Papua New Guinea National Food Security Policy …...Papua New Guinea National Food Security Policy...
Transcript of Papua New Guinea National Food Security Policy …...Papua New Guinea National Food Security Policy...
PapuaNewGuineaNationalFoodSecurityPolicy2018-2027
INDEPENDENT STATE OF PAPUA NEW GUINEA
PapuaNewGuineaNationalFoodSecurityPolicy
2018-2027
Growing agriculture for food security, good nutrition and health
DepartmentofAgricultureandLivestockCentralGovernmentOffice,Waigani
NationalCapitalDistrictPapuaNewGuinea
PapuaNewGuineaNationalFoodSecurityPolicy2018-2027
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Foreword
TheNationalGoalsandDirectivePrinciplesinourConstitutioncallforimprovementinthelevelofnutritionandstandardofpublichealthtoenableourpeopletoattainselffulfilment.However,some40yearssincetheadoptionoftheConstitutiontheproblemofmalnutritioncontinuestobeasignificantimpedimentinournation’shealth,socialandeconomicdevelopment.Thepoorpublichealthsituationreflectsweaknessesinthecountry’sfoodandnutritionsecuritywhichisunderminingoureffortstoreachtheVision2050targetsofbeingahealthy,empowered,educated,happypopulationandtheplacingofourcountryinthetop50intheHumanDevelopmentIndexranking.
Foodsecurityisabasichumanright.Ensuringournation’sfoodsecurityisfundamentalforsustainablehumanandeconomicdevelopmentandiscentraltosocialandpoliticalstability.ThePapuaNewGuineaFoodSecurityPolicy2018-2027affirmsourGovernment’scommitmenttostrengtheningnationalfoodsecuritytosustainablyimproveourpeople’swellbeingandqualityoflivesinboththeruralandurbanareasofthecountry.
IntermsfoodsecurityandnutritionPapuaNewGuinea’sagriculturesectorhasspecialimportance.Itcontinuestobethemainsourceoffood,employmentandincomeforover85percentofthepopulation,whomainlyliveinruralareas.Therefore,agriculturalgrowthremainsoneofthebestwaystogenerateincomeforthepoorestininourcountrywhoneedthemosthelpbuyingnutritiousfood.
Moreover,becauseoftheprominentroleourwomenplayinfoodproductionandmarketing,agriculturecanprovideanimportantentry-pointforenhancingwomen’scontrolandmanagementofresources,knowledgeandstatus;pluschildnutritionoutcomescanimprovealongwithwomen’sempowermentthroughagriculture.Agriculturealsoprovidesasignificantamountoffoodtotownspeopleandearnsanimportantamountofforeignexchangefromcropexportproducts,thusenablingthenationtobetteraccessfoodimports.
Therefore,investmentinagricultureprovidesacriticallyimportantopportunitytobuildfoodsecurity,improvenutritionandpromotegoodhealth.However,whilegrowing,valueaddingandmarketingmorequalityfoodisessentialtomeetthedemandofarapidlyincreasingpopulation,itmaynotalonebesufficienttoachievegoodnutritionandhealthoutcomes.Inparticular,alongwithimprovingthequalityofdiet,therearealsoimportantelementsrelatingtonutritionoutcomesandhealthpractices,includingreproductivehealth(familyplanning),infantfeedingpracticesandissuesofcleanwateraccessandsanitation,andeducationtoimproveunderstandingongoodnutritionpractices.
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Onlybyensuringself-reinforcing,synergisticinterventionsacrossalltheseareaswillwegainsustainablefoodandnutritionsecurityinourcountry.
Consequently,theGovernmentiscommittedtotakingactiontoaddressfoodandnutritionsecurityissuesthrougharangeofmeasuresacrossallthekeysectorssuchasagriculture,fisheries,trade,health,educationplustransportinfrastructureandwater,sanitationandhygieneservices(WaSH).ANationalNutritionPolicy,aNationalFoodSafetyPolicyandaWaSHPolicyandtheNationalRicePolicycomplementthisNationalFoodSecurityPolicyandtogethertheywillprovidetheframeworkforstrengthenedfoodandnutritionsecurityinPapuaNewGuineagoingforward.
