RESTRICTED  WORLD TRADE  
ORGANIZATION  WT/COMTD/LDC/7 
23 February 2000 
 (00-0667) 
Sub-Committee on Least-Developed Countries  
  
 
INTEGRATED FRAMEWORK FOR TRADE-RELATED ASSISTANCE  
TO LEAST-DEVELOPED COUNTRIES 
 
The Process to Date, Concerns and Suggested Improvements
 
 
Sub-Committee Contribution to the Review of the Integrated Framework 
 
 
I. INTRODUCTION 
1. At its meeting of 19 November 1999, th e Sub-Committee on Least-Developed Countries 
requested the Secretariat to compile views express ed by delegations on the Integrated Framework.1  
This note aims at covering the broad lines of argume nt of delegations on the major issues raised with 
respect to the Integrated Framework.  It does not seek to reproduce the exact language used by 
delegations or capture all the nuances in their statements.  The purpose is rather to produce a 
document which could serve as a draft for the doc ument the Sub-Committee intends to submit as a 
contribution to the mandated review of the Integrat ed Framework which is being undertaken by the 
six core Agencies.  The note is divided into thr ee parts; the process to date, concerns and problems 
raised and suggested improvements.  In the "s uggested improvements" part proposals made by 
individual delegations have been listed.  As with th e issues mentioned in the other parts of this note, 
the fact that an issue or a proposal has been liste d does not mean that there is any consensus on it. 
 
II. THE PROCESS TO DATE 
2. Out of forty-eight least-developed countries (LDCs), forty have prepared country needs-
assessments.  Although some LDCs have experience d difficulties in identifying their needs, it has 
nevertheless been a valuable exercise as it had provided a basis for initial cooperation among the 
national players involved in trade-policy-making in the LDCs.  The initiation of a process focussed on trade-related issues has also raised the prof ile and importance of trade issues in LDCs. 
3. Forty Integrated Responses to those needs-a ssessments have been given by the six core 
Agencies.  The preparation of the Integrated  Responses initiated e nhanced cooperation and 
coordination among the six core Agencies.  Dupli cation and overlap were avoided and synergies 
sought of the trade-related technical cooperation activities in LDCs carried out by the six core 
Agencies.  Several technical cooperation activities ha ve been undertaken in the LDCs by the core 
Agencies even without the holding of a round-table.  These activities have b een delivered in a more 
effective manner thanks to the enhanced informatio n-sharing brought about in the preparation of the 
Integrated Responses and by the Integrated Framework Website.  
4. Preparatory launch workshops have been held for Bangladesh, Djibouti,  The Gambia, Haiti, 
Tanzania and Zambia.  These preparatory launch workshops have been organized by the LDC 
Governments themselves with assistance by the Agen cies upon request.  The purpose is to gather all 
                                                     
 
1 Document WT/COMTD/LDC/M/18 contains a report on that meeting. WT/COMTD/LDC/7 
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 potential stakeholders in the Integrated Framewor k process for a particular LDC to explain the aim 
and the process of the Integrated Framework.  When  asked to, representatives of the six core Agencies 
have explained where the value added of the inte grated approach lies and where the synergies from 
pursuing the Integrated Framework exercise lie.  Ideally, a national steering committee for the continued work with the Integrated Framework shoul d be formed at the end of the launch workshop.  
This has most often also been the case.   From then on the steering co mmittee ensures the continued 
preparation for the holding of a round-table and the follow-up after. 
5. Regarding the six core Agencies involved, progress has been made in cooperation and 
coordination.  The Inter-Agency Working Group, its  support arm, the small Administrative Unit and 
its Website, have generated a st eady and growing flow of information among the LDCs, agencies and 
donors.  The level of information sharing among the six core Agencies through this instrument is 
certainly of a level unheard of before the Integrat ed Framework.  For over ten LDCs the Integrated 
Framework approach has enabled joint missions and delivery of technical assistance by two or more of the six core Agencies.  This kind of coordination was less frequent before October 1997.  A more genuine desire to "mainstream" trade-related issu es into their broader programmes, and for better 
coordination and cooperation is developing in all six core Agencies as a result of the Integrated 
Framework. 
6. Round-table meetings have been held for The Gambia, Haiti, Tanzania and Uganda, preceded 
for the first four countries by "pre-round-table" m eetings with potential donors.  Despite the intensive 
preparation made for the round-tables by the LDCs, and the value of the process to LDCs in creating 
better coordination both among Government agencies a nd with the private sector, LDCs that have 
held round-tables to date have been disappointed wi th the lack of pledging and follow-up by donors.  
Some have also raised questions on the issue of  "ownership" of the process as between LDCs and 
funding partners, bilateral and multilateral.  These elements are reflected inter alia  in the statements to 
the Seattle Ministerial Conference, as well as in the reports of the Sub-Committee. 
7. A number of round-table meetings are scheduled  for the year 2000. For these round-tables 
national multi-year programmes of trade-related te chnical assistance will be prepared by each country 
with the assistance of and in close cons ultation with its development partners. 
8. The Integrated Framework has required certain  administrative arrangements.  In this 
connection, the following steps have been taken:  
(a) The establishment of an inter-agency working group with the responsibility of 
managing the Integrated Framework;  
(b) The creation of a small Administrative Un it for the Integrated Framework, physically 
located in the ITC; although difficulties with  the staffing and funding were reported;  
(c) The establishment of the Integrated Fr amework Website.  Increased transparency, 
achieved through the sharing of all documents  among all players, and the extensive 
use of the Integrated Framework Webs ite, facilitates better coordination and 
stimulates participation on the part of all; 
(d) The production of a model document by th e six Agencies, entitled "Trade-Related 
"Round Table Meetings"/Consultations:  Outline Suggested to Assist the 
Least-Developed Countries in Preparing their Documentation for Trade-Related 
Round-Tables/Consultations and an Indicative Timetable for the Preparation of such 
Meetings".
2  This is an important instrument that could facilitate the task of 
                                                      
