RESTRICTEDWORLD TRADE
ORGANIZATIONWT/COMTD/W/72
16 June 2000
(00-2414)
Committee on Trade and Development
WTO TECHNICAL COOPERATION ACTIVITIES
INTERIM EVALUATION REPORT
Note by the Secretariat
Contents
Page
I. INTRODUCT ION ................................................................................................................3
II. ACTIVITIES:  ANALYSIS OF THE SITUATION AND FORMULATION OF
CONCLUSIONS AND RE COMMENDATIO NS..............................................................4
1. Preparation and dissemination of background documents and support materials,
and short-term training........................................................................................................ 4
2. Organization of seminars, workshops, technical missions, and courses on trade
policy ......................................................................................................................... .............5
3. Supply of data on trade and tariffs and other information...............................................7
4. Setting up of WTO Reference Centres................................................................................7
5. Joint projects and participation in technical assistance activities organized by other
regional and internatio nal institutions................................................................................8
6. Coordination and cooperation with other relevant organizations ...................................9
III. OVERALL EVALUATION  AND RECOMME NDATIONS .........................................10
A. C ONCEPT AND DESIGN ..........................................................................................................10
B. B UDGET AND FINANCING ......................................................................................................11
C. I MPLEMENTATION OF ACTIVITIES AND AREAS OF WTO INTERVENTION ..............................12
1. Reception by beneficiaries..................................................................................................1 2
2. Comparative advantages of the WTO...............................................................................123. Capabilities of technical teams ..........................................................................................13
4. Programming of technical cooperation activities.............................................................13
D. A
REAS OF WTO INTERVENTION ...........................................................................................14
(i) Notific ation ................................................................................................................ ...........14
(ii) Customs valuation.......................................................................................................... .......14
(iii) Dispute settlement........................................................................................................ .........15
(iv) Intellectu al property ...................................................................................................... .......15
(v) Technical barriers to trade ................................................................................................. ..15WT/COMTD/W/72
Page 2
(vi) Negotiating techni ques ..................................................................................................... ....16
E. I NTERACTION WITH OTHER WTO ACTIVITIES ......................................................................16
F. C OORDINATION .....................................................................................................................16
1. Within WTO structures .....................................................................................................16
2. With other appropriate regional and international organizations.................................17
G. C OVERAGE , RELEVANCE AND IMPACT OF WTO TECHNICAL COOPERATION ACTIVITIES .....17
H. G ENERAL CONCLUSIONS .......................................................................................................19
IV. RECOMMENDATIONS AND LESSONS LE ARNED...................................................19WT/COMTD/W/72
Page 3
I. INTRODUCTION
The Guidelines for WTO Technical Cooperation (document WT/COMTD/8) call for
monitoring and evaluation to be carried out by the Committee on Trade and Development based on
annual evaluations of the results of technical assistance activities, in order to ensure optimum use of
resources according to appropriate evaluation criteria.  In this context, and to underpin the evaluation
effort required of the Committee, the Secretariat has prepared this interim evaluation report based on a
comprehensive study of technical cooperation and assistance activities carried out in pursuance of its
objectives.
Having regard to the objective set by the Committee, this evaluation is intended to assess the
relevance and effectiveness of technical cooperation and assistance activities and to note indicators of
impact they are deemed to have on beneficiaries.  It will also formulate recommendations on the basisof experience acquired and with an eye to the future directions of WTO technical cooperation
activities.
Generally speaking, the study focused on activiti es during the past tw o years (1998/1999).  As
a mid-term assessment, it is not intended to draw final conclusions on the impact of technicalcooperation activities on beneficiaries.  This evaluation has, whenever possible relied on quantitative,
qualitative, and approximate indicators.
The application of the evaluation’s findings is vitally important to the continuation of these
activities, and underscores the significance of the evaluation exercise.  Also, the conclusions andrecommendations emanating from this study will, following review by the Committee, be made
known to beneficiaries and to all WTO staff working in the area of technical cooperation.  A work
plan will be drawn up to this end.
With respect to methodology, the study was carried out in three stages.  The first stage
focused on documentation, training materials used, and the related information technology resources.
At the same time, interviews were conducted with responsible staff in the Secretariat.
The second stage consisted of field missions, either to accompany staff providing technical
assistance or to gather information from beneficiaries and direct users of technical cooperation
services.  Specific questionnaires were used to structure interviews and group discussions held for this
purpose.  Five countries were visited between November 1999 and April 2000.  The number of peopleinterviewed varied from country to country, from10 to 40 individuals in government departments, the
private sector, and academic circles.  In one case, a meeting was organized especially for evaluation
purposes with the national committee charged with WTO matters.
During the third stage, conversations were held in Geneva with the Permanent Missions of
beneficiary countries and donors, in order to validate the hypotheses reached and complete the
information gathered.
In parallel to this exercise, questionnaires designed to gather the opinions of participants on
the various technical cooperation activities were analyzed under a survey and sampling approach thatenabled preliminary conclusions to be drawn on the relevance and effectiveness of those activities.
Accordingly, this report provides a good account of feed-back from the parties concerned.  It
is intended to convey to the Committee their opinions and their assessments of the technical
cooperation activities.WT/COMTD/W/72
Page 4
The logical framework method – widely used in other international organizations in
evaluation exercises – has been used to the extent possible to structure the various elements of
evaluation.
II. ACTIVITIES:  ANALYSIS OF THE SITUATION AND FORMULATION OF
CONCLUSIONS AND RECOMMENDATIONS
The objectives of technical cooperation and assistance activities, which have their
underpinnings in WTO official texts and the WTO mandate, are to help beneficiary countries improve
their understanding of the WTO Agreements and implement the obligations deriving therefrom.  They
are to assist in the full integration of beneficiaries into the multilateral trading system and support
them in positioning themselves in the new internati onal trading environment.  In the context of these
objectives and through its technical cooperation activities, the Secretariat aims to:
• Ensure the widespread dissemination of information on the WTO and its Agreements
and facilities;
• promote the development in beneficiary countries of a specialized knowledge base
and the institutional and technical capacity required for implementation of the WTOAgreements;
• Support human and institutional capacity building activities in beneficiary countries
to enable them to participate in WTO processes and use its facilities.
