[pic] | KUMMISSJONI TAL-KOMUNITAJIET EWROPEJ |

Brussel 25.1.2006

KUMM(2006) 21 finali

KOMUNIKAZZJONI MILL-KUMMISSJONI LILL-KUNSILL U LILL-PARLAMENT EWROPEW

STRATEġIJA TEMATIKA GħAS-SIGURTÀ TA’ L-IKEL Navvanzaw l-aġenda tas-sigurtà ta’ l-ikel biex niksbu l-MDGs

WERREJ

1. Introduzzjoni 3

2. il-kuntest 4

2.1. L-analiżi tat-tema 4

2.2. Qafas ta’ politika stabbilit 5

2.3. Esperjenza ta’ l-imgħoddi/lezzjonijiet li tgħallimna 6

2.4. Ir-raġunijiet għal programm tematiku 6

3. Prijoritajiet tematiċi 7

3.1. Għan (inkluża l-kopertura ġeografika) 7

3.2. Prinċipji ta’ programmar 7

3.3. Għanijiet 9

3.4. Prijoritajiet strateġiċi 9

3.5. Prijoritajiet Strateġiċi għall-appoġġ tal-provvista tal-ġid pubbliku u l-iffinanzjar ta’ programmi globali 9

3.5.1. Ġid Pubbliku Internazzjonali (IPGs) 9

3.5.2. Programmi globali (u kontinentali) 9

3.5.3. Promozzjoni u avvanz ta’ l-aġenda globali tas-sigurtà ta’ l-ikel. 10

3.6. Tindirizza n-nuqqas ta’ sigurtà fl-ikel f’sitwazzjonijiet eċċezzjonali ta’ tranżizzjoni u stati dgħajfa. 10

3.7. Promozzjoni ta’ politiki u strateġiji innovattivi 11

3.8. Il-Benefiċjarji 12

3.9. L-imsieħba fl-implimentazzjoni tal-Programm Tematiku 12

ANNEXES 14

KOMUNIKAZZJONI MILL-KUMMISSJONI LILL-KUNSILL U LILL-PARLAMENT EWROPEW

STRATEġIJA TEMATIKA GħAS-SIGURTÀ TA’ L-IKEL Navvanzaw l-aġenda tas-sigurtà ta’ l-ikel biex niksbu l-MDGs

1. Introduzzjoni

Bi sforz biex tirrazzjonalizza u tissimplifika l-qafas leġiżlattiv kurrenti li jirregola l-azzjonijiet esterni tal-Komunità, il-Kummissjoni Ewropea pproponiet sett ġdid ta’ sitt strumenti ġodda skond il-Perspettivi Finanzjarji 2007 sa 2013. Tlieta minn dawn l-istrumenti (għall-għajnuna umanitarja, għall-istabilità u għall-għajnuna makro-finanzjarja) huma orizzontali di natura sabiex iwieġbu għal ħtiġijiet u ċirkostanzi partikolari. It-tliet strumenti l-oħra (għall-għajnuna ta’ qabel l-adeżjoni, għall-appoġġ għall-politika ta’ viċinat u sħubija Ewropea u għall-kooperazzjoni ta’ żvilupp u kooperazzjoni ekonomika) huma maħsuba biex jimplimentaw politiki speċifiċi u għandhom kopertura ġeografika definita. Fil-ġejjieni, dawn l-istrumenti se jipprovdu l-atti leġiżlattivi bażiċi għall-infiq Komunitarju b’appoġġ għall-programmi ta’ kooperazzjoni esterna, inklużi programmi tematiċi xierqa u se jieħdu post, inter alia, ir-regolamenti tematiċi eżistenti.

Wieħed mis-seba’ programmi tematiċi identifikati mill-Kummissjoni[1] huwa l-Programm Tematiku dwar is-Sigurtà ta’ l-Ikel. Il-bażi legali tiegħu tkun il-kooperazzjoni ta’ l-Iżvilupp u l-Istrument ta’ kooperazzjoni Ekonomika u l-Istrument tal-Viċinat u s-Sħubija Ewropea. Skond il-Komunikazzjoni tal-Kummissjoni dwar l-Istrumenti għall-Għajnuna Esterna taħt il-Perspettiva Finanzjarja tal-Ġejjieni 2007-2013 [COM(2004) 626], l-għajnuna kollha fl-ikel ta’ natura umanitarja tkun inkluża taħt l-Istrument ta’ l-Għajnuna Umanitarja minflok ma tiġi trattata taħt fondi tematiċi separati.

Skond teżijiet ta’ proposti, il-programmi tematiċi għandhom jipprovdu valur miżjud distint u jinkorporaw attivitajiet li jikkumplementaw programmi ġeografiċi, li jibqgħu jkunu l-qafas ewlieni għall-kooperazzjoni tal-Komunità ma’ pajjiżi terzi.

Il-Kummissjoni impenjat ruħha li tidħol f’diskussjoni mal-Parlament Ewropew u l-Kunsill dwar l-iskop, l-għanijiet u l-prijoritajiet ta’ kull programm tematiku fuq il-bażi ta’ komunikazzjonijiet formali liż-żewġ istituzzjonijiet. L-eżitu ta’ dan il-proċess għandu jipprovdi linji ta’ gwida politiċi għall-istadji sussegwenti ta’ l-ipprogrammar, b’mod partikolari tad-dokumenti ta’ strateġija tematiċi li għandhom jitħejjew skond id-dispożizzjonijiet ta’ l-istrumenti msemmija hawn fuq.

2. il-kuntest

2.1. L-analiżi tat-tema

Hemm kull ġustifikazzjoni għalfejn għandha tiġi indirizzata n-nuqqas ta’ sigurtà fl-ikel[2], dan huwa stabbilit fl-ewwel Għan ta’ Żvilupp tal-Millenju (li, bejn l-1990 u l-2015, jitnaqqas bin-nofs in-numru ta’ nies li jbatu l-ġuħ). Ħuwa stmat li 815 milljun ruħ għandhom nuqqas ta' sigurtà ta' l-ikel 'kronika' fid-dinja li għadha qed tiżviluppa, b’5-10% aktar tal-popolazzjoni fir-riskju ta’ nuqqas ta' sigurtà ta' l-ikel ‘akuta’ minħabba kriżijiet naturali kif ukoll dawk ikkawżati mill-bniedem. Għalkemm sar progress fit-tnaqqis tal-ġuħ fuq livell globali, l-objettiv 1 ta’ l-MDG jibqa’ diffiċli fl-Afrika ‘l isfel mis-Saħara, fejn in-nuqqas ta' sigurtà ta' l-ikel persistenti tkompli tiggrava minħabba nuqqas ta’ stabilità politika rikorrenti.

Fl-Afrika r-rabtiet bejn in-nuqqas ta' sigurtà ta' l-ikel u l-kunflitti, governanza dgħajfa u l-pandemija ta’ l-HIV/AIDS ikattru sfidi iebsa għall-gvernijiet nazzjonali, kif ukoll għad-donaturi u s-soċjetà ċivili. Il-konsum ta’ ammont xieraq ta’ ikel hija kwistjoni ewlenija, u evidenza ta' dan hija l-iskala globali ta' 'ġuħ moħbi', i.e. nuqqas ta' vitamini u minerali fil-ħtiġijiet tad-dieta. Numru ta’ kwistjonijiet jaffettwaw il-konsum ta’ ammont xieraq ta’ ikel, inkluż id-distribuzzjoni ta’ l-ikel minn dar għal dar, il-mod kif l-ommijiet jitimgħu t-tfal, it-tħejjija ta' l-ikel u l-kwalità u s-sigurtà ta' l-ikel, l-ilma u s-saħħa. In-nuqqas ta’ sigurtà fl-ikel tkun imkabbra tipikament minħabba degradazzjoni ambjentali, sistemi fqar ta’ produttività, swieq li jaħdmu ħażin u kapaċità umana limitata u tkompli tiżdied bin-nuqqas ta’ ugwaljanzi, peress li min hu soċjalment intitolat għall-ikel jiġi affettwat skond is-sess, l-età u l-etniċità. Hemm evidenza li l-indiċi enormi ta' ġuħ tinsab fiż-żoni rurali, fejn in-nuqqas fl-aċċess kemm ekonomiku kif ukoll fiżiku jirrenja. Madankollu, biż-żieda tal-faqar urban, in-nuqqas ta’ sigurtà fl-ikel qed tiżdied ukoll fiż-żoni urbani u ma tistax tiġi injurata.