2  Document WT/COMTD/LDC/W/15 of 17 May 1999.  WT/COMTD/LDC/7 
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 organizing trade-related round-tables in the future.  Comprehensive documents 
presenting the overall picture of trade-relate d needs and proposed technical assistance 
will lead to better informed donors a nd other development partners; and,  
(e) The creation of a post of least-developed country coordinator in the WTO Secretariat. 
 
III. CONCERNS AND PROBLEMS RAISED 
A. B ETTER COORDINATION VERSUS INCREASED FUNDING  
9. The principal difficulty experienced so far st ems from diverging perceptions regarding the 
role and objective of the Integrated Framework.  While the LDCs expect the Integrated Framework 
not only to improve delivery of assistance but also  to provide additional funds for trade-related 
technical assistance, donors tend to focus on the efficiency gains produced by the improved 
coordination and synergies.  No commitments to provide extra funds were made at the High-Level 
Meeting for LDCs of October 1997.  Thus, the LD Cs state that the round-table process generates 
expectations at the country level which cannot be met.  They consider it important to know whether 
the Integrated Framework is likely to bring new fina ncial resources for trade-related projects, lead to 
better coordination of assistance activities in the fi eld, or divert resources away from already 
prioritised and approved projects.  That informati on would be a factor LDCs would take into account 
in the assessment of the priority they ma y give to the Integrated Framework. 
10. LDCs which have used the scarce resources ava ilable to organize a round-table on trade feel 
that even though it is an achievement that internal cooperation has been enhanced in the process, they 
have been let down by the donor community which ha ve been very reluctant to come forward with 
any pledges of assistance to complement their effo rts and the efforts of the six core Agencies. 
B. COORDINATION AND OWNERSHIP  
11. There have been quite serious coordination di fficulties within the Integrated Framework.  
Although coordination is difficult within LDC Gove rnments and between the LDC Governments and 
the private sector, LDCs which have moved forward in the Integrated Framework process appear to 
have resolved this problem successfully, and this  has been signalled as one positive element of the 
Integrated Framework.  Coordination problems amo ng and within the six core Agencies have also 
arisen, but the Inter-Agency Working Group appears to have provided a good forum for their discussion.  In addition, the level of coordinati on among and within the bilateral donors have proven 
insufficient.  Finally, there has to some degr ee been a lack of coordination among all these 
stakeholders of the Integrated Framework. 
12. Doubts regarding the "ownership" of the LDCs  of the Integrated Framework process have 
been raised by LDCs with reference to the fact th at they do not control the money involved.  Donors 
have responded that LDCs have more say and steer ing capacity under the Integrated Framework than 
in more traditional forms of technical cooperation. 
C. 
PACE OF IMPLEMENTATION  
13. Concerns have been raised over the slow pace of implementation of the Integrated 
Framework.  This might be due to the fact that the Integrated Framework involves the coordination of 
forty-eight LDCs, six core Agencies and numerous b ilateral development partne rs to the LDCs.  The 
six core Agencies have different ways of operatin g and of setting up priorities.  A considerable 
amount of time is also spent on achieving co nsensus among the six core Agencies through 
information sharing and consultations.  The lim ited amount of human and financial resources WT/COMTD/LDC/7 
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 available within the LDC Governments and tho se made available to date by international 
organizations and bilateral donors to operate the In tegrated Framework also account for some of the 
implementation difficulties.  In addition, there ha ve been difficulties in pursuing the Integrated 
Framework process as conceived in small LDCs and in LDCs with problematic political situations. 
D. "
MAINSTREAMING "  
14. Encouraging progress appears to have been made  in "mainstreaming" trade concerns into 
LDC Governments' priorities and the policy framewo rks of major core agencies, particularly the 
World Bank and UNDP.  However, concerns have been raised that, in considering trade-related issues 
in the wider context of World Bank Consultative Groups or UNDP Round-Tables, they might become 
sidelined when compared to other major policy co ncerns.  Ways to use the Integrated Framework 
round-table mechanism to achieve appropriate results needs to be carefully examined. 
E. FOLLOW -UP 
15. It has been noted by LDCs that the process of arranging roundtable meetings is not the 
principal element.  For them, the most crucial part  is the follow-up to the results of the round-table 
meeting.  It is often the case that, immediately af ter a round-table conference, the agencies that have 
helped coordinate the round-table cease to be of assist ance.  The LDCs are then left with the task of 
following up whatever came out of the round-table.  As the LDCs in most cases have supply-side 
problems, follow-up is difficult, hence any positiv e outcome of a round-table is not fully realized. 
 