An examination of these specific objectives shows that they are meant to contribute to
achieving the overall objectives outlined in the WTO official texts.
In pursuance of these objectives, the Secretariat employs the instruments and modes of
delivery outlined in the Implementation Modalities contained in document WT/COMTD/W/29/Rev.1.
1. Preparation and dissemination of background documents and support materials, and
short-term training
Three types of documents are used in support of the various technical cooperation activities
organized by the WTO and those in which it takes part:
• WTO official documents and publications;
• internal documents and support materials such as technical and sectoral information
notes;
• technical manuals and guides designed to assist beneficiary countries in
implementation and notification, access to information and communication of trade
and tariff data, and building up data bases;
• the third document category covers presentations made during the implementation of
activities by WTO staff, as well as training packages on WTO agreements and issues.
Most of this documentation is prepared in  advance, translated into the WTO official
languages, and sent to the beneficiary countries in connection with various technical cooperation
activities.
Information technology is widely used in the dissemination of documents and training
materials to beneficiary countries.  The training package developed by the Secretariat has been posted
on the WTO web-site and is fully accessible on line.WT/COMTD/W/72
Page 5
With respect to the distribution of official documents and other published documents, the
Document Distribution Mechanism (DDM) provides access to the relevant documents in the WTO
electronic archives.  According to the number of users and, in particular, the Reference Centres, this
mechanism greatly facilities access to information on matters handled by the WTO  and contributes to
the smooth operation of, inter alia, WTO technical cooperation activities.
It was noted that the training packages developed by the Secretariat appear at times to lack an
optimal pedagogical approach to pass on knowledge simply and effectively.  Content and form are not
always adapted to the varying levels of participants.
In the case of technical manuals and explanatory documents, which are extremely useful to
beneficiaries, not all of these have been translated into the WTO official languages (e.g., generaldocuments on consolidated tariff lists and directions for use of WTO software).
The use of other audiovisual aids such as videos should help improve the stock of training
materials and the dissemination of information on WTO matters (e.g., the video on the dispute
settlement system).
2. Organization of seminars, workshops, technical missions, and courses on trade policy
In response to demand from beneficiary countries and in the context of the annually adjusted
Three-year Plan, the Secretariat (Technical Cooperation Division and other WTO substantive
Divisions), organizes seminars, workshops, technical missions, and courses on trade policy.  Such
activities take place in cooperation with the appropriate national institutions and according to the
needs and preferences of beneficiaries.
These activities are organized at the national, regional and subregional levels according to
demand, topics covered, and shared beneficiary needs.
Similar activities are organized in Geneva, particularly in the area of trade policy training.
Other initiatives, also in Geneva, are targeted to  non-resident delegations to bring to them the
advantages of technical cooperation activities, familiarize them with WTO issues, and help them
prepare for WTO milestones.  Activities organized in Geneva are designed and carried out for a broad
range of participants all over the world.
This report does not cover regular training courses organized by the Training Division, which
are covered under its own separate evaluations.
This evaluation covers the dissemination of information on WTO issues, understanding of the
Agreements and related technical issues, as well as compliance with obligations deriving from themultilateral trading system.  The application of WTO rules and mechanisms – a sine qua non for
improved participation by the countries in the multilateral trading system – would appear not to be
given the requisite priority within technical cooperation activities.
Issues relating to trade and environment are often dealt with in the context of regional
activities, given shared objectives and needs as well as common problems.
Technical cooperation activities relating to emerging issues, in particular trade and investment
and trade and competition policy, which derive their raison d’etre from the Singapore work
programme, appear to focus on services designed to assist delegations in monitoring the work of thetwo task forces set up by the Singapore Ministerial Declaration.  Three seminars were organized in
Geneva in 1998 and 1999 on trade and investment issues, as well as three on trade and competition
policy.  The remaining technical cooperation activities were undertaken in the form of SecretariatWT/COMTD/W/72
Page 6
participation in activities organized by regional organizations, in particular in Pacific Asia and Africa.
The trade policy courses also covered these matters.
Given the importance of these activities for member countries and the interrelation between
these matters and other WTO issues, it may be considered useful to strengthen technical cooperationactivities in these crucial areas.  Technical cooperation needs in these areas are widely felt, according
to the conversations held on the subject.  Cooperation undertaken with UNCTAD following the
Singapore Ministerial could be strengthened further.  Cooperation with other international and
regional institutions would be very useful.
On the subject of the organization of short-term courses on trade policy, either in Geneva or
in beneficiary countries or regions, feed-back received indicates that these activities are highlyappreciated as a way of better structuring the transfer of knowledge and targeting specific topics of
interest to participants.  This is one of the most effective ways of improving knowledge in beneficiary
countries.
Participant selection continues to be fundamental to achieving the objectives of training
courses.  This exercise should be strengthened by stepping up coordination with beneficiary countries.
One of the most successful formulas, both in the opinion of the beneficiaries and as reflected
in the experiences of other international organizations, is the training of trainers, which brings
considerable multiplier effects to the country concerned.  The WTO could opt to employ this formulamore actively in pursuance of its goal to set up and strengthen networks of trainers on multilateral
trading system issues.
This same formula, were it to bring in training institutions in the beneficiary countries, would
be an effective and efficient means of contributing to establishing a solid and lasting knowledge base.Centres of excellence could be developed with these institutions.  The Secretariat is currently
deploying efforts in this direction.
Other international organizations have experi mented with new training methods based on
recent technologies, such as distance learning by videoconferencing.  These methods can be more
efficient since they can reach a larger number of people and target groups.  In interviews conducted in
certain developing countries with technology lags, however, it was clear that some care must be takento ensure that such methods, if adopted, do not further marginalize the neediest.
