the above 24 districts, to be found in largerly arid and semi-arid parts of Kenya. The programme is mainly financed and implemented by the Government of Kenya and World Food Programme. However, contributions through WFP continue to be the main source of funding of the programme. Although the Government of Kenya was expected to contribute 30 percent of the resources needed for the programme, this target has not been achieved, according to the available information, implying that WFPs contribution to the programme was above 70 percent per annum. 14 By end the of 2010, the WFP had received an estimated ksh 21 billion from various donors for the PPRO programme, whose total resource requirements for the three year period was estimated to be ksh 37 billion (US$ 474 million). Thus, by end of 2010, 57 percent of the required expenditure budget for PPRO had been raised through WFP. Between end of May 2011 and December 2011, an estimated number of 4.3 million people in Kenya were under emergency and relief food programme, out of which 3.8 million were covered by the World Food Programme while 0.5 million were under the government of Kenya Programme indicating the dominant role of the World Food Programme in financing of Emergency and Relief food programme in the country. 15 Appendix 1 Beneficiary Numbers Under the Protracted Relief and Recovery Operation (PRRO)-2011 District No. of Beneficiaries 1. Turkana 265,300 2. Marsabi 90,200 3. Samburu 82,600 4. Moyale 16,600 5. Isiolo 55,600 6. Mandera 117,000 7. Wajir 172,700 8. Garissa 101,700 9. Ijara 26,100 10. Tana River 58,400 11. West Pokot 64,800 12. Baringo 45,300 13. Kajiado 46,300 14. Laikipaia 66,200 15. Makueni 129,600 16. Kitui 37,100 17. Mwingi 45,900 18. Mbeere 24,600 19. Tharaka 15,600 20. Kilifi 41,000 21. Kwale 60,900 22. Malindi 25,600 23. TaitaTaveta 33,700 24. Koibatek 11,300 Total 1,634,100 Source: Ministry of State for Special Programes, Government of Kenya 16 References 1) Daily Nation, 3rd May 2012 pg 9 2) Government of Kenya, Medium-Term Plan 2012-2015. 3) Gerrishon Ikiara, Cash Transfer as an Instrument for Food Security in Kenya, paper prepared and presented at African Women Studies Centre on Implementation of Article 43(1)(C), September 2011, Nairobi, Unpublished. 4) Republic of Kenya “Agricultural sector Development Support Programme; Programme Document”, Ministry of Agriculture2011, Nairobi. 5) Republic of Kenya, National Food & Nutrition Security Policy, draft July 2011 17