RESTRICTEDWORLD TRADE
ORGANIZATIONWT/COMTD/LDC/W/18
25 January 2000
(00-0291)
Sub-Committee on Least-Developed Countries
INTEGRATED FRAMEWORK FOR TRADE-RELATED ASSISTANCE
TO LEAST-DEVELOPED COUNTRIES:
The Process to Date, Concerns and Suggested Improvements
Note by the Secretariat
I. INTRODUCTION
1. At its meeting of 19 November 1999, the Sub-Committee on Least-Developed Countries
(LDCs) requested the Secretariat to compile views expressed by delegations on the IntegratedFramework.
1  This note aims at covering the broad lines of argument 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 document the Sub-Committee intends to
submit as a contribution to the mandated review of the Integrated Framework which is beingundertaken by the six core Agencies.  The note is divided into three parts; the process to date,
concerns and problems raised and suggested improvements.  In the "suggested improvements" part
proposals made by individual delegations have been listed.  As with the issues mentioned in the other
parts of this note, the fact that an issue or a proposal has been listed does not mean that there is any
consensus on it.
II. THE PROCESS TO DATE
2. Out of forty-eight LDCs, forty LDCs have pr epared country Needs-Assessments.  Although
some LDCs have experienced 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 profile and importance of trade issues in LDCs.
3. Forty Integrated Responses to those needs-assessments have been given by the six core
Agencies.  The preparation of the Integrated Responses initiated enhanced cooperation and
coordination among the six core Agencies.  Duplication 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 have been undertaken in the LDCs by the core
Agencies even without the holding of a round-table.  These activities have been delivered in a moreeffective manner thanks to the enhanced information-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 Agencies upon request.  The purpose is to gather all
                                                     
1 Document WT/COMTD/LDC/M/18 contains a report on that meeting.WT/COMTD/LDC/W/18
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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 integrated 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 committee 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 steady and growing fl ow 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 Integrated Framework.  For over ten LDCs the IntegratedFramework 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 issues 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" meetings 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 and with the private sector, LDCs that have
held round-tables to date have been disappointed with 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. Round-table meetings for approximately 16 LDCs have been scheduled for the year 2000.
2
For these round-tables national multi-year programmes of trade-related technical assistance will be
prepared by each country with the assistance of and in close consultation 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 Unit for the Integrated Framework, physically
located in the ITC; although difficulties with the staffing and funding were reported;
(c) The establishment of the Integrated Framework Website.  Increased transparency,
achieved through the sharing of all documents among all players, and the extensive
use of the Integrated Framework Website, facilitates better coordination and
stimulates participation on the part of all;
(d) The production of a model document by the six Agencies, entitled "Trade-Related
"Round Table Meetings"/Consultations:  Outline Suggested to Assist the
Least-Developed Countries in Preparing their Documentation for Trade-Related
                                                     
2 They are Bangladesh, Bhutan, Burkina Faso, Djibouti, Chad, Ethiopia, Guinea, Lesotho, Mali,
Malawi, Mauritania, Madagascar, Mozambique, Nepal, Togo, and Zambia.WT/COMTD/LDC/W/18
Page 3
Round-Tables/Consultations and an Indicative Timetable for the Preparation of such
Meetings".3  This is an important instrument that could facilitate the task of
organizing trade-related round-tables in the future.  Comprehensive documents
presenting the overall picture of trade-related needs and proposed technical assistance
will lead to better informed donors and 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 stems 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-relatedtechnical 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 LDCs 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 financial resources for trade-related projects, lead tobetter coordination of assistance activities in the field, or divert resources away from already
prioritised and approved projects.  That information would be a factor LDCs would take into account
in the assessment of the priority they may give to the Integrated Framework.
10. LDCs which have used the scarce resources available 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 have been very reluctant to come forward with
any pledges of assistance to complement their efforts and the efforts of the six core Agencies.
B. 
COORDINATION AND OWNERSHIP
11. There have been various coordination difficulties  within the Integrated Framework.  Although
coordination is difficult within LDC Governments 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 am ong 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 coordination among and within the bilateral donors have proven
insufficient.  Finally, there has to some degree 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 that they do not control the money involved.  Donors
have responded that LDCs have more say and st eering capacity under the Integrated Framework than
in more traditional forms of technical cooperation.
                                                     