Technical assistance continues to be provided by the Secretariat within the context of the
Trade Policy Review Mechanism (TPRM) in order to assist countries, upon request, to prepare their
government reports and perfect their understanding of the Mechanism.  Activities relating to thepreparation of the WTO Secretariat report have often contributed to a better understanding of WTO
issues and obligations undertaken by Members, through contacts made with the various national
departments concerned.
Through an analysis of TPRM-related tech nical cooperation activities, the following
conclusions may be put forward:
• Some countries are requesting a review of their trade policy, along with the
accompanying assistance, for a second time since the Mechanism was instituted;
• other countries are themselves preparing the second government report without
requesting assistance from the Secretariat.  This is an indicator of the impact on the
beneficiaries of services provided during preparation of the first report;
• other countries have not made any requests to date.WT/COMTD/W/72
Page 7
The usefulness of technical cooperation activities is apparent both in the manner in which the
government report is prepared and in the direct and indirect effects of preparation and review of the
content of the two reports on understanding and compliance.
To better integrate technical cooperation activities with trade policy overall in the beneficiary
countries, both the Secretariat report and the government report should include a section on technical
cooperation activities.  The reports could reflect an evaluation of technical cooperation needs as well
as the impact of assistance activities provided earlier.
Another formula for technical assistance that has been applied since early 1998 provides for
one or two-year practicums for young trainees from developing countries, after which they return totheir countries with the benefits of experience acquired.
3. Supply of data on trade and tariffs and other information
The Secretariat has regularly provided data on trade flows, tariffs, and non-tariff measures at
the request of the countries.  In this regard, studies are prepared on particular products and sectors ofinterest to developing countries.
The Secretariat also provides technical information to assist the countries in evaluating lists of
offers from other countries concerning access to markets for goods of interest to their exporters.  In
the area of services, the Secretariat has assisted developing countries in evaluating opportunitiesderiving from specific commitments undertaken by developed countries under the General Agreement
on Trade in Services.  The Secretariat has also prepared general studies on the incidence of the WTO
Agreements and information bulletins on specific issues and sectors.
In addition, the Secretariat supplies information and technical advice on WTO issues on a
daily basis to delegations and responsible officers in the capitals.
According to opinions expressed by benefici aries, these two modes of delivery are highly
regarded as key elements of technical cooperation.
4. Setting up of WTO Reference Centres
WTO Reference Centres are set up to give beneficiary countries an opportunity to employ
new technologies to obtain access to information on the multilateral trading system and promote the
flow of information with the WTO.  The programme for setting up these centres in the least developed
countries calls for supplying electronic equipment and software developed by the WTO, along with
documentation and training in their use.
By the end of 1998, Reference Centres had been set up in 42 countries.  By the end of 1999,
68 countries had the benefit of these facilities.  By April 30, 2000, there were 76 WTO Reference
Centres in existence, and plans call for continuing the expansion to other countries and to regional and
sub-regional institutions requesting them.  In the case of regional and sub-regional institutions, the
WTO provides training only.
In addition, consideration is being given to providing an Internet connection free of charge to
all Reference Centres in least developed countries.
The WTO Reference Centres are assuredly vital to developing countries in the sense that they
make a valuable contribution to information acce ss capabilities and the formation of the requisite
knowledge base for understanding and participating in the multilateral trading system.WT/COMTD/W/72
Page 8
Nevertheless, the programme is experiencing some initial difficulties with equipment
maintenance which are posing serious problems for the smooth operation of the Reference Centres.
Following up on training activities and updating WTO software and documentation (library and
archives) must be given priority as well.
In some cases the Centres are simply not operational for technical reasons or for other reasons
unique to the beneficiary countries concerned.
Other factors that are not within the programme’s control are affecting the operations of the
Centres as well.  In some cases the constraints on the use of WTO Reference Centres have to do with
logistics and even personalization, limiting the achievement of objectives significantly.
The cost of Internet connection continues to place a heavy burden on the budgets of less
developed countries, where access to information on WTO issues is not a priority for the time being.
It is therefore urgent that a solution be found to reduce such costs and thereby make operating the
Centres more feasible in the least developed countries.
Establishing a network of Reference Centres in the countries and in sub-regional and regional
integration institutions could help promote exchanges of relevant information among the Centres’
users.  Such a network would also contribute to  setting up a network of trainers, as noted above.
The Secretariat’s technical services have estimated that 65 per cent of the Reference Centres
are operational;  the remaining Centres are located in less developed countries.  According to
information gathered in other developing countries, however, it would appear that some Centres,
though operational, are beset by problems that need to be addressed urgently.
5. Joint projects and participation in technical assistance activities organized by other
regional and international institutions
In carrying out its technical cooperation functions, the WTO cooperates and coordinates with
other international and regional organizations  in pursuance of common and complementary
objectives.  The WTO takes part in activities organized by those institutions and cooperates with some
of them on joint projects or programmes, as for in stance the Joint Integrated Technical Cooperation
Programme for Selected Least Developed Countries and other African Countries and the IntegratedFramework of technical cooperation for least developed countries.
In the case of the JITAP, the WTO Secretariat participates in all programme activities through
its sub-packages and  instruments.  In a spirit of partnership with the UNCTAD and ITC Secretariats,
the WTO takes part in activities relating to the following objectives:
• Improving knowledge of the multilateral trading system in each of the eight countries
targeted by JITAP;
• reviewing MTS impact on national economies;
• harmonization of laws, regulations and administrative practices with the WTO
Agreements;
• access to information through the Reference Centres;
• setting up a network of trainers and experts on the MULTILATERAL TRADING
SYSTEM.
Observation of the implementation of some JITAP components and feed-back gathered
during and after implementation has demonstrated that the Secretariat’s contribution fits in logicallyWT/COMTD/W/72
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with the WTO overall objectives.  This contribution is highly appreciated by the countries and direct
users of services.  The beneficiaries feel that, although the volume of activities is still below the level
of need, the programme responds to their needs and has an immediate impact on their countries.
Tunisia provides an illustrative example in this regard.