In-nuqqas ta’ sigurtà fl-ikel, li hija kemm kawża kif ukoll konsegwenza tal-faqar assolut, mhijiex rikonoxxuta biżżejjed la bħala għan ta’ żvilupp u lanqas bħala sinjal ta’ progress ekonomiku u soċjali. Ħafna drabi tkun assoċjata b’mod dejjaq ma’ miżuri ta’ skop qasir bħall-għajnuna fil-forniment ta’ l-ikel, jew iż-żieda fil-provvista ta’ l-ikel, u n-natura multi-dimensjonali tagħha tispiċċa injurata. Bħala għan mhux integrat/mainstreamed biżżejjed fl-istrateġiji ta’ żvilupp nazzjonali bi skop fit-tul. mil-lat pożittiv, it-tieni ġenerazzjoni ta’ Strateġiji għat-tnaqqis tal-faqar taħseb aktar fuq is-sigurtà ta' l-ikel hekk kif il-gvernijiet nazzjonali jindunaw dejjem aktar bl-importanza li jiġu stabbiliti programmi u strateġiji nazzjonali.

Fis-snin riċenti, ħareġ ċar li sfida ewlenija biex nilħqu l-għanijiet tas-sigurtà fl-ikel titfaċċa f'sitwazzjonijiet ta' kriżi, partikolarment dawk ta' natura kumplessa u fit-tul, u fil-każ ta' nuqqas ta' stabilità politika u f’pajjiżi li għaddejjin minn tranżizzjoni. L-istampa tan-nuqqas ta’ sigurtà globali ta’ l-ikel tipponta lejn numru ta’ stati fraġli u vulnerabbli li la għandhom il-kapaċità u lanqas il-qafas istituzzjonali biex jimplimentaw strateġiji fit-tul meta jsibu ruħhom wiċċ imb'wiċċ ma’ kriżi. Fl-2005, 43 pajjiż bata minn nuqqas serju ta' ikel, 23 minnhom fl-Afrika u oħrajn fl-Asja u l-Amerka Latina. Il-kobor u r-ripetizzjoni tal-problema titlob trattament strutturali ġdid fit-tul biex jissolvew il-kawżi bażilari tan-nuqqas ta’ sigurtà fl-ikel.

2.2. Qafas ta’ politika stabbilit

Il-politika tal-KE għas-Sigurtà ta’ l-Ikel stabbilita fl-1996 taħt ir-Regolament tal-Kunsill (KE) Nru. 1292/96 tkompli tiddiriġi l-azzjoni tal-Kummissjoni fit-tilwima kontra l-ġuħ. Il-politika evolviet minn sempliċiment forniment ta’ għajnuna f’ikel għall-appoġġ ta' strateġiji b'bażi wiesgħa ta’ sigurtà ta’ l-ikel fuq livelli nazzjonali, reġjonali u globali fejn l-għajnuna f'ikel tinħall u tkun strument limitat għall-emerġenzi.

Il-KE hija donatriċi internazzjonali ewlenija fejn tidħol is-Sigurtà ta' l-Ikel (€4.9 biljun ġew allokati mill-FS-BL mill-1996, i.e. medja annwali ta’ €500 miljun) l-għajnuna tagħha bħala risposta għall-fażijiet varji fit-tranżizzjoni fil: i) pajjiżi fi kriżi jew li għaddew minn kriżi; ii) pajjiżi li jbatu minn nuqqas ta’ sigurtà kroniku fl-ikel; u iii) ekonomiji fi tranżizzjoni. Il-KE hija wkoll impenjata b’mod attiv fid-dibattitu internazzjonali dwar il-politika, bħall-għajnuna fil-kummerċ u l-ikel (id-WTO, il-Konvenzjoni dwar l-Għajnuna fl-Ikel, is-Sotto-Kumitat Konsulattiv tal-FAO dwar is- Surplus Disposal ) u hija donatriċi fir-riċerka agrikola kemm fuq livell globali (Grupp Konsultattiv għar-Riċerka Agrikola Internazzjonali - CGIAR - Consultative Group for International Agricultural Research) u reġjunali (b’mod partikolari fl-Afrika) kif ukoll fuq livell nazzjonali.

Il-politika tal-KE tenfasizza r-rwol ċentrali ta’ l-istrateġiji nazzjonali għat-tnaqqis tal-faqar biex jiksbu sigurtà ta’ l-ikel fit-tul u l-ħtieġa li jiġi mmirat il-ġuħ bħala l-eqreb priorità fit-tilwima konta l-faqar. Tagħraf ukoll li s-sigurtà ta’ l-ikel tista’ tkun ferm fraġli, u saħansitra kriżi tranżitorja tista' tagħti bidu għall-problemi kroniċi ta' l-ikel, hekk kif l-assi jiġu mittiekla malajr u l-għajxien mhedded.

Fl-2004 evalwazzjoni esterna kkonfermat il-validità tal-qafas strateġiku tal-KE għas-sigurtà ta’ l-ikel, li b’hekk japplika wkoll għal dan il-Programm Tematiku: Dan jgħid li s-sigurtà ta’ l-ikel tista’ tinkiseb biss billi jiġu indirizzati fl-istess ħin id-disponibbiltà ta’ l-ikel, l-aċċess għall-ikel, il-kwalità tan-nutrizzjoni u l-prevenzjoni ta’ kriżijiet ta’ l-ikel.

Fil-qafas ta’ l-iżvilupp aktar wiesa’ tal-politika, b'segwitu mill-Istqarrija ta' l-Iżvilupp tal-Politika dwar is-Sigurtà ta' l-Ikel ta' l-2000, ikompli jibqa' prijorità fil-"Konsensus Ewropew għall-Iżvilupp" [KUMM(2005) 311] adottat mill-Kummissjoni f'Lulju 2005 u endorsjat mill-Kunsill f’Novembru 2005.

L-Istrateġija ta’ l-UE għall-Afrika [KUMM(2005) 489], approvata riċentament mill-Kummissjoni u l-Kunsill, terġa’ tiddikjara l-importanza li tiġi indirizzata s-sigurtà ta’ l-ikel f’dak il-kontinent bħala parti mit-tkabbir ta’ moviment favur il-foqra u l-iżvilupp agrikolu u tenfasizza wkoll l-importanza tar-riċerka agrikola.

Fit-tranżizzjoni mill-emerġenza (fażi umanitarja) għall-iżvilupp, l-għajnuna tal-KE hi maħsuba f’kuntest ekonomiku, soċjali u politiku wiesa’ definit fil-Komunikazzjoni tal-KE fuq “l-Irbit tas-Solliev, Riabilitazzjoni u l-Iżvilupp”[3] (LRRD) bħala: “Programmi ta’ riabilitazzjoni li gradwalment jieħdu f'idhom is-solliev/l-għajnuna għall-emerġenza biex tintlaħaq stabbilità fis-sitwazzjoni ekonomika u soċjali u biex jiffaċilitaw it-tranżizzjoni lejn strateġija għall-żmien medju jew fit-tul".

2.3. Esperjenza ta’ l-imgħoddi/lezzjonijiet li tgħallimna

Apparti milli kkonfermat il-validità tal-politika tal-KE, l-evalwazzjoni riċenti esterna tal-Politika għas-Sigurtà ta' l-Ikel tal-KE u l-Linja tal-Baġit (2004) enfasizzat ukoll il-valur miżjud distint tagħha meta mqabbel ma’ donaturi oħra għall-fokus tagħha fuq l-LRRD, sħubija multi-partitarja u l-għaqda ta' strumenti ta' implimentazzjoni differenti. L-evalwazzjoni identifikat ukoll l-oqsma ta’ titjib li ġejjin u li huma indirizzati taħt il-Programm Tematiku:

- LRRD: Trattament aktar sistematiku għal-LRRD jista’ jgħin biex ikun hemm rispons aktar effettiv għan-natura dinamika u multidimensjonali tan-nuqqas ta’ sigurtà ta’ l-ikel.

- Fokus fuq il-faqar: integrazzjoni aħjar tas-sigurtà ta’ l-ikel bħala qasam ta’ prijorità fid-Dokumenti ta’ Strateġija għat-Tnaqqis tal-Faqar u fid-Dokumenti ta’ Strateġija tal-Pajjiżi tal-KE.