IV. SUGGESTED IMPROVEMENTS 
16. It has been proposed that the six core Agencies should determine, together with the LDCs 
themselves, the LDCs that are ready to hold trade -related round-tables and those that have to take 
certain steps before they are ready to organize su ch meetings.  The situation in all LDCs is not 
uniform.  It should be up to the Government  of each LDC to chose its course of action. 
17. Some preparatory clarification work and proper follow-up are necessary to avoid the 
problems relating to diverging perceptions.  While there is no binding obligation for donors to provide 
additional funding, the process would benefit from donor s making every effort to meet some of the 
expectations. 
18. It has been suggested that a "coordinator programme"/"development partner" programme 
should be established.  There has to be a central recognizable coordinator who can assist the recipient 
country on how to take the first step in setting up th e round-table.  This in-country coordinator would 
be there to guide and work with the recipient count ry after the recipient c ountry has identified its 
needs.  The coordinator should not only assist the LD Cs to initiate the process but help with follow-up 
as well.  It is important to ensure coordination be tween the centrally recognized coordinator and the 
lead agency were the two to be different.  This is particularly important in order to avoid confusion, 
duplication and unnecessary overlap in the lead-up to  the round-table meeting.  However, it should 
not affect the demand-driven character of the Integrated Framework. 
19. It has been noted that better use could be  made of the UNDP and the World Bank as "lead 
agency" at the level of each LDC throughout the Inte grated Framework process, and in particular in 
order to ensure follow-up and monitoring of indi vidual country programmes.  These Agencies have 
local offices which can contact and inform local re presentatives of the donors from the first steps of 
the process throughout the round-table and in the follow-up phase.  WT/COMTD/LDC/7 
 Page 5 
 