However, it was noted, among the programme’s shortcomings, that the studies of the impact
of WTO Agreements on national economies had been performed by consultants1 who appeared to
have applied models developed in the course of previous work to their work in connection with the
JITAP.  Given this fact, in combination with a lack of supervision, the studies did not achieve the
objectives set jointly by the three organizations.
The way in which these studies were conducted has a direct effect on JITAP’s activities and
risks conveying an erroneous image of the WTO and the WTO Agreements.
The WTO could therefore contribute actively to these studies under a joint approach that
would enrich the content of the reports and attenuate the shortcomings noted.
The Integrated Framework (IF) of assistance for least developed countries was established by
the high-level meeting held in October 1997 at WTO Headquarters.  The aim was to maximize the
advantages to the least developed countries of trade-related assistance.  These countries are helped to
develop trade opportunities, to be responsive to market demand, and to achieve integration with the
multilateral trading system.  The IF is designed essentially to set up and improve coordination,consistency and effectiveness of assistance provided to the least developed countries by the six
participating organizations (WTO, ITC, UNCTAD, World Bank, IMF, UNDP).
By the end of 1999, 41 least developed countries had performed a needs assessment and
comprehensive responses had been drawn up by the six institutions and disclosed to the partners.  Asecond, and crucial, stage of donor round tables is now under way.
It has been noted, however, that the leverage of  funds required to bring this initiative into
being has not met expectations.  Some potential donor countries even feel that raising funds is not an
IF function, while the countries feel that an initiative of the nature and size of the IF could not be
implemented without commensurate financial support.  Other potential donors see a dynamic process
under way and evince optimism for the future.
Although the IF concept is clearly an excellent one, and its political grounding in the high-
level meeting and the legitimate needs of the countr ies is sound, it is recognized that some ambiguity
in interpreting its mandate has arisen during implementation.
Other difficulties, of an institutional, administrative and coordination-related nature, have
emerged in the course of implementation.
The IF is perhaps the only instrument initiate d by the WTO or in which it participates which
is based on a true assessment of needs and a sense of ownership by the least developed countries.  It istherefore a pressing need that the IF be strengthened by remedying its shortcomings and providing it
with the operational programmes and resources needed to make it a reality.
6. Coordination and cooperation with other relevant organizations
Internally, the Secretariat coordinates technical cooperation activities through the Technical
Cooperation Division.  Coordination takes place first of all within that Division through an
                                                     
1 These consultants were hired by UNCTAD.WT/COMTD/W/72
Page 10
apportionment of tasks geographically and by topic.  Regular meetings are held to ensure that such
coordination takes place and to better manage available resources.
Coordination also takes place between the Technical Cooperation Division and the WTO
substantive Divisions through regular meetings of focal  points for technical cooperation activities andthrough contacts maintained by the Divisions throughout the year, both at the director level and
among staff responsible for technical cooperation in the various Divisions.  This internal coordination
has to do with the content, mode of delivery and financial and budgetary aspects of technical
cooperation activities.
The annual report on technical cooperation activities reflects the degree of coordination of
technical cooperation activities.
The Secretariat also develops hubs of cooperation and coordination with international
organizations in areas that call for specific interventions or require bringing in expertise to tap existing
and potential synergies.  There are diverse areas of coordination and cooperation on specific matters
such as development, intellectual property, financial and investment issues, customs issues, and so on(UNCTAD, WIPO, IBRD, ITC, IMF, WCO).
The WTO’s policy on cooperation, in addition to providing for cooperation with international
organizations, should be more active in identifying possibilities and areas for cooperation and
coordination with the relevant regional groupings and institutions.  Such institutions possess valuableknowledge and experience on the regions where they are located, and could contribute to the
durability of technical cooperation results through follow-up activities at the regional level.  They
could also help in the area of logistics.  The Secretariat is currently discussing the possibility of
concluding memorandums of understanding to institutionalize collaboration in this regard and explore
possibilities for decentralizing cooperation activities undertaken with these institutions.  Fourmemorandums of understanding have been concluded to date.
Other regional financial institutions could contribute funds for technical cooperation
activities, such as the Islamic Development Bank and the regional development banks (for Africa,
Asia and Latin America).  Fruitful efforts are now  under way with the Islamic Development Bank, the
Central American Bank for Economic Integration and the Inter-American Development Bank.  Such
avenues could continued to be explored actively under the policy to identify financing opportunitiesusing external resources.
III. OVERALL EVALUATION AND RECOMMENDATIONS
A. C
ONCEPT AND DESIGN
General speaking, WTO technical cooperation activities are designed and formulated on the
basis of demand from beneficiaries, following consultations with the national institutions concerned.
They are carried out within the framework of the Three-year Plan submitted to the Committee on
Trade and Development and contain a list of activities to be undertaken over a three-year period,
adjustable annually.  Only half of these activities have been carried out; the other half have been
postponed or simply cancelled.  Under other requests for technical assistance submitted outside theThree-year Plan, activities are carried out on a one-off basis.
The concept is well integrated with the overall technical cooperation objectives set forth in
the documents approved by the Committee on Trade and Development.  Through the instruments
employed, the conceptualization of technical cooperation and assistance activities gives rise to adiversified range of activities which are largely tailored to the expectations of the beneficiaries and
target groups that benefit from WTO technical cooperation.WT/COMTD/W/72
Page 11
Nevertheless, ambiguities in interpreting the WTO mandate in the areas of technical
cooperation have been detected in interviews with stakeholders.  Some believe that technical
cooperation should be restricted to an understanding of the Agreements and compliance therewith.
Others feel that the WTO mission should go beyond that restricted definition to take in thefundamental objective of integration with the multilateral trading system and the global economy.
The latter approach would appear to be a logical one given the overall objectives of technical
cooperation approved by the Committee.  However, the WTO ought to strengthen cooperation with
other relevant organizations so as to contribute to achieving those objectives while refraining from
becoming actively involved in areas where it lack comparative advantages.