TheNationalFoodSecurityPolicywillstrengthentheplatformforjointplanning,andguidecoherentprogramsandactionsfromallkeystakeholderstobuildandsustainfoodsecurityinPapuaNewGuinea.TheGovernmentrecognizesthevitalroletheprivatesectorhasindrivingthefoodeconomyanddevelopingtheefficientfoodvaluechainsnecessarytosupplyqualityfoodthroughoutthecountry.Aprimaryaimofthepolicywill,therefore,betofosterstrongpublic-privatepartnershipstoleverageagriculture’spotentialtopromoteimprovednutritionandhealthbybringingprofitablesmallholderfarming,efficientfoodvaluechains,smallandmediumenterprisedevelopment,women’sincomeandchildnutritiontogether.
ThesuccessfulimplementationofthispolicywillcontributetowardsimprovingthelivesofthemajorityofPNG’scitizens,enhancingtheirproductivityandparticipationinthesustainabledevelopmentofourcountrythroughgrowingagricultureforfoodsecurity,goodnutritionandhealth.
Hon.BennyAllan,MP
MinisterforAgricultureandLivestock
PapuaNewGuineaNationalFoodSecurityPolicy2018-2027
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Acknowledgements
ThedevelopmentoftheNFSPwasaccomplishedthroughtheeffortsofmanyindividualsandinstitutionsandwewouldliketoexpressoursinceregratitudetothemall.
WethankallmembersoftheDALManagementteamandinparticulartheNationalProjectCoordinationdesk,thestaffofPolicyDivisionandtheFoodSecurityBranchwhocommittedtheirtimeandtechnicalexpertiseintheevolutionofthispolicy.
WearegratefultotheFoodandAgricultureOrganization(FAO)oftheUnitedNationsforfinancialandtechnicalsupport.
Ourspecialthanksmustbeaccordedtothestakeholdersatnational,provincialanddistrictlevelsthatgavefreelyoftheir
timeandsharedvaluableinformationwhichunderpinnedthedevelopmentofthisdocument.
DALseniormanagementbelievethattheNationalFoodSecurityPolicy2018-2027chartsasmartpathwaytosustainablefoodsecurityandtorealizingournationalvision2050andthetargetforfoodandnutritionsecuritysetintheglobalSustainableDevelopmentGoal2.Wethereforecommendthispolicyandtrustthatallstakeholderswillgivetheircontinuedandfullsupporttoensuresuccessfulpolicyimplementation.
MrFrancisDaink
ActingSecretary
DepartmentofAgricultureandLivestock
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TableofContentsListofAcronymsandAbbreviations............................................................................................................vi
1. Background..........................................................................................................................................1
IntentofPolicy.............................................................................................................................................1
Audience......................................................................................................................................................1
PolicyDevelopmentProcess........................................................................................................................1
2. DefinitionsandConcepts.....................................................................................................................2
3. PolicyContextandDirections..............................................................................................................4
Vision 4
Principles......................................................................................................................................................4
Goal 5
Keyindicatorsandtargets............................................................................................................................5
FivePriorityStrategicActionAreas..............................................................................................................5
CoreGovernmentLegislationandPolicies...................................................................................................6
4. PoliciesandStrategies..........................................................................................................................8
StrategicActionArea1:Productivityandfarmoutputgrowthofthemainfoodstaples,horticulture,smalllivestockandfishfarmingandincreasingefficienciesalongtheentirefoodvaluechain..........8
StrategicActionArea2:Buildingstabilityandresilienceintofoodproductionandsupplysystems.11