- Politika/żvilupp strateġiku: aktar djalogar u appoġġ għall-gvernijiet sabiex jiġi stabbilit djalogu ta’ politika dwar is-sigurtà ta’ l-ikel fit-tul.

- Koerenza Politika: aktar koerenza fuq livell nazzjonali bl-integrazzjoni ta’ sigurtà ta’ l-ikel f’pajjiż tal-KE (u Reġjunali) Dokumenti ta’ Strateġija (CSPs).

2.4. Ir-raġunijiet għal programm tematiku

L-istrateġija tal-KE taħseb li l-integrazzjoni ta’ l-għanijiet tas-sigurtà ta’ l-ikel fi strateġiji u politiki għal tnaqqis tal-faqar fi żmien twil u fuq bażi wiesgħa. Kemm il-programmi ġeografiċi kif ukoll dawk tematiċi huma strumentali biex jintlaħqu dawn l-għanijiet.

Programmi ġeografiċi ser ikunu l-istrument standard għall-implimentazzjoni madwar id-dinja tal-politika għas-Sigurtà fl-Ikel tal-KE, kull fejn hemm qafas ta’ kooperazzjoni fix-xogħol li taħdemmal-gvern . Allokazzjonijiet futuri ta’ riżorsi ta’ strumenti ġeografiċi fil-pajjiżi jieħdu in kunsiderazzjoni l-livell tas-sigurtà nazzjonali ta’ l-ikel. F’pajjiżi fejn hemm nuqqas ta’ sigurtà fl-ikel jista’ jagħti l-każ li l-Programm Tematiku jappoġġa l-iżvilupp tal-politika biex jiżgura li t-trattament strateġiku għas-sigurtà fl-ikel ikun miġbur fi istrateġiji nazzjonali għat-tnaqqis tal-faqar.

F’pajjiżi fi kriżi fejn l-għajnuna umanitarja hija meħtieġa biex issalva/tipproteġi l-ħajja, l-għajnuna tkun provduta permezz ta' l-Istrument ta' l-Għajnuna Umanitarja. B’Koordinazzjoni mad-dipartimenti tal-Kummissjoni kkonċernati, il-Programm Tematiku ikun użat fejn meħtieġ f’sitwazzjonijiet lejn it-tmiem ta' l-għajnuna ta' emerġenza biex jiffaċilita ir-rikoveru u riabilitazzjoni u jnaqqas il-vulnerabilità billi jiffoka speċifikament fuq is-sigurtà ta' l-ikel.

Fil-kuntest ta’ tranżizzjoni, numru ta’ xenarji differenti jiġġustifikaw il-fatt li jkun hemm għajnuna tematika aktar milli ġeografika. Dawn jistgħu jiġu mqassma fi tliet kategoriji ġenerali:

- Sitwazzjonijiet u pajjiżi fejn jista’ jkun diffiċli li jkun hemm qbil dwar l-azzjonijiet ta’ Sigurtà ta’ l-Ikel ma’ gvernijiet imsieħba minħabba prioritajiet oħra. Per eżempju, nuqqas ta’ sigurtà fl-ikel tista’ tkun konċentrata f’żoni partikolari (barra mill-kontroll ta’ l-istat) jew fost gruppi partikolari (Nies li jkunu Mċaqilqa Internament).

- Pajjiżi fejn il-kooperazzjoni ġiet sospiża jew fejn m’hemmx qafas ta’ kooperazzjoni (CSP). In-nuqqas ta’ stat li jiffunzjona jfisser rwol akbar għas-soċjetà ċivili u l-organizzazzjonijiet multilaterali biex jintervjenu b’mod effettiv (eż. s-Somalja).

- “Kriżijiet Minsija” fejn tista’ tkun diffiċli biex tiġi stabbilita kooperazzjoni ma’ gvernijiet nazzjonali permezz ta’ strumenti ġeografiċi.

Abbażi ta' dan kollu, ir-raġunijiet għal programm tematiku jkunu li jiżguraw:

(i) koerenza politika u kontinwità ta' operazzjonijiet tul il-proċess ta' l-LRRD, (ii) komplimentarjetà bejn il-livelli differenti ta’ intervent ġeografiku billi jiġu indirizzati l-kwistjonijiet globali/kontinentali u l-ippromovar ta’ metodi innovattivi, u (iii) koordinazzjoni, armonizzazzjoni u allinjament ma’ msieħba fl-iżvilupp ta' l-aġenda tas-sigurtà fl-ikel.

3. Prijoritajiet tematiċi

3.1. Għan (inkluża l-kopertura ġeografika)

Skond l-“Azzjonijiet Esterni permezz ta’ Programmi Tematiċi taħt il-Perspettivi Finanzjari tal-ġejjieni 2007-2013” [KUMM(2005) 324], il-Kummissjoni taħseb għal programm tematiku li jista’ “i) jappoġġa l-provvista ta’ oġġetti pubbliċi u b’hekk jikkontribwixxi direttament għas-sigurtà fl-ikel u l-iffinanzjar ta’ programmi globali, ii) jindirizza n-nuqqas ta’ sigurtà dwar l-ikel f’pajjiżi jew reġjuni fejn jew m'hemmx gvernijiet, jew m'għandhomx il-kontroll ta' xi partijiet tal-pajjiż, jew fejn m'hemmx qafas strateġiku tal-pajjiż u iii) jippromwovi politiki u strateġiji innovattivi fil-qasam tas-sigurtà fl-ikel".

Il-kopertura tal-Programm tvarja skond il-komponent:

- L-ewwel wieħed huwa komponent globali, u b’hekk jiffoka l-aktar fuq il-livelli kontinentali, inter-reġjonali u reġjonali b’fokus partikolari fuq l-Afrika u postijiet oħra fejn jista’ jkun hemm sitwazzjonijiet ta’ deterjorament fis-sigurtà ta’ l-ikel.

- it-tieni komponent tal-Programm ikun implimentat primarjament fuq livell nazzjonali u lokali, biex jikkumplimenta l-istrument ġeografiku fejn ikun meħtieġ.

- It-tielet komponent jappoġġa politiki innovattivi, strateġiji u metodi jkun x’ikun il-livell ġeografiku tagħhom li jista’ jkun globali, reġjonali, nazzjonali jew lokali.

3.2. Prinċipji ta’ programmar

Il-Programm Tematiku se jkun ipprogrammat:

- Jirrispetta l-prinċipju tas- sussidjarjetà : Jeskludi l-għajnuna strutturali fit-tul li tkun iffinanzjata mill-programmi ġeografiċi (ipprogrammati permezz ta’ CSPs/RSPs) u jappoġġa interventi tranżizzjonali skond ir-raġunijiet stipulati fis-sezzjoni 2.4. Il-Programm jista' jappoġġa proġetti innovattivi ta' livell reġjonali, nazzjonali u lokali ta' natura pilota li jkollhom l-għan li jittestjaw metodi u strumenti ġodda.

- Ikollu flessibilità suffiċċjenti biex jirrispondi għal ambjent li qed jinbidel malajr, bħal każ ta’ wara l-kriżijiet indirizzat taħt komponent 2. Dan jista' jirrikjedi l-adattament taż-żmien ta’ l-għajnuna, il-proċeduri ta’ finanzjament, it-tip ta’ għodda u l-imsieħba fl-implimentazzjoni.

- Jappoġġa approprjazzjoni u r-rwol u l-prijoritajiet ta' l-organizzazzjonijiet reġjonali u kontinentali fejn ikun relevanti għas-sigurtà fl-ikel, f'komplimentarità ma' msieħba u strumenti oħra.

- Ikattar metodu parteċipatorju , billi jsaħħaħ is-sħubija mas-soċjetà ċivili partikolarment minn pajjiżi li qed jiżviluppaw permezz ta’ netwerks organizzati u assoċjazzjonijiet professjonali, bi djalogar strateġiku.