With respect to target groups, it appears from contacts made during field visits that the private
sector and other stakeholders are only marginally associated with the advantages of WTO technical
cooperation, although they are among the key players in the Multilateral trading system.  The private
sector, chambers of commerce and certain specialized national institutions such as authorities charged
with pre-shipment inspection should be associated  more closely with the WTO technical cooperation
programmes.  Beneficiary member countries should be encouraged to involve these multilateral
trading system actors more actively in technical cooperation activities.
On the question of programme formulation, chiefly for financial and budgetary reasons such
as scarce funding and unpredictability, the Secretariat continues to carry out stand-alone activitieswith no real programming, despite its efforts to remedy the situation.  Attempts at programming are
under way, but again the lack of predictability and shortage of resources stand in the way of such an
exercise.
In short, although the concept and content of technical cooperation activities appear to be
appropriate, accomplishments to date leave some lacunae.  Criticism often centres around insufficient
activity volume, the lack of comprehensive programmi ng, the lack of follow-up, and the risk that the
durability of results will be compromized.
B. B
UDGET AND FINANCING
Extrabudgetary funds allocated to WTO technical cooperation activities have evolved
considerably since 1996, holding steady around Sw F 7.5 million between 1998 and 1999.Projections for 1999 called for some Sw F 10 million.
To situate these figures in the real context of  activity volume, it may be useful to recall that
the number of activities undertaken rose from 79 to 382 between 1995 and 1999.
In June 1999, it was decided to establish the Global Trust Fund (GTF) for technical
cooperation with a view to improving the management and implementation of activities and, above
all, to enable the Secretariat to pursue its programme responsively, meeting the needs of beneficiaries
to the greatest possible extent.
The ordinary budget for technical cooperation activities has remained steady at Sw F 741,000,
and covers between 7 and 9 per cent of all technical cooperation expenses.  The remaining 91 to
93 per cent of expenses are covered by extrabudgetary funds.
This funding base is characterized by scarcity, unpredictability, and sometimes conditionality
in extrabudgetary resources earmarked.  It thus represents an obstacle to putting in place the planning
and programming needed for effective technical c ooperation activities.  The demand-driven approachWT/COMTD/W/72
Page 12
itself could thereby be placed in jeopardy.  It is difficult, if not impossible, to pursue such a policy
with the uncertainty and conditionality that accompany voluntary contributions.
In its December 1998 report, the Task Force2 underscored that given the fact that more than
80 per cent of technical cooperation needs were covered by extra-budgetary resources, ad hocinterventions remained the rule.  The Task Force therefore considered it necessary to call for an
increase in ordinary budget resources, as a priority objective.  Finally, it urged that a balance be
sought among the three possible sources of financing;  i.e., the ordinary budget, extrabudgetary
resources, and resources from multilateral and regional institutions.
With respect to the ordinary budget, the idea of replacing the current annual budget exercise
with a biannual WTO budget would certainly contribute to greater financial stability, and fundsallocated for technical cooperation would predictably increase.
It may be wise as well to provide for a more concrete partnership with multilateral institutions
active in trade and development, identifying opportunities to enter into arrangements with financial
agencies and engage in joint programmes and projects with other institutions in pursuance of commonand complementary objectives.
C. I
MPLEMENTATION OF ACTIVITIES AND AREAS OF WTO INTERVENTION
In addition to resource availability and quality of design, effective implementation depends on
a number of conditions being put in place.  These include, in particular, making use of WTOcomparative advantages, favourable reception by beneficiaries and donors, a comprehensive approach
to programmes, and the ability of technical cooperation teams to manage their activities effectively.
1. Reception by beneficiaries
A favourable reception on the part of beneficiary countries is quite evident in conversations
with responsible individuals and participants.  The c ountries see the need to fulfill the obligations they
have undertaken to participate in the Multilateral trading system and integrate themselves with global
trade.  They also recognize their shortcomings.  Their needs are considerable and, according to
beneficiary feed-back received, the technical cooperation services provided by the WTO, though
modest, are appreciated.
2. Comparative advantages of the WTO
The WTO must on principle carry out its technical cooperation activities in the areas where it
has built up a solid knowledge base through its experience.  Effectiveness in its interventions must be
supported through those comparative advantages, which are numerous:  knowledge of the
mechanisms and agreements of the multilateral trading system, volume and quality of information and
data bases and base technology.  The experience acquired in negotiating techniques constitutesanother area of excellence of potential benefit to members.  Modalities for practical use of rules and
mechanisms within the multilateral trading system ought to be a very useful area in which the WTO
could develop a major comparative advantage to the benefit of its members, in particular countries in
development and in transition.
The dispute settlement system, recognized as one of the major accomplishments of the
Multilateral trading system, is another important WTO asset.
                                                     
2 The Task Force was set up within the Secretariat to examine ways to strengthen technical cooperation
activities.WT/COMTD/W/72
Page 13
The WTO should focus on what it does well, without ignoring other areas that affect its
jurisdiction, where it could pursue a policy of more active identification of opportunities for
cooperation and collaboration with relevant international and regional institutions.
Tapping international consultants and local competencies, as well as joint studies, should be
another way to complementing WTO expertise in carrying out technical cooperation and assistance
programmes.
3. Capabilities of technical teams
An analysis of the feed-back questionnaires shows that participants in WTO technical
cooperation and assistance activities are generally satisfied with the services provided by Secretariat
staff.  Informal talks often take place on the margin of activities, enabling participants to betterunderstand issues that require fine-tuning.
It was reported, however, that in some cases staff employ a “take it or leave it” approach,
particularly when explaining WTO rules.  Under this approach, issues are apparently presented in an
inflexible manner, which diminishes attention and interest on the part of participants.
In addition, and in the context of consultancies, tapping local (national, regional and
international) competencies should reinforce reception on the part of beneficiaries and have a positive
impact on technical cooperation activities from the poin t of view of both efficiency and effectiveness
in the implementation of technical cooperation activities.