StrategicActionArea3:Enhancednutrientcontentandbalanceoffoodproductsconsumedbynutritionallyvulnerablehouseholdsandindividuals.........................................................................14
StrategicActionArea4:Empowermentofwomeninagriculture.....................................................16
StrategicActionArea5:Strengthenedgovernance,coordination,monitoringandcommunication17
5. OrganizationalResponsibilities..........................................................................................................19
InstitutionalStructureforFoodandNutritionSecurityGovernanceandCoordination............................19
InstitutionalRolesandResponsibilities......................................................................................................21
Partnerships.......................................................................................................................................21
6. PolicyImplementation.......................................................................................................................22
7. MonitoringandEvaluation.................................................................................................................23
Annexes......................................................................................................................................................24
1. SummaryFoodSecurityPolicyFramework....................................................................................24
2. SummaryM&EMatrixfortheFoodSecurityPolicy.......................................................................28
3. FoodSecurityLandscape................................................................................................................33
4. Listofreferencesandkeydocumentsrelevanttofood&nutritionsecurity................................56
Frost&droughtdamagedfamilyfoodgarden
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ListofAcronymsandAbbreviations
CEPA ConservationandEnvironmentProtectionAuthorityDAL DepartmentofAgricultureandLivestockDALFSB DepartmentofAgricultureandLivestockFoodSecurityBranchDALWiADU DepartmentofAgricultureandLivestockWomeninAgricultureDevelopmentUnitDSIP DistrictServicesImprovementProgram(DSIP)DOH DepartmentofHealthDNPM DepartmentofNationalPlanningandMonitoringENSO ElNiñoSouthernOscillationFAO FoodandAgricultureOrganizationoftheUnitedNationsFPDA FreshProduceDevelopmentAgencyHAZ HeightforAgeZScoreHIES HouseholdIncomeandExpenditureSurveyINA InstituteofNationalAffairsLLGSIP LocalLevelGovernmentServicesImprovementProgram(LLGSIP)M&E MonitoringandEvaluationMTDP MediumTermDevelopmentPlanNAQIA NationalAgricultureQuarantineandInspectionAuthorityNARI NationalAgricultureResearchInstituteNCD Non-CommunicableDiseaseNEC NationalExecutiveCouncilNFA NationalFisheriesAuthorityNFSP NationalFoodSecurityPolicyNGO Non-GovernmentalOrganizationNNP NationalNutritionPolicyNNS NationalNutritionSurveyNRI NationalResearchInstituteNSO NationalStatisticsOfficeOCCD OfficeofClimateChangeDevelopmentPEM Protein-EnergyMalnutritionPGK PapuaNewGuineaKinaPNGDSP PapuaNewGuineaDevelopmentStrategicPlanUNITEC UniversityofTechnologyWAZ WeightforAgeZScorePNGCCI PapuaNewGuineaChamberofCommerceandIndustryPNGWiADF PapuaNewGuineaWomeninAgricultureDevelopmentFoundationPNGWCCI PapuaNewGuineaWomen’sChamberofCommerceandIndustryVC ValueChainWASH Water,SanitationandHygieneServicesWHO WorldHealthOrganizationWHZ WeightforHeightZScore
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1. Background
IntentofPolicyThispolicyreplacesthePapuaNewGuineaNationalFoodSecurityPolicy(NFSP)2000-2010.Thepolicysetsthemediumtolong-termdirectionandsignalspriorityareastofocusresources(financialandhuman)tobuildsustainablefoodsecurityforallPapuaNewGuineans.ItprovidesaplatformforjointplanningtoguidecoherentprogramsandactionsfromallkeystakeholderstostrengthenfoodsecurityinPapuaNewGuinea.Aprimaryaimofthepolicyistofosterstrongpublic-privatepartnershipsandthusleverageagriculture’spotentialtopromoteenhancednutritionandhealthbybringingprofitablesmallholderfarming,efficientfoodvaluechains,women’sincomeandchildnutritiontogether.SuccessfulimplementationofthepolicywillcontributetoadvancingthenationtowardstheVision2050ofbeingasmart,wise,fairandhappysociety,andachievingtheglobalSustainableDevelopmentGoal2toendhunger,achievefoodsecurityandimprovednutritionandpromotesustainableagriculture.