- Jippromwovi koerenza f’livell internazzjonali u estern billi: (i) jissinkronizza l-ipprogrammar bis-serje ta' l-ipprogrammar CSPs/RSPs; (ii) jikkoopera mill-qrib ma’ dipartimenti oħra tal-Kummissjoni biex jiżviluppa u jimplimenta l-istrateġiji tal-pajjiżi LRRD u d-dħul gradwali /il-ħruġ gradwali tal-Programm Tematiku; (iii) jiżgura konsistenza politika u operazzjonali bejn l-azzjonijiet ta’ l-għajnuna ta’ l-ikel merfugħa fil-kuntest ta’ għajnuna umanitarji fl-aġenda tas-sigurtà fl-ikel (iv) jinvolvi malli jkun possibbli l-UE MS, biex jippromwovi l-avvanz ta' l-aġenda ta' l-UE dwar is-sigurtà fl-ikel; (v) ikattar il-koerenza esterna u l- kumplementarjetà skond id-Dikjarazzjoni ta’ Pariġi ta’ l-OECD dwar l-Effettività ta’ l-Għajnuna. F’dan ir-rigward il-PT jieħu vantaġġ mill-aġenziji ta’ l-esperjenza ta’ l-aġenziji ta’ l-NU u organizzazzjonijiet internazzjonali oħra biex javvanza l-aġenda internazzjonali tas-sigurtà ta’ l-ikel u jwassal il-ġid pubbliku internazzjonali.

- Iħares lejn il-żoni u l-gruppi l-aktar vulnerabbli u li jbatu minn nuqqas ta’ sigurtà fl-ikel, abbażi ta’ evalwazzjonijiet tas-sigurtà fl-ikel u koordinazzjoni ma’ partijiet oħra interessati.

- Jiżgura s- sostenibbiltà ta’ l-azzjonijiet appoġġjati, inkluż l-impatt tagħhom fuq is-soċjetà, l-ekonomija u l-ambjent lokali u reġjonali.

- Karti ta’ Strateġija Tematika (dokumenti ta’ programmazzjoni) fuq erba’ snin (2007-2010) u, imbagħad, tliet snin (2011-2013) se jiġu deċiżi mill-Kummissjoni li ssegwi l-proċeduri tal-Komitoloġija.

- Fuq il-bażi ta’ dan l-ipprogrammar fuq diversi snin, il-Kummissjoni għandha tipprepara programmi ta’ azzjoni għal kull sena li jistabbilixxu l-azzjonijiet prijoritarji li għandhom jiġu appoġġati, l-għanijiet speċifiċi, ir-riżultati mistennija kif ukoll l-ammonti indikattivi.

- Il-programm ikun implimentat skond ir-Riforma 2000 tal-Ġestazzjoni ta’ l-Għajnuna Esterna, li taħseb, fost ħwejjeġ oħra, għad-dikonċentrazzjoni tar-risponsabilitajiet ta’ ġestazzjoni lid-delegazzjonijiet fejn xieraq.

- Fir-rigward tar-reviżjoni ta’ nofs il-perjodu, għandha titwettaq valutazzjoni ta’ l-operat matul l-ewwel perjodu ta’ tliet snin (2007-2009) sabiex tikkontribwixxi għat-tħejjija tat-tieni dokument ta’ Strateġija Tematika (2011-2013). Ir-rapporti għandhom jintbagħtu lill-Istati Membri u lill-Parlament Ewropew u jiġu diskussi magħhom.

3.3. Għanijiet

Skond id-Dikjarazzjoni l-ġdida dwar il-Politika ta' l-Iżvilupp, l-għan ġenerali tal-Programm Tematiku hu li javvanza l-aġenda tas-sigurtà fl-ikel u li jikkontribwixxi biex jintlaħaq l-ewwel MDG dwar il-ġuħ.

L-għan speċifiku tal-Programm hu li jtejjeb l-impatt tal-politika tal-KE dwar is-Sigurtà fl-Ikel, partikolarment fuq dawk l-aktar vunerabbli, permezz ta' sett ta' prijoritajiet u azzjonijiet konsistenti li jikkumplimentaw il-programmi nazzjonali u jtejjeb il-koerenza tagħhom.

3.4. Prijoritajiet strateġiċi [4]

Wara konsultazzjoni esterna u interna estensiva ġiet identifikata firxa ta’ prijoritajiet strateġiċi. L-aħħar identifikazzjoni ta’ prijorità ta’ l-għajnuna tkun ibbażata fuq evalwazzjoni ddettaljata ta’ ħtiġijiet, li tkun imwettqa bil-kooperazzjoni tad-dipartimenti kkonċernati kemm fil-kwartieri prinċipali u d-delegazzjonijiet.

3.5. Prijoritajiet Strateġiċi għall-appoġġ tal-provvista tal-ġid pubbliku u l-iffinanzjar ta’ programmi globali

3.5.1. Ġid Pubbliku Internazzjonali (IPGs)[5]

- Favur il-foqra u riċerka minħabba domanda u innovazzjoni teknoloġika, primarjament fl-agrikoltura (li tinkludi annimali, forestrija u sajd/akkwakultura) b’fokus espliċitu fuq is-sigurtà fl-ikel. Il-pakkett ta’ appoġġ ikun jinkludi fih tixrid minn fuq ‘l isfel u tisħiħ ta’ kapaċitajiet ta’ l-istituzzjonijiet ta’ riċerka reġjonali/nazzjonali

- Appoġġ għall-użu u tixrid ta’ data u stampi satellitarji

- Żvilupp u taħriġ ta’ Kapaċità

- Ġemellaġġ u Netwerk xjentifiku u teknoloġiku bejn it-Tramuntana u n-Nofsinhar u bejn in-Nofsinhar u n-Nofsinhar.

3.5.2. Programmi globali (u kontinentali)

Il-Programmi globali huma mezz biex jiġu żviluppati metodi komuni matul ir-reġjuni f’żoni speċifiċi li huma relevanti għas-sigurtà fl-ikel. Il-prijoritajiet jinkludu:

- Sigurtà ta’ l-Ikel: informazzjoni u sistemi ta’ twissija bikrija , sorveljanza ta' l-għajxien. Programmi globali ser jiżviluppaw, jittestaw, jistandardizzaw u jxerrdu għodda u metodoloġija, u jappoġġaw l-iżvilupp tal-kapaċità u l-iżvilupp istituzzjonali fuq livell reġjonali u nazzjonali.

- Strateġiji għas-Sigurtà ta’ l-ikel. Appoġġ permezz ta’ programm globali għall-gvernijiet li huma lesti jiżviluppaw strateġiji u pjanijiet għas-sigurtà ta’ l-ikel, partikolarment fejn is-sigurtà ta’ l-ikel ma tkunx magħżula bħala qasam ta’ prijorità għall-għajnuna. Il-Programm Tematiku ma jiffinanzjax programmi ta' sigurtà ta' l-ikel nazzjonali li jkollhom jiġu appoġġati permezz ta' strumenti ġeografiċi.

- Appoġġ għall-programmi FS kontinentali u reġjonali, f’oqsma ta’ relevanza speċifika għas-sigurtà ta’ l-ikel, bħall-agrikoltura, il-kummerċ agrikolu u l-ġestazzjoni sostenibbli ta’ riżorsi naturali li jinkludi l-forestrija u s-sajd. Programmi globali/kontinentali u reġjonali jiffokaw fl-oqsma ta’ prijorità, vantaġġ komparattiv u valur miżjud ta’ organizzazzjoni reġjonali/kontinentali u jikkumplimentaw fejn ikun xieraq l-appoġġ minn strumenti ġeografiċi.

- Netwerking ta’ esperti għolja tal-politika. Dan jipprovdi forum u opportunità ta' taħriġ għat-tfassil u l-implimentazzjoni tal-politika u l-istrateġija. Netwerking ta’ organizzazzjonijiet tas-soċjetà ċivili, assoċjazzjonijiet tal-bdiewa u trade unions, (kemm tan-Nofsinhar-Nofsinhar kif ukoll tat-Tramuntana-Nofsinhar), biex ikattar l-aġenda globali tas-sigurtà ta’ l-ikel.

3.5.3. Promozzjoni u avvanz ta’ l-aġenda globali tas-sigurtà ta’ l-ikel

Il-Kummissjoni tibqa’ tindirizza kwistjonijiet ewlenin tas-sigurtà ta’ l-ikel fid-dibattitu internazzjonali u tkattar l-armonizzazzjoni u allinjament ma’ l-imsieħba li qed jiżviluppaw u ma’ donaturi. Allejanza aktar qawwija ma’ l-organizzazzjonijiet tas-soċjetà ċivili ser tkun partikolarment importanti.