4. Programming of technical cooperation activities
With the exception of the Joint Integrated Technical Assistance Programme for Selected
Least Developed countries and other African countries (JITAP) and other programming efforts
undertaken recently, the organization of seminars, workshops and technical missions does notcurrently take place within a fully integrated programming framework.
In most cases, technical cooperation activities are undertaken on an ad hoc basis based on the
list of activities set forth in the Three-year Plan.  Other activities take place outside the Plan in
response to one-off requests by beneficiaries.  The point is not to come up with an overall
programming that rules out one-off requests, which may be urgent.  For the sake of effectiveness and
logical sequencing of activities, however, most activities should be part of a programming exercise bycountry, by region and/or by topic, as a matter of course.  Urgent one-off requests would be
accommodated as an exception to this rule.
Based on the Three-year Plan and a technical cooperation strategy, a programming exercise
could take place by region, encompassing national, sub-regional and regional activities depending onthe nature of  the problems encountered.
Such an exercise would include activities by country  to deal with specific difficulties such as
those relating to compliance or the harmonization of legislative, regulatory, administrative and
technical provisions.
It would also include sub-regional and regional activities  focusing on common problems
and shared objectives, as in the areas of trade and the environment, trade and competition, trade and
investment, and training and esta blishing a network of trainers.
The programming process should be based on an actual assessment of needs by beneficiary
countries themselves, which should then be brought together by the Secretariat.WT/COMTD/W/72
Page 14
Another approach to programming that w ould complement the first would consist of
developing targeted programmes by topics of significance to beneficiaries, such as those relating to
WTO Reference Centres or customs valuation.
The Integrated Framework of technical assistance for least developed countries should be
strengthened within the context provided by programming, to move toward achieving objectives in
terms of mobilizing funds in addition to coordination functions.
D. AREAS OF WTO INTERVENTION
In this section it is suggested that a preliminary assessment be performed of technical
cooperation activities in certain areas of WTO intervention.  There is no attempt at this stage to coverall areas of intervention in depth, much less reach definitive conclusions.
(i) Notification
All those concerned agree that implementation is a long and difficult process given the
number and complexity of WTO rules, as well as the shortcomings in terms of human andinstitutional capacity in most developing countries and countries in transition.
Several members are experiencing difficulty in complying with their obligations deriving
from the Agreements.  Among the immediate actions involved in compliance are notification
requirements.  However, as noted at the Singapore and Geneva Ministerial Conferences, compliancewith notification requirements has not been fully satisfactory.
Accordingly, the Secretariat carries out technical assistance activities in this area by including
notification issues in seminars and technical workshops.  Technical missions are sent to assist the
countries in drafting their notifications, and a manual has been prepared for this purpose.  The factthat technical assistance has been provided does not necessarily imply that notification requirements
will be met, however, as administrative difficulties may impede the process as well.
Consequently, an evaluation of technical cooperation activities would not be complete if it
took into account only the number of notifications issued and changes in number from one year to the
next.  To be sure, such an overall quantitative indicator may become significant once problems
beyond the control of technical cooperation activities have been resolved.
It would therefore seem reasonable to employ other qualitative and approximate indicators
that have been identified during contacts with certain beneficiary countries.  The latter have expressed
appreciation with respect to the instruments used by  the Secretariat in providing technical assistance,
in particular the manual, which is found to be very practical.  The countries have also said that thesituation would have been more difficult in the absence of such instruments.
(ii) Customs valuation
It is clear from the work done by the Customs Valuation Committee that a large number of
developing countries indicate that they are in a transition period.  This demonstrates the need toengage more actively in technical cooperation in this area.
For the same reasons as mentioned under “Notification” above, reference should not be made
at this stage, in evaluating technical cooperation in this area, to the number of mentions of the
transition period or the number of duly completed valuations.  Efforts at the national level should becombined with those of the Secretariat and donor countries in order to achieve satisfactory results.WT/COMTD/W/72
Page 15
Nevertheless, it was evident in feed-back questionnaires and interviews held in the context of
this study that technical cooperation activities are generally appreciated and have an immediate
impact on the beneficiaries.  In some countries, although not all of the obligations pursuant to the
Agreement have been fully implemented, efforts and progress made to date are not to beunderestimated, and in many cases are at the final stage of implementation (e.g. Kenya).
The customs expertise needed could be achieved by tapping regional and interregional skills,
in addition to seeking out World Customs Organization expertise.
(iii) Dispute settlement
Technical assistance provided in this area with a view to improving understanding by
participants appears to be on track, particularly in the specialized courses which the Secretariat
continues to offer in Geneva and in countries requesting them.  Other indicators demonstrate the
usefulness of these activities.  Participation by certain developing countries in consultations conducted
in the context of the Dispute Settlement System or on panels can be perceived as a positive indicator.
Corrective measures have been suggested by pa rticipants to reinforce the effectiveness and
impact of these courses.  They relate to document organization and translation into the WTO official
languages, as well as private-sector involvement.  It has also been suggested that some parts of the
training courses (e.g., case studies, examples of le gislation) could be strengthened through other
modes of delivery.
(iv) Intellectual property
Technical cooperation activities organized by the WTO or jointly with WIPO have centred
mainly around the understanding of the TRIPS Agreement and the transfer of knowledge.  The joint
initiative by the two organizations to help developing countries meet their obligations has elicitedmuch interest in the countries.  The JITAP programme has made considerable inroads in promoting an
understanding of these issues in the countries concerned.
However, it was noted during talks with responsible officers in the countries visited that
understanding of the Agreement continues to be poor.  The same officers wished to see such activities
cover practical work such as the drafting of legislat ion, which would appear to be an urgent need from
the point of view of full implementation of the TRIPS Agreement.