ThepolicycomplementsotheragriculturepoliciessuchastheNationalRicePolicyandthepromotionofexportcropsunderthenationalagricultureplanframeworkwhicharealsoareasvitalforlivelihoods,employment,economicdevelopmentandfoodsecurity.
AudienceTheNFSP2018-2027willbenefitallPapuaNewGuineanswhoeachhaveasharedresponsibilityandstakeinachievingsustainablefoodsecurity.ThepolicywillguideallkeystakeholdersworkingtoimprovefoodsecurityinPNG;includingrelevantgovernmentagentsatnational,provincial,districtandlocallevels,academicandresearchinstitutions,developmentpartners,non-governmentorganizations,faith-basedorganizations,privatesectorandcommunitystakeholders.
PolicyDevelopmentProcessTheNationalExecutiveCouncilDecision(NEC)No.347/2013pertainingtothereviewofthePNGDevelopmentStrategicPlan(PNGDSP)2010-2030andMediumTermDevelopmentPlan(MTDP)2011-2015inthecontextofresponsiblesustainabledevelopmentapprovedimmediateinterventionsonstrategicfoodsecuritypolicydevelopment.Consequently,thepolicydevelopmentprocesswasinitiatedbytheGovernmentofPNGthroughtheDepartmentofAgricultureandLivestock(DAL)andsupportedbytheFoodandAgricultureOrganization(FAO)oftheUnitedNations.
FacilitatedbyDAL’sFoodSecurityBranchapolicydevelopmentteamwasassembledinSeptember2014.Theteamincludedexpertiseinfoodpolicy,foodproduction,nutritionandgenderissues.TheteamwasguidedbyaFoodSecurityPolicyAdvisoryGroup.TheteamconductedadeskreviewonthefoodsecuritylandscapeinPNGandundertookextensiveconsultationwithkeystakeholderstoreviewtheNFSP2000-2010implementationandgaininsightsandinputsintotheformulationofthenewfoodsecuritypolicyframework.Abroadrangeofstakeholderswereconsultedinbilateralmeetingsandfocusgroupsessions,includingnationaldepartmentsandagencies,developmentpartners,NGOs,provincialadministrationsandprogrammanagers,CBOs,farmers,privatesectorandagricultureindustryrepresentatives.Provincialanddistrictagricultureprogramvisitsandconsultationswerealsoheldin
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theprovincesofEastSepik(Wewak,Maprik),SandaunProvince(Nuku),Madang(Madang,UsinoBundi),andMorobe(Markham,Lae).Duringthesemissionsmeetingswereheldwithgovernmentofficers,farmers,women’sgroups,andyouthgroups.
InApril2015anationalworkshop,attendedbyover50interestedstakeholders,washeldinPortMoresbytodiscussoutcomesofthepolicyreviewandstrategicprioritiesforfoodsecuritypolicygoingforward.Subsequenttothisworkshop,buildingonthereviewfindingsanddiscussionsheldwithstakeholders,adraftpolicydocumentwaspreparedandcirculatedtostakeholdersfortheircommentsinSeptember2015.FurthercommentsanddirectionwassoughtthroughaseriesofsevenfocusgroupmeetingsheldwithvariousinterestgroupsinOctober2015.BenefittingfromthecommentsmadeontheinitialpolicydraftthepolicydocumentwasfinalizedinNovember2015readyforendorsement.
2. DefinitionsandConcepts
DefinitionsFoodSecurity:Foodsecurityexistswhenallpeoplehave,atalltimes,physical,socialandeconomicaccesstosufficient,safeandnutritiousfoodtomeettheirdietaryneedsandfoodpreferencesforanactiveandhealthylife(reaffirmeddefinitionattheWorldFoodSummit,2009).
AverageDietaryEnergyRequirement:Theaveragedietaryenergyrequirementreferstotheamountofenergyconsideredadequatetomeettheenergyneedsfornormativeaverageacceptableweightforattainedheightwhileperformingmoderatephysicalactivityingoodhealth.