 
 20. It has been stressed that the mainstreami ng of trade concerns into LDC Governments' 
priorities and the policy frameworks of major core  agencies, particularly the World Bank and UNDP, 
is an important aspect of the Integrated Framework. 
21. It has been recognized that the selection of na tional consultants is im portant.  A consultant 
from the Ministry of Trade would possibly only be  knowledgeable on narrow trade issues.  The ideal 
would be to hire a consultant w ho is involved in and experienced bot h with the public and the private 
sector; and can, therefore, treat trade-related issues more broadly.  In selecting a person to assist, account has to be taken of building up capacity w ithin the public sector as the use of private 
consultants may deplete the public sector of skilled sta ff.  If a private consultant is used, requirements 
could be set to ensure that local capacity-building occurs. 
22. Requests have been made for LDCs to provi de bilateral donors with early and timely 
information of the work they are undertaking in preparing the Integrated Framework round-tables, as donors also have to coordinate domestically between  trade departments and development agencies in 
their capitals.  The six core Agencies could al so assist in providing bilateral donors with more 
information on a regular basis on the preparations for the round-table meetings from early on in the 
process.  This could help in preparing donors to be able to respond positively at round-table to 
requests by LDCs. 
23. There have been calls for clearer and more accessible information on the stage of 
implementation and completion of projects mentione d in the needs-assessment of each LDC.  That 
information should be presented in such a way as to give a clear picture of what has been achieved 
with the trade-related technical assistance provided,  and what remains to be done.  This information 
would be useful to all stakeholders in the Integrat ed Framework process.  All stakeholders would also 
have to contribute by making information regarding their own activities available. 
24. It has been proposed that the six Agencies assist the LDCs to develop carefully designed 
programmes which will interest the donor community .  The needs-assessments should be reviewed 
and updated in the process of writing the multi-year progr am so as to ensure that  that issues raised and 
priorities identified remain valid.  This is exac tly what has been done in the LDCs which have 
finalized proposals for a multi-year programmes of tr ade-related technical assistance which have been 
brought to the round-table meetings.  However, the round-table meetings are not one-off events.  If no 
money is being pledged at that particular occasion it does not mean that all work has been in vain.  A 
better mechanism could be created to ensure that wh at is put on the table at the round-table meetings 
is kept on the table and carried forward in various b ilateral fora.  On some oc casions funds have been 
made available at a later stage.  There needs to be better coordination with donors to allow sufficient 
lead time for positive responses at round-table meetings. 
25. As round-tables were difficult to organize, the idea of "launch-meetings" was introduced to 
make progress.  However, it has been noted that th e impression given by the launch-meetings held is 
that that they, to some extent, have been opp ortunities missed.  They have resembled pledging 
meetings and have not been coopera tive, coherent, integrated meeti ngs where the six core Agencies 
explain to potential donors where the value added of an integrated approach lies, what the priorities 
are and where the synergies from pursuing the propo sed projects lie.  The preparatory meetings for 
round-tables should include positiv e coherence and other elements .  That might also bring 
expectations in line with the results of the round-tables in the end. 
26. 
It has been noted that it is necessary to clarify the role of the different parties – the six core 
Agencies, the LDCs, and bilateral donor s - in the mobilisation of funds.  
27. In relation to difficulties of follow-up to round- tables it has been suggested that a mechanism 
needs to be put in place to assist and encourag e LDCs to ensure follow-up on commitments and WT/COMTD/LDC/7 
Page 6  
 
 pledges made at round-tables through consultations for example.  The LDCs' development partners 
should also be engaged, especially in the period l eading up to the round-table, but also in the post 
round-table phase.  The structure should also ensure  that links between LDC Governments, bilateral 
donors and the six core Agencies are maintained. 
28. It has been suggested that th e Integrated Framework could, in the future, be extended to 
benefit other developing countries, non-LDCs.  On the other hand it has been said that, since there 
have been problems with the implementation of the Integrated Framework, it should first be ensured 
that it is functioning properly and that it is bene ficial to the LDCs before extending it to other 
countries.  In that regard it was said that a cond ition for extending the Integrated Framework to other 
developing countries was that there would be an ev aluation of the existing programme and that the 
benefits for the LDCs first be assessed.  Others ha ve suggested that the principles which underpin the 
Integrated Framework could be used in techni cal cooperation with other developing countries. 
29. It has also been suggested that  some of the other intergovernmental organizations active in 
trade-related technical cooperation activities be included in the Integrated Framework exercise in order better to address supply-side problems.  UNIDO  has been mentioned as one agency particularly 
relevant in this connection.  In addition, it has been proposed that bilateral donors also should be 
directly incorporated in the process and ways of exploring the involvement of NGOs who are 
providing development assistance on a regular basis s hould be found.  However, all stakeholders had 
to avoid being over-ambitious in th is regard.  Concerns have been raised that involving additional 
players would further aggravate c oordination problems and increase the already heavy bureaucracy of 
the Integrated Framework.  Those problems would ha ve to be resolved before welcoming additional 
participants. 
30. It has been considered that, although the crea tion of the Integrated Framework Website had 
been useful in itself, improvements in its ease of access by the least-developed countries must be 
made in order for it to be used effectively by the countries concerned. 
31. It has been proposed that in carrying out th e review of the Integrated Framework, the 
six Agencies work in close coordination and that th e work should be carried out with a high degree of 
transparency.  The evaluation should be developed as  part of a capacity building exercise.  The work 
of the six core Agencies should be reported frequently and in a timely manner to the relevant forum.  
It should be ensured that the outcome of the evalua tion directly and specifically feeds back into an 
improvement of the Integrated Framework.  The si x Agencies should, throughout the review, keep the 
"ownership" of the Integrated Framework of the LDCs in mind. 
32. There have been calls for an integrated system of reporting on the activities of the Integrated 
Framework.  The aim of integrated reporting woul d be to give an overview of activities under the 
Integrated Framework and to s how that there is no overlap. 
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