3 Document WT/COMTD/LDC/W/15 of 17 May 1999.WT/COMTD/LDC/W/18
Page 4
C. PACE OF IMPLEMENTATION
13. Concerns have been raised over the slow pace of implementation of the Integrated Framewok.
This might be due to the fact that the Integrated Framework involves the coordination of forty-eight
LDCs, six core Agencies and numerous bilateral development partners to the LDCs.  The six core
Agencies have different ways of operating and of setting up priorities.  A considerable amount of time
is also spent on achieving consensus among the six core Agencies through information sharing and
consultations.  The limited amount of human and financial resources available within the LDC
Governments and those made available to date by international organizations and bilateral donors to
operate the Integrated Framework also account for some of the implementation difficulties.  In
addition, there have 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 frameworks 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 concerns.  Ways to use the Integrated Frameworkround-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 after a round-table conference, the agencies that havehelped coordinate the round-table cease to be of assistance.  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 positive 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 such meetings.  The situation in all LDCs is not
uniform.  For some LDCs, it may be the case that neither the financial resources nor the interest for a
trade-related round-table exist.  It should be up to the Government of each LDC to chose its course of
action.
17. 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 the round-table.
18. 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 In tegrated 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 donors.
19. It has been recognized that the selection of national consultants is important.  A consultant
from the Ministry of Trade would possibly only be  knowledgeable on narrow trade issues.  The idealWT/COMTD/LDC/W/18
Page 5
would be to hire a consultant who is involved in and experienced both with the public and the private
sector; and can, therefore, treat trade-related issues more broadly.
20. Requests have been made for LDCs to provide 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 intheir capitals.
21. 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 prog ram so as to ensure that that issues raised and
priorities identified remain valid.  This is exactly what has been done in the LDCs which have
finalized proposals for a multi-year programmes of trade-related technical assistance which have been
brought to the round-table meetings.
22. As round-tables were difficult to organize, the idea of "launch-meetings" was introduced to
make progress.  However, it has been noted that the impression given by the launch-meetings held is
that that they, to some extent, have been opportunities missed.  They have resembled pledging
meetings and have not been cooperative, coherent, integrated meetings where the six core Agencies
explain to potential donors where the value added of an integrated approach lies, what the prioritiesare and where the synergies from pursuing the proposed projects lie.  The preparatory meetings for
round-tables should include positive coherence and other elements.  That might also bring
expectations in line with the results of the round-tables in the end.
23. It has been noted that it is necessary to clarify the role of the different parties – the six core
Agencies, the LDCs, and bilateral donors - in the mobilisation of funds.
24. In relation to difficulties of follow-up to rou nd-tables it has been suggested that a mechanism
needs to be put in place to assist and encour age LDCs to ensure follow-up on commitments and
pledges made at round-tables.  The LDCs' developm ent partners should also be engaged, not only in
the period leading 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.
25. It has been suggested that the Integrated Framework should 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 beneficial to the LDCs before extending it to other countries.
26. It has also been suggested that some of the other intergovernmental organizations active in
trade-related technical cooperation activities be in cluded in the Integrated Framework exercise in
order better to address supply-side problems.  UNI DO 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 should be found.  However, concerns have been
raised that involving additional players would further aggravate coordination problems and increasethe already heavy bureaucracy of the Integrated Framework.  Those problems have to be resolved
before welcoming additional participants.
27. It has been considered that, although the creation 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.WT/COMTD/LDC/W/18
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28. It has been proposed that in carrying out th e review of the Integrated Framework, the
six Agencies work in close coordination and that the 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 frequ ently and in a timely manner to the relevant forum.
It should be ensured that the outcome of the evaluation directly and specifically feeds back into animprovement of the Integrated Framework.
29. There have been calls for an integrated system of reporting on the activities of the Integrated
Framework.  The aim of integrated reporting would be to give an overview of activities under the
Integrated Framework and to show that there is no overlap.
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