3.6. Tindirizza n-nuqqas ta’ sigurtà fl-ikel f’sitwazzjonijiet eċċezzjonali ta’ tranżizzjoni u stati dgħajfa.

Il-“Konsensus ta’ l-UE dwar l-Iżvilupp” il-ġdid jgħid b’mod ċar li, fejn tidħol is-sigurtà ta’ l-ikel, “ikun hemm attenzjoni partikolari fuq is-sitwazzjonijiet ta’ tranżizzjoni". Hemm impenn qawwi biex “noqogħdu aktar attenti għall-pajjiżi l-fqar, għal sħubija diffiċli u għal stati dgħajfa u falluti"[6], b'għarfien illi 30% ta' l-ifqar nies, li għandhom nuqqas ta' sigurtà fl-ikel, jgħixu fi stati dgħajfa.

Fil-pajjiżi immirati, il-programm jipprovdi strument biex jiżgura, waqt perjodu ta’ tranżizzjoni, is-segwitu ta’ l-attivitajiet iffinazjati taħt l-istrument umanitarju qabel id-dħul gradwali ta’ l-attivitajiet fit-tul tas-sigurtà ta’ l-ikel taħt il-programmi ta’ żvilupp ġeografiku. F’dan il-perjodu ta’ tranżizzjoni, il-Programm jiżgura li s-sigurtà ta’ l-ikel tkun indirizzata fil-ħin u b’mod xieraq. Il-Programm se:

- jistabbilixxi strateġiji tal-pajjiżi LRRD b’enfasi speċifiku fuq sigurtà fl-ikel. Xogħol fil-livell tal-Kummissjoni jkun immexxi minn grupp ta’ xogħol LRRD bejn is-servizzi permanenti fi ħdan il-Kummissjoni li jirrevedi l-programm li jinsab għaddej u jissorvelja l-implimentazzjoni. LRRD tirrekjedi flessibilità u allokazzjoni malajr ta’ riżorsi;

- itejjeb id-dħul u l-ħruġ gradwali billi: (i) jappoġġa l-informazzjoni dwar is-Sigurtà ta’ l-Ikel (ara komponent 1); (ii) jiżviluppa metodi innovattivi (ara komponent 3); (iii) itejjeb il-kriterju għad-dħul u l-ħruġ gradwali u jintroduċihom fl-ippjanar tal-fażi ta' l-għajnuna, fuq bażi ta’ każ każ (iv) jippromwovi koordinazzjoni qawwija; u (v) ikabbar l-għarfien ta’ metodologiji li qed jiġu żviluppati għall-metodu tal-LRRD.

Barra minn hekk, fil-każ ta’ kriżi ta’ l-ikel li tinvolvi bosta pajjiżi f’reġjun wieħed ikun meħtieġ rispons reġjonali biex jikkumplimenta l-azzjonijiet nazzjonali (per eżempju dwar sistemi ta’ twissija bikrija, swieq ta’ l-ikel reġjonali, eċċ.). F’din l-eventwalità hemm iċ-ċans li r-riżorsi ma jkunux disponibbli fil-Programm Reġjonali Indikattiv u l-FS TP tista’, jekk tkun meħtieġa, timla l-vojt bejn l-emerġenza u r-rispons ta' l-iżvilupp.

Fit-tfassil ta’ azzjonijiet konkreti għal dan il-komponent, il-Programm jipprijoritizza, fost affarijiet oħra, hekk kif ġej:

- Dwar il-miri (min): l-evalwar tal-vulnerabilità jiffoka fuq l-aktar komunitajiet affettwati u l-gruppi vulnerabbli (ara d-dettalji dwar il-benefiċjari f’sezzjoni 3.8).

- Dwar l-interventi (xiex): Il-Programm jiffoka fuq: (i) investimenti kruċjali biex jipproteġu, imantnu u jirrekuperaw l-assi produttivi u soċjali li huma vitali għas-sigurtà ta’ l-ikel biex jippermettu l-integrazzjoni ekonomika u r-rijabilitazzjoni fit-tul, u (ii) jindirizza l-vulnerabbilità għall-iskossi u jsaħħaħ ir-reżistenza tan-nies permezz ta’ appoġġ għall-ġestazzjoni u prevenzjoni tal-kriżi;

- Dwar għoddod u metodi (kif): skond il-politika tal-KE FS, l-operazzjonijiet jiġu ffinazjati primarjament bi flus biex jiġu stimulati produzzjoni u swieq lokali. Fin-nuqqas ta’ swieq funzjonanti u għażliet alternattivi, li l-imsieħba fl-implimentazzjoniji jistgħu jużaw allokazzjonijiet ta’ flus biex jixtru u jiddistribwixxu l-ikel. Xogħol flimkien ma’ l-awtoritajiet u l-komunitajiet lokali ikun ta’ importanza kbira biex jiġu identifikati l-aħjar forom ta' għajnuna. Koordinazzjoni massima u armonizzazzjoni ma’ donaturi oħra tkun żgurata.

- Dwar l-imsieħba (ma’ min): l-imsieħba ewlenin ikunu l-NGOs internazzjonali u lokali, fejn ikun possibli l-awtoritajiet lokali u l-aġenziji tan-NU fejn xieraq.

3.7. Promozzjoni ta’ politiki u strateġiji innovattivi

Sabiex dejjem inlaħħqu ma’ sfidi fis-sigurtà ta’ l-ikel li għadhom jevolvu fil-livelli lokali, nazzjonali u reġjonali, il-Programm Tematiku jista' jappoġġa l-iżvilupp u l-ittestjar ta' politiki innovattivi, sostenibbli u ta' proprjetà lokali.

Oqsma tipiċi għall-intervent jinkludu: l-agrikoltura u l-ġestazzjoni ta’ riżorsi naturali; is-sigurtà fl-ikel u l-iżvilupp rurali/lokali (inklużi kwistjonijiet urbani/peri-urbani); ġestazzjoni sostenibbli ta’ u aċċess għal riżorsi naturali inklużi l-forestrija u s-sajd; in-nutrizzjoni, kwistjonijiet ta’ demografija u ta’ impjieg, emigrazzjoni; is-sigurtà ta’ l-ikel u l-edukazzjoni/saħħa (eċċ.).

Billi jiffoka fuq l-innovazzjoni l-Programm se: jippromwovi u jikkumplimenta azzjonijiet ta’ partijiet interessati fis-soċjetà ċivili; jipprovdi għajnuna li tibni kemm ikunu kapaċi jkampaw in-nies u fuq is-soluzzjonijiet innovattivi tagħhom; jappoġġa x-xogħol metodoloġiku u l-azzjonijiet immirati lejn it-tnaqqis tal-vulnerabbiltà; jippermetti lil dawk li jfasslu l-politika li jirriċerkaw u jippjanaw għal sfidi ġodda fis-sigurtà ta’ l-ikel; itejjeb il-potenzjalità għar-replikazzjoni ta’ l-innovazzjonijiet u t-tixrid tagħhom fin-Nofsinhar-Nofsinhar.

3.8. Il-Benefiċjarji

Peress li huwa strument ewlieni fit-twettieq ta’ l-għanijiet tas-sigurtà ta’ l-ikel, il-Programm għandu l-għan li jirriduċi n-nuqqas ta' sigurtà fl-ikel madwar id-dinja u għalhekk jikkonċerna firxa wiesgħa ta' benefiċjarji . It-tlett komponenti tal-Programm ikunu imfassla u implimentati bl-għan aħħari li jtejjeb l-għajxien u s-sigurtà fl-ikel tal-foqra rurali u dawk urbani speċjalment fost l-aktar gruppi żvantaġġati.

f’dan il-kuntest, partikolarment f’komponent 2, l-għajnuna fis-sigurtà ta’ l-ikel, timmira benefiċjarji li jiġu minn żewġ gruppi żvantaġġati wesgħin: i) dawk li ma jistgħux jieħdu ħsieb tagħhom infushom u jeħtieġu appoġġ temporanju biex isostnu l-għajxien tagħhom (pereżempju permezz ta’ xbieki ta’ sigurtà), u ii) dawk li jeħtieġu appoġġ temporanju biex jigradwaw minn faqar assolut u jwettqu attivitajiet produttivi. B’mod ġenerali tingħata prijorità lil dawn il-gruppi li ġejjin: tfal taħt il-5 snin; komunitajiet b’membri li jbatu mill-HIV/AIDS jew mard kroniku ieħor; komunitajiet u gruppi affettwati minn gwerer u Persuni Mċaqalqa Internament; nisa, parikolarment meta jkunu kapijiet tad-dar; ragħja, bdiewa żgħar u nies tas-sajd li jkollhom nuqqas ta’ sigurtà fl-ikel; nies bla proprjetà u ħaddiema fl-irziezet, il-foqra nett urbani.