BalancedDiet:thefoodconsumptionpatternisbalancedwhenthecontributionofenergy-yieldingnutrientstototalenergyiswithinacceptablerangesasfollows:proteinsfrom10to15percent;fatsfrom15to30percent;andcarbohydratesfrom55to75percent.
Malnutrition:Isabroadtermcommonlyusedasanalternativetounder-nutrition,buttechnicallyitalsoreferstoover-nutritionandimbalancednutrition.Malnutritioncanresultfromalackofmacronutrients(carbohydrates,proteinandfat),micronutrients(vitaminsandminerals),orboth.Peoplearealsomalnourishediftheyconsumetoomanycalories(over-nutrition).'HiddenHunger’,ormicronutrientdeficiency,iswidespreadindevelopingcountries.Itoccurswhenessentialvitaminsand/ormineralsarenotpresentinadequateamountsinthediet.ThemostcommonmicronutrientdeficienciesarevitaminA,iron,folate(vitaminB9),iodineandzinc.
Stunting:Isaconditionwhenachildistooshortfortheirage.Itiscausedbylong-terminsufficientnutrientintakeand/orfrequentinfections.
Underweight:Isaconditionwhenachildweighslessthanthenormativeaverageacceptableweightfortheirage.Underweightisacombinationofstuntingandwasting,withoutdistinguishingbetweenthetwo.
Wasted:Isaconditionwhenachildistoothinfortheirage.Itisusuallytheresultofacutesignificantfoodshortageand/ordisease.Wastingisconsideredthebestindicatorfordeterminingachild’scurrent
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nutritionriskbecauseitreflectsthepresentsituationandisagoodpredictorofimmediatemortalityrisk.
Stuntingandotherformsofunder-nutrition(underweight,wasting)reduceachild’schanceofsurvivalandimpedeoptimalhealthandgrowth,impactingnegativelyonbraindevelopment,whichislikelytoresultinlong-lastingharmfuleffectsforcognitiveability,schoolperformance,productivityandthusfutureearnings.Theconsequencesofstuntingareserious,life-longandirreversible.Figure1belowdepictstheprevalenceoftheaboveconditionsinchildrenacrossthecountry.
Source:NSO2009-2010HIESSummaryReport,Table5.14
Resilience:istheabilityofasystemanditscomponentpartstoanticipate,absorb,accommodateorrecoverfromtheeffectsofahazardouseventinatimelyandefficientmanner,includingthroughensuringthepreservation,restorationorimprovementofitsessentialbasicstructuresandfunctions.1
VulnerableGroup:Agroupofpeoplewithcommoncharacteristics,ahighproportionofwhomarefoodinsecureoratriskofbecomingfood-insecure.2
ConceptsItisnowwidelyacceptedthatfourkeydimensionsoffood(andnutrition)securityare:1)availability(sufficientquantitiesofappropriatequalityfood,throughdomesticproductionorimportsandtheircost-effectivedistributiontoconsumers);2)access(ofindividualstoadequateresourcesforacquiring
1IPCC(2012)Managingtherisksofextremeeventsanddisasterstoadvanceclimatechangeadaptation,SpecialReportoftheIntergovernmentalPanelonClimateChange(IPCC):Geneva,IPCCSecretariat2FAO(2009)GlossaryonRighttoFood,FoodandAgricultureOrganizationoftheUnitedNations,December2009,Rome
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60
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National Southern Highlands Momase Islands
Prevalen
ce%
Figure1:Nutritionalstatusofchildrenunder5acrossPNG
underweight(WAZ˂-2) stunting(HAZ˂-2) wasting(WHZ˂-2)
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appropriatefoodsforahealthydiet);3)utilization(throughadequatediet,cleanwater,sanitation,healthcareandnutritionalawarenesstoreachastateofnutritionalwell-being);and4)stability(theabilitytomaintaintheabovethreefactorsduringsuddenshocksorcyclicalevents).