(v) Technical barriers to trade
The technical cooperation objectives pursued by the Secretariat in the areas of technical
barriers to trade, having to do with the transfer of knowledge and information to beneficiary countries
and the installation of information outlets, have largely been accomplished.  Several information
outlets are operating and a relatively large number of people are familiar with the issues relating to the
Agreement on Technical Barriers to Trade.  The information provided by the Secretariat on technical
regulations is highly appreciated.  It has been noted, however, that technical cooperation in areas
intended to help the private sector take advantage of the WTO system have been used very little, as
has technical cooperation on market opportunities.  The same feed-back has been reported onvaluation standards and procedures and their harmonization.WT/COMTD/W/72
Page 16
(vi) Negotiating techniques
Technical cooperation activities in the area of negotiating techniques have generally fallen
short of the needs felt in most developing countries or countries in transition.  Only 11 activities were
undertaken in 1998 and 1999 combined.  The need is particularly great in the African region and the
least developed countries.  It is apparent from the feed-back questionnaires and the interviewsconducted that needs in the area of negotiating techniques are widely felt.
It is therefore in the interest of the WTO and its members actively to carry out programmes in
this area.  Targeted training packages adapted to various levels of development are required to this
end.
E. I
NTERACTION WITH OTHER WTO ACTIVITIES
An analysis of the specific objectives of technical cooperation activities and their
implementation shows that they mesh logically with WTO activities overall.  Interaction between
technical cooperation activities and other WTO activities is evidenced by the fact that the former
constitute a logical series and provide accompanying measures needed for the latter.  Such interaction
is apparent as well in the work done by WTO inter-governmental agencies when they examine, eachin its own sphere of operation, possible directions for technical cooperation in conjunction with other
WTO activities.
Such interaction is reinforced by the support provided by the Secretariat to inter-
governmental agencies, as well as coordination in technical cooperation areas, between the TechnicalCooperation Division and the remaining Secretariat Divisions.
F. C
OORDINATION
1. Within WTO structures
An analysis performed by the Technical Cooperation Division to improve and reinforce
internal coordination of technical cooperation activities has concluded that the following actions are
needed:
• Strengthen administration and management;
• strengthen expertise within the Technical Cooperation Division and other Secretariat
Divisions;
• promote coordination of tasks by region and by topic;
• improve delivery techniques by making greater use of information technology;
• strengthen the monitoring and oversight system by preparing regular reports on
activities undertaken and reporting to the Director General on salient facts;
• include in day-to-day work a process of evaluation of technical cooperation activities
and of management and administration methods, under a results-based approach.  Adetailed evaluation methodology tailored to the WTO, with related instruments and
mechanisms, has been prepared and is now being applied.  The results of evaluation
exercises will be published and placed in the data base on technical cooperation
activities, as well as posted on the WTO web-page;
• revitalize meetings with focal points in Secretariat Divisions involved in technical
cooperation, particularly with respect to their planned programming role;
• develop a strategy and strengthen the programming process by region and by subject;
• steadily improve the preparation of repo rts to the Trade and Development Committee,
in particular the annual performance and evaluation reports.WT/COMTD/W/72
Page 17
2. With other appropriate regional and international organizations
The WTO Secretariat is called upon to coordinate its activities and work with other
international organizations which are considered its multilateral partners in trade and development.
Possible avenues for collaboration with development financing and regional integration institutionsshould be explored and developed.
While continuing to operate in accordance with its objectives and mandate, the WTO should
strengthen its ability to work with other techni cal assistance providers in the areas mentioned, in
pursuance of complementary objectives.  An active policy of identifying opportunities for cooperation
with such organizations ought to be pursued.
It is also vital, in the course of this exercise, to clarify the roles of the WTO and other relevant
organizations such as the World Bank, UNCTAD and ITC, while identifying points of conjunction
between WTO policy and those organizations.
G. C
OVERAGE , RELEVANCE AND IMPACT OF WTO TECHNICAL COOPERATION ACTIVITIES
The relevance and impact of WTO technical cooperation activities can be measured in several
different ways.  The benchmarks applied could, for instance, measure the scope of such activities
either geographically or thematically.  In other words, relevance and impact may be measured through
the effects of activities by region and by topic.  This study is not intended to draw final conclusions on
the impact of technical cooperation activities.  It does propose, at this stage, to identify negative andpositive indicators of  results achieved, particularly in Africa.  Another evaluation report will be
produced shortly containing a more in-depth study of all beneficiary regions.
In quantitative terms, 93 activities took place in 1998 and 106 in 1999, including activities
organized by other institutions in which the Secretariat took part.
The relevance of technical cooperation activities in Africa, measured in terms of needs
identified, is self-evident.  There are major gaps in the understanding of the Agreements and related
technical mechanisms, access to information, and regulatory and institutional structures underpinning
implementation.  These illustrate how relevant technical assistance and cooperation activities are for
the African region, in particular its less developed countries.
The JITAP programme, which arose in response to a specific request by African trade
ministers at a meeting held in Tunis in October 1994 and is based on logically sequenced
programming, is an exception.  Generally speaking, technical assistance activities provided to African
countries take place largely on an ad hoc basis and are not – at least at present – part of a
comprehensive strategy or programming effort.  Naturally, this diminishes their relevance and impacton beneficiary countries.
However, there are efforts under way within the Secretariat to establish an approach to
programming based on an actual assessment of needs and an implementation strategy, subject of
course to obtaining needed funding.
Although shortcomings in programming mean that subject matter does not always match the
actual needs of beneficiaries, technical cooperation issues and target groups are generally selected
carefully according to the urgency of the problems encountered.  Examples are access to information
as well as understanding and compliance.WT/COMTD/W/72
Page 18
Contacts made with a number of African countries have indicated, however, that there are
major lacunae in the negotiating techniques they need  to better participate in the process and protect
their own interests.  Strengthening assistance activities that relate to negotiating techniques would
bring these countries to a better understanding of their obligations before problems with
implementation have a chance to occur.
Active involvement in technical cooperation activities by the private sector, as one of the key
players in the Multilateral trading system, should point up pressing needs both at the national level
and during implementation of WTO technical cooperation programmes.