Firxa wiesgħa ta’ benefiċjarji intermedjari wkoll ikunu immirati mill-Programm permezz ta’ bini ta’ kapaċità, inklużi l-personell minn amministrazzjonijiet nazzjonali u reġjonali, istituzjonijiet governattivi u mhux governattivi, istituzzjonijiet fis-settur privat, eċċ.

3.9. L-imsieħba fl-implimentazzjoni tal-Programm Tematiku

Il-Programm huwa maħsub biex jaħdem ma’ firxa ta’ atturi pubbliċi different u dawk mhux ta' l-istat. B’mod partikolari, għajnuna f’sitwazzjonijiet ta’ falliment ta' stat tkun tiddependi fuq l-evalwazzjonijiet ta’ partijiet interessati lokali, prijoritajiet u inizjattivi.

Il-KE qed tieħu passi konkreti biex tippromwovi sħubijiet strateġiċi man- NU u aġenziji multilaterali f’oqsma li jagħmlu kontribuzzjonijiet koerenti fil-programmi tal-KE għas-sigurtà fl-ikel . Sħubijiet strateġiċi jappoġġaw ukoll ix-xogħol tal-KE fid-djalogu ta’ politika internazzjonali dwar is-sigurtà ta’ l-ikel.

Ir-rwol ta' l-organizzazzjonijiet tas-soċjetà ċivili bħala msieħba ikun ta’ importanza ewlenija fil-komponenti kollha: bħala alleati strateġiċi fil-promozzjoni, bħala msieħba ewlenin fit-tfassil u l-implimentazzjoni ta’ l-għajnuna f’sitwazzjonijiet ta’ tranżizzjoni u nuqqas ta’ stabilità, u bħala promoturi ta’ l-innovazzjoni. Il-programm jappoġġa l-kapaċità ta’ l-NGOs tat-Tramuntana u tan-Nofsinhar biex jinvolvu ruħhom fid-djalogu politiku dwar is-sigurtà fl-ikel. Il-Programm ikattar il-kooperazzjoni bejn l-NGOs u atturi oħra mhux statali, u s-settur privat u pubbliku. Ir-rwol ta’ assoċjazzjonijiet professjonali, trejdjunjins u istituzzjonijiet privati ikun promoss attivament.

Skond is-sitwazzjonijiet speċifiċi, partijiet pubbliċi interessati jistgħu wkoll ikunu msieħba fil-programm. L- awtoritajiet lokali għandhom sehem importanti fi stati dgħajfin u f’sitwazzjonijiet ta’ wara kriżi. Istituzzjonijiet kontinentali, reġjonali u nazzjonali jistgħu jkunu assoċjati ma’ programmi globali għall-provediment tal-ġid pubbliku globali, bħalma huma r-riċerka u l-innovazzjoni. Jista’ wkoll ikun hemm skop li jiġu involuti partijiet interessati pubbliċi fil-promozzjoni ta’ politiki u strateġiji tas-sigurtà fl-ikel innovattivi.

ANNEX

ANNEX 1 – PROGRAMME’S STRATEGIC PRIORITIES, BENEFICIARIES AND PARTNERS

1. STRATEGIC PRIORITIES TO SUPPORT THE DELIVERY OF INTERNATIONAL PUBLIC GOODS AND THE FINANCING OF GLOBAL PROGRAMMES

1.1. International Public Goods (IPGs)[7]

- Pro-poor and demand-driven research and technological innovation, primarily in agriculture (including livestock, forestry, fisheries/aquaculture) and sustainable management of natural resources, with an explicit focus on food security. International public institutions should be eligible for funding, including in partnership with the private sector. The support package would include downstream dissemination of information and technology as well as best practices and strengthening of capacities of regional/national research institutions. Research themes would include: sustainable agricultural productivity, efficient use of water resources, animal health, nutrition (so-called hidden hunger) market and trade (e.g. dynamics of local and regional markets and prices, Sanitary and Phytosanitary Standards, knowledge dissemination). Research should also contribute to a better understanding of the root causes of food insecurity (social, anthropological, environmental and economic aspects).

- Support for the use and dissemination of satellite imagery and data, not only for crop monitoring and early warning systems, but also for food security systems, e.g. including such dimensions as land use and management.

- Capacity development and training, such as distance learning tools, to expand the reach of research and know-how in remote areas.

- Networking: Partnerships with EU research initiatives that are relevant for food security and complementary to those funded by existing programmes (such as the 6th and 7th Research Framework Programmes). North-South and South-South Scientific and technological networking of scientists, students, experts, institutes (including twinning) to promote sharing of experiences and foster initiatives on an inter-regional, continental and global scale.

1.2. Global (and continental ) programmes

Global programmes are a means of developing common approaches across regions in specific areas relevant to food security. Priorities include:

- Food security information and early warning systems, livelihood monitoring. Global programmes will develop, test, standardise and disseminate methodology and tools, and support capacity and institutional development at regional and national level, ensuring consistency and coherence between systems at different levels Emphasis will be on methodologies designed to ensure that the information is made available and is accessible by all. The funding of national systems will however be provided by geographical instruments or governments or other donors. Such programmes will help to harmonise and align donors’ approaches, in particular EU Member States. Their implementation will rely both on specialised organisations including UN agencies and on a large platform of expert NGOs and international institutions. The Programme will be instrumental in coordinating and aligning food security information methodologies and systems currently supported by different EC instruments, e.g. in LRRD situations.

- Food Security Strategies. Support through a global programme will be provided to governments willing to develop food security strategies and plans, where food security is not selected as a priority area for assistance and in collaboration with international organisations. The Thematic Programme will not fund national food security programmes, which will have to be supported by way of the geographical instruments.

- Networking of senior policy experts, providing a forum and at the same time a training opportunity for policy formulation and implementation.

- Networking of civil society organisations, to improve their access to information, facilitate sharing of experiences and best practices, and strengthen their advocacy capacity, in particular of women and disadvantaged groups. South-South and North-South networks will be supported. Farmers’ associations and trade unions (agricultural labourers) will also be eligible for support, including in twining/collaboration with EU organisations.

- Support for continental and regional FS programmes, in fields of specific relevance to food security, such as agriculture, sustainable management of natural resources and agricultural trade in support of regional organisations’ priorities. Other themes of relevance could include: commodity chains, diversification within and from agriculture, markets (including capital and labour), access to land and water, HIV-AIDS. Global/continental programmes will focus on the areas of comparative advantage and value added of the regional/continental organisation with a demonstrable impact downstream.

1.3. Advocacy and advancement of the global food security agenda

The Commission will continue to advocate for and address key food security issues in the international debate and foster harmonisation and alignment with developing partners and donors. Particularly important will be a stronger alliance with civil society organisations. Key issues include: (i) the role of food aid in food security (so as to foster a greater international consensus on food aid policies); needs assessments (currently overly food aid-biased); (ii) Poverty Reduction Strategies, pro-poor growth and food security; (iii) trade (international and regional trade have a strong impact on food security); (iv) governance (food security is heavily affected by governance failures); (v) the right to food (as reflected in the Voluntary Guidelines to which the EU subscribes).

2. ADDRESSING FOOD INSECURITY IN EXCEPTIONAL SITUATIONS OF TRANSITION AND STATE FRAGILITY

The new “EU Consensus on Development” clearly states that, where food security is concerned, “particular attention will be paid to transition situations”. There is a strong commitment to “paying greater attention to poorer countries, difficult partnerships and fragile and failed states”[8], recognising that 30% of the poorest, and food-insecure, people live in fragile states.

The Thematic Programme focuses on the dynamic nature of food insecurity: the transition from relief to rehabilitation and development is rarely a linear one as, due to the high vulnerability of the extreme poor, even a small shock can have a serious adverse effect on their survival capabilities. Failure to address such vulnerability leads to the repeated mobilisation of emergency support when humanitarian conditions deteriorate. Hence, the overriding priority of Food Security support in transition countries will be to address vulnerability to prevent any regression back into crisis by promoting resilience and opportunities for sustainable livelihoods.

In the case of transition from emergency to development, EC aid is conceived within a broad economic, social and political context, defined in the EC Communication on “Linking Relief, Rehabilitation and Development”[9] as:

“Rehabilitation programmes which gradually take over the relief/emergency aid to stabilise the economic and social situation and to facilitate the transition towards a medium and long term development strategy”.

This definition recognises a gap or “grey zone” between humanitarian assistance, rehabilitation and development. Implementation of the LRRD concept has been rather disappointing so far, particularly because of the nature of the humanitarian and development instruments, and the timing and forms of their application.

Of particular concern is the food security policy response in situations of protracted crises. It is now estimated that 50 million people worldwide live in an area affected by protracted crises lasting for five years or more (e.g. Sudan). The term applies most often where vulnerability is associated with violent conflict or political instability. Moreover, in more recent times, it has been linked to the HIV/AIDS pandemic, which has a disastrous impact on economies already weakened by governance failure and periodic economic and natural shocks.

In the context of transition, a number of different scenarios justify thematic, rather than geographical, assistance. These may be grouped into three broad categories:

- Situations and countries in which it may be difficult to agree on Food Security actions with partner governments owing to alternative priorities. For example, food insecurity may be concentrated in particular areas (out of state control) or among particular groups (Internally Displaced People).

- Countries in which cooperation has been suspended or no cooperation framework (CSP) is in place. The absence of a functioning state means an increased role for civil society and multilateral organisations to intervene effectively (e.g. Somalia).

- “Forgotten crises” in which cooperation with national governments may be difficult to establish through geographical instruments.

In all cases EC aid responds to the needs of the most vulnerable and acts as an entry point for more systematic policy dialogue and longer-term cooperation arrangements.

In target countries, the programme will provide an instrument to ensure, during a transition period, the follow-up of activities financed under the humanitarian instrument before the phasing-in of long-term food security activities under geographical development programmes. In this transition period, the Programme will ensure that food security is properly and timely addressed.

Similarly, in the event of a food crisis involving several countries in a region (e.g. as in 2005 in Western Africa), a regional response is required to complement national actions (e.g. on early warning systems, regional food markets, etc.). In such an event, resources may not be available in the Regional Indicative Programme and the FS TP could, if required, bridge the gap between the emergency and the development response.

The need to devise effective criteria for phasing-in and phasing-out different instruments raises the question of how to assess short-term needs (life saving situation) and longer-term needs (life protecting) and identify the right stakeholders. In situations of state failure, the role of local stakeholders, their communities and organisations as partners becomes even more essential.

To respond to the above challenges in exceptional situations, the Programme will:

- establish LRRD country strategies , with a specific focus on food security. Work at the Commission level will be steered by a standing LRRD Commission inter-service working group who will review the rolling programme and oversee implementation. LRRD requires flexibility and fast resource allocation. This may mean adapting the timeframe of aid, the financing procedures, the choice of instruments, beneficiaries and implementing partners.

- Improve phasing-in and phasing-out by: (i) supporting Food Security information (see component 1); (ii) adopting innovative approaches (see component 3) such as the Integrated Food Security Phase Classification (IFSPC) tool developed by the Somalia Food Security Assessment Unit; (iii) working jointly with the Humanitarian Aid Instrument in order to improve criteria and introduce them as of the planning of the relief phase, on a case by case basis; (iv) promoting effective coordination among international organisations, national and local governments, civil society and beneficiaries; and (v) raising awareness of the LRRD approach.

As indicated earlier, a tough challenge in addressing food insecurity is how to overcome crises in countries marked by conflict and political instability where phases of transition do not follow the linear LRRD approach but often overlap. Examples of countries in protracted[10] and complex crisis[11] include DRC, Eritrea, Ethiopia, Haiti, Somalia, Sudan, West Bank and Gaza.

Furthermore, in the event of a food crisis involving several countries in a region a regional response is required to complement national actions (e.g. on early warning systems, regional food markets, etc.). In such an event resources may not be available in the Regional Indicative Programme and the FS TP could, if required, bridge the gap between the emergency and the development response.

In devising concrete action for this component, the Programme will prioritise, inter alia, the following:

- On targeting (who): vulnerability assessment will focus on the most affected communities and vulnerable groups with lower resilience to shocks, and will be careful to avoid any discrimination that might lead to conflict (see details in chapter 5 on beneficiaries).

- On aid (what): very often the relief approach is protracted by the delivery of unconditional transfers of food aid and handouts, while protection and recovery of productive and social assets vital for food security is neglected. Investments are crucial to allow economic integration and longer-term recovery. Concrete examples of aid are: the rehabilitation of local infrastructure combined with productive and social safety nets, improved availability/access to agricultural inputs, non-agricultural income generating activities, etc., addressing vulnerability to shocks and strengthening people’s resilience through support for crisis prevention and management.

- On tools and approaches (how): in line with the EC FS policy, operations will be financed primarily with cash to stimulate local production and markets. In the absence of functional markets and alternative options, implementing partners may use cash allocations to purchase and distribute food. The time frame of the rehabilitation programmes will have to allow for a gradual consolidation of livelihoods and institutions so as to restart the normal development processes. In this context predictability of support is important. Working together with local authorities and communities will be of paramount importance to identifying the most appropriate types of assistance. The Programme will support by every possible means coordination and harmonisation with other donors’ intervention.

- On partners (with whom): prime partners will be international and local NGOs, local authorities whenever possible and UN agencies where appropriate.

3. PROMOTING INNOVATIVE POLICIES AND STRATEGIES

IN ORDER TO KEEP PACE WITH EVOLVING FOOD SECURITY CHALLENGES AT LOCAL, NATIONAL AND REGIONAL LEVELS, THE THEMATIC PROGRAMME MAY SUPPORT THE DEVELOPMENT AND TESTING OF INNOVATIVE SUSTAINABLE AND LOCALLY OWNED POLICIES, STRATEGIES, AND APPROACHES, AS WELL AS DISSEMINATION OF BEST PRACTICES IN THE FIELD OF FOOD SECURITY. THE AREAS BELOW HAVE BEEN IDENTIFIED BY THE COMMISSION AS POSSIBLE FIELDS FOR INTERVENTION; THIS LIST IS NOT EXHAUSTIVE AND MAY BE REVIEWED AS NEEDS AND SITUATIONS REQUIRE.

- Pro-poor growth-orientated agriculture, fisheries/aquaculture and forestry with an emphasis on low-cost, locally owned, sustainable solutions

- Prevention and preparedness strategies to avert food crises or mitigate its effects

- Food security and rural/local development (decentralisation, rural-urban linkages, local development and area-based management are priority areas in the new EU policy statement). Stimulation of the local private sector

- Sustainable management of and access to natural resources (land, water and energy), impact of the degradation of natural resources on household and national food security

- Urban and peri-urban food security, landless food-insecure and income diversification through non-agricultural activities

- Nutrition and the neglected issue of “hidden hunger” (micronutrient deficiencies have an enormous impact on the lives of mothers and children in particular)

- Demographic, labour issues and migration

- Relations between key social issues and food security (safety nets, the HIV-AIDS pandemic, sanitation, the role of education in fostering food security, etc.)

- Gender equity, minorities and ethnic groups usually targeted as extreme poor and food-vulnerable.

Through its focus on innovation the Thematic Programme will:

- promote and complement actions of civil society stakeholders, who are leading players in developing effective aid which has the potential to link relief, rehabilitation and development;

- promote aid that builds on people’s coping capacities, their innovative solutions and supports methodological work and action aimed at reducing vulnerability;

- strengthen the capacity of the Community to engage in effective policy dialogue with developing partners and donors;

- allow policy-makers to research and plan for new food security challenges that might arise in the medium to long term;

- enhance the potential for replication and upscaling of innovations and their South-South dissemination.

4. B ENEFICIARIES

Being a key instrument to fulfilling food security objectives, the Programme aims to reduce food insecurity worldwide and therefore will concern a broad range of beneficiaries. All three components of the Programme will be designed and implemented with the ultimate aim of improving the livelihoods and food security of the rural and urban poor, especially among the most disadvantaged groups.

In this context, particularly in component 2, food security aid will target beneficiaries belonging to two broad disadvantaged groups: i) those who are not self-reliant and need temporary support (e.g. safety nets), and ii) those who need temporary support to graduate from absolute poverty and engage in productive activities. Priority will be broadly given to the following groups:

- Children under the age of 5: In 2005, despite abundant global food supplies, at least 150 million children under five were suffering from various forms of malnutrition. The results of childhood malnutrition leave a legacy of underweight children, stunted growth, susceptibility to infections, as well as other physical and cognitive disabilities.