Arriving at an accurate measurement of the impact of technical cooperation activities on the
African region is difficult given the difficulties  faced in gathering benchmarking information
upstream and downstream of implementation.  An attempt may be made, however, to identify
indicators of positive results in a number of areas.
With respect to knowledge transfer and access to information, the workshops, seminars,
courses, and new WTO Reference Centres have contributed greatly to improving the situation inrecent years, as well as in the current year.  This is demonstrated by a number of indicators.  For
instance, a large number of people, both in the capitals and in Permanent Missions, have expressed
interest in receiving targeted technical information on matters arising in the course of assistance and
cooperation activities carried out.  Other indicators are the volume and quality of information flows
and on-line contacts in both directions between the WTO and beneficiary countries since the WTOReference Centres were set up.
A further positive indicator is the increasingly active participation by African countries in
various WTO processes, though it is still insufficient and at times constrained by WTO timelines.  To
be sure, this may be attributable to other exogenous factors in addition to technical cooperation.
With regard to compliance with the Agreements, particularly notification and harmonization
requirements in the legislative, regulatory and administrative spheres, technical cooperation activities
have hitherto been structured around an understanding of obligations to be fulfilled and the
establishment of institutional structures.
The impact of such activities can be seen in the feed-back gathered in the form of
questionnaires.  However, regulatory techniques (as in the areas of TBT, SPS, and anti-dumping) and
the drafting of legislation (e.g., aspects of intellectual property) should be given more attention,
according to interviews with some African countries.
In the context of the implementation of the Textiles Agreement, many difficulties persist with
respect to comprehension and enforcement of the safeguard mechanism.  Accordingly, there are
enormous problems facing the textile sectors of a number of African countries, particularly small
suppliers, in the least developed countries and even in more developed countries in Africa.  The
example of Kenya illustrates this phenomenon, with the risk of poverty imminent in the sector.
Technical cooperation provided by the WTO in collaboration with other relevant internationalorganizations (e.g., the World Bank and the International Textiles Office) is therefore of paramount
importance.
In the area of customs valuation, there are a number of positive signs despite the indication by
a large number of countries that they are still in a transition period.  These are efforts and stages nowcomplete, to which technical cooperation from the WTO and under the joint initiative with the World
Customs Organization have made a major contribution.  Some African countries are now in the last
stage of implementation.  The JITAP programme plays an important role in connection with
comprehension of these issues in the countries concerned.WT/COMTD/W/72
Page 19
H. GENERAL CONCLUSIONS
• Technical cooperation and capacity-building are important activities for developing
countries and countries in transition.  They represent an area of common interest forthe least developed countries;
• technical cooperation activities are an integral part of the WTO’s principal operations,
since they primarily contribute to the efforts of beneficiary countries to meet their
obligations under the Agreements;
• the WTO members, both beneficiaries and donors, are very interested in seeing these
activities designed in a relevant way and carried out efficiently, effectively, and
productively;
• available funding is insufficient to achieve the WTO technical cooperation objectives.
The inadequacy, unpredictability, and frequent conditionality of extrabudgetary
resources also affect priority-setting and the programming of activities which policycalls for to be demand-driven;
• shortcomings in overall programming and in needs assessment erode performance,
diminish the efficiency of activities, and may stand in the way of achieving the
desired effects on beneficiaries;
• technical cooperation activities, modest though they may be, are generally
appreciated by the beneficiaries.  Technical shortcomings have, however, been
detected and the Secretariat is in the process of remedying them;
• some areas of intervention, such as negotiating techniques, have not been sufficiently
developed;
• problems with operation, follow-up, financin g, and maintenance have been identified
at WTO Reference Centres;
• the evaluation culture is still at an embryonic stage and should be reinforced, both at
the Secretariat and in the beneficiary countries.
IV. RECOMMENDATIONS AND LESSONS LEARNED
Based on the analysis performed herein and the conclusions outlined above, the following
recommendations are put forward to the Committee on Trade and Development for consideration:
1. Establish a sound, adequate and predictable funding base for technical cooperation activities.
2. Identify external financing activities, in particular  at the regional level, in support of technical
cooperation activities.
3. Strengthen cooperation and coordination with relevant international and regional
organizations in specific areas.  This will make it possible to take advantage of existing
expertise, avoid duplication, and develop synergies in pursuance of common and
complementary objectives.  Consistency in capacity-building policies among organizations
providing assistance in the areas of trade and development ought to be reinforced.
4. Strengthen the planning and programming of technical cooperation activities to boost their
effectiveness.  Mechanisms for needs identification and coordination will be needed.
5. Identify local partners, such as training institutions and universities in beneficiary countries,
that could contribute to the durability of the results of technical cooperation activities.
6. Employ local, national and regional competencies whenever possible in hiring consultants.WT/COMTD/W/72
Page 20
7. Since WTO technical cooperation activities are structured around a demand-driven approach,
the Secretariat’s active policy of informing beneficiaries of the content of activities available
and how they match up with their needs should be maintained and encouraged.  Opportunities
for cooperation and collaboration on joint projects and programmes should be explored under
this policy as well.
8. Promote a culture of evaluation within the WTO and in beneficiary countries, under a results-
based approach, so as to improve the quality, efficiency and impact of activities.  Factors
relevant to evaluation should be taken into consideration from the design phase onward.
9. Continue to improve delivery techniques in the Technical Cooperation Division and other
WTO Divisions, for instance by adapting manuals and training packages to the needs of direct
beneficiaries and to specific learning requirements.
10. Revitalize specific areas of intervention, such as emerging issues and negotiating techniques.
11. The review of WTO trade policies should continue to include, in a systematic fashion,
technical cooperation and capacity-building issues.  Reports by governments and by the
Secretariat could include a brief section summarizing the assessment of needs and, where
possible, the impact of activities on beneficiary countries.  This approach would also help
strengthen coordination of technical cooperation at the national and inter-agency level.
12. Strengthen the role of technical cooperation as a way of improving the WTO’s profile and
self-image, by involving the media.
13. Promote associations with the private sector as one of the key players in the multilateral
trading system.
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