- Communities with members suffering from HIV/AIDs or other chronic illnesses: HIV/AIDS and other illnesses such as malaria and tuberculosis inflict a heavy burden of care on families, thereby triggering food insecurity. There is often a household trade-off between food and health care provision, as households deplete a limited asset base and exhaust social networks of ‘kin and community’ to provide care. When the most productive worker dies a household often experiences a food gap.

- War-affected communities and Internally Displaced People: Aid must target war-affected populations and provide assistance to internally displaced populations, who are often the casualties in a protracted crisis. It must aim at food self-reliance of affected populations.

- Women: The prevalence of food insecurity particularly applies to women, who, despite their multiple roles as food producers, household managers, care givers and income generators, continue to be the most vulnerable to food insecurity. This prioritisation complements the support of programmes focusing on children under the age of five.

- Food-insecure pastoralists, small farmers and fisher folk: Aid must support these three groups, who are often the extremely poor and most dependent on a limited asset base.

Landless and farm labourers, urban ultra-poor : These categories are often neglected, but demographic pressure, combined with inadequate and inequitable economic growth, in both Asia and certain African regions, drives increasing numbers of poor out of agriculture.

The Programme will target a broad range of intermediate beneficiaries by way of capacity building, including staff from national and regional administrations, governmental and non-governmental institutions, and private sector institutions, etc.

5. IMPLEMENTING PARTNERS OF THE THEMATIC PROGRAMME

The Programme is intended to work with a range of different public and non-state actors, at global, national and local level. In particular, aid in situations of state failure will rely on local stakeholders’ assessments, priorities and own initiatives.

The EC is taking concrete steps to promote strategic partnerships with UN and multilateral agencies in areas which make coherent contributions to EC food security programmes. Strategic partnerships also support the work of the EC in policy dialogue in the international food security arena . Strategic partnerships provide a means of building upon the respective comparative advantages in specific areas, whilst also reinforcing the ‘added value’ of a consistent approach amongst donors. Recently, the Commission has signed memoranda of understanding with the FAO and WFP. Other UN agencies do relevant work in terms of food security, UNICEF, UNDP, WHO, IFAD, UNRWA, for example. The CGIAR group is a prime partner of the Commission as far as agricultural research is concerned.

The role of civil society organisations as Programme partners will be of primary importance in all components of the programme, as strategic allies in advocacy, as prime partners in the design and provision of aid in situations of transition and instability and as promoters of innovation. The programme will support the capacity of Northern and Southern NGOs to engage in policy dialogue on food security. The Programme will foster cooperation between NGOs and other non-state actors, and the private and public sector. The role of professional associations, trade unions and private institutions will be actively promoted.

Depending on the specific situations, public stakeholders could also be partners of the programme. Local authorities play an important role in fragile states and situations of post-crisis. Continental, regional and national institutions might be associated with global programmes for the delivery of global public goods, such as research and innovation. There could also be scope for involving public stakeholders in the promotion of innovative food security policies and strategies.

ANNEX II - PUBLIC CONSULTATION REPORT

In a spirit of consultation and dialogue, as enshrined in the Commission Communication COM(2002) 704, the drafting of the Food Security Thematic Programme involved the participation of both Commission departments and a wide range of stakeholders and civil society organisations .

Using an issues paper for the purposes of the consultation process was chosen in order to facilitate a truly participatory consultation process. First of all, the paper was prepared on the back of literature made available by specialised agencies in food security, informal discussions and a critical review by the Commission departments concerned. The issues paper was sent to 50 Delegations in countries where food insecurity prevails. It was circulated to policy departments of specialised agencies, such as IFPRI (CGIAR), FAO and WFP, as well as, informally, to EU Member States. The paper was published on the Europa website for general public information. It was also discussed at meetings with two NGO networks, the EU Food Security Group of CONCORD and the International Food Security Network, which facilitates the work of local NGOs in 12 food-insecure countries.

Feedback from the consultation, which was generally very positive on the pertinence and substance of the Thematic Programme, provided interesting material for the drafting of the Communication.

In particular, Delegations underlined the need to ensure flexibility and rapid procedures for the implementation of the Programme, together with greater coordination/synergy among the different cooperation instruments, be they geographical or thematic (other budget lines) and particularly relief.

Specialised agencies provided valuable inputs both on policy and methodological issues, according to their main areas of competence. FAO highlighted the importance of continued investment to develop capacities and food security information systems while applying a strategy combining short and long-term approaches. WFP focused on the second component of the Thematic Programme, situations of transition, and elaborated on the phasing-in/phasing-out of relief and the need for a good mix of assistance for long-term recovery and development, supporting community building and local authorities. IFPRI underlined the need for a broad approach to food security by investing in rural development and agriculture, without neglecting urban food security, particularly in capacities and technology.

EU Member States stressed the need for an integrated approach to food security as part of poverty reduction and pro-poor growth, and underlined the importance of good governance and decentralisation/local development. They emphasised the importance of not neglecting poor urban dwellers, the landless and the private sector as a partner.

Civil society organisations warned against procedures that might make the Programme rigid and slow to implement, while NGOs stressed the importance of their role not only as implementing partners, but particularly in advocacy and policy-making. The need for increased NGO/South-South and North-South cooperation was also highlighted. NGOs provided a number of concrete and interesting inputs for the future programming of the new thematic instrument.

[1] Ara l-Komunikazzjoni mill-Kummissjoni lill-Kunsill u lill-Parlament Ewropew dwar “Azzjonijiet Esterni permezz ta’ Programmi Tematiċi skond il-Perspettivi Finanzjarji Futuri 2007–2013” - KUMM(2005) 324, 3.8.2005.

[2] Is-Sigurtà ta’ l-Ikel tista’ tiġi definita bħala kundizzjoni fejn in-nies kollha, f’kull ħin għandhom aċċess fiżiku u ekonomiku għal biżżejjed ikel li jkun sikur u nutrijenti biex jilħaq il-ħtiġijiet dijatetiċi tagħhom u l-preferenzi għal ħajja attiva u b’saħħitha” Dikjarazzjoni Rom tas-Sigurtà Dinija ta’ l-Ikel u l-Pjan ta’ Azzjoni tas-Samit Dinji dwar l-Ikel. FAO, 1996.

[3] KUMM(2001) 153.

[4] Dettalji fuq il-prijoritajiet strateġiċi jinsabu fl-Anness 1.

[5] Kif definiti mit- Task Force Internazzjonali dwar il-Ġid Pubbliku Dinji : il-ġid pubbliku internazzjonali jindirizza kwistjonijiet li: i) huma importanti għall-komunità internazzjonali, ii) ma jistgħux, jew ma jridux, ikunu indirizzati kif xieraq minn pajjiżi individwali li qed jaġixxu waħidhom, u għalhekk iii) huma indirizzati kollettivament fuq bażi multilaterali, kemm mill-pajjiżi żviluppati kif ukoll dawk li għadhom qed jiżviluppaw.

[6] Dan il-kunċett ikopri każijiet ta’ sħubija diffiċli u sitwazzjonijiet ta’ kriżi jew ta’ wara kriżi.

[7] As defined by the International Task Force on Global Public Goods: International public goods address issues that: i) are important to the international community, ii) cannot, or will not, be adequately addressed by individual countries acting alone, and therefore iii) are addressed collectively on a multilateral basis, by both developed and developing countries.

[8] This concept covers difficult partnerships and crisis/post-crisis situations.

[9] COM(2001) 153.

[10] Protracted crises can be defined as ‘situations in which large sections of the population face acute threats to life and livelihoods over an extended period, with the state and other governance institutions failing to provide adequate levels of protection or support’. The term has been applied most often where vulnerability is associated with violent conflict or political instability. Moreover, it has been linked to the impact of the HIV/Aids pandemic, which has a disastrous impact on economies already weakened by governance failure and periodic economic and natural shocks.

[11] An increasing number of emergencies are related to conflict and have come to be known as "complex emergencies". The Inter-Agency Standing Committee (IASC) defines a "complex" emergency as: "a humanitarian crisis in a country, region or society where there is a total or considerable breakdown of authority resulting from internal or external conflict and which requires an international response that goes beyond the mandate or capacity of any single agency and/or the ongoing UN country programme". (Source FAO (2004), FAO's Emergency Activities: Technical Handbook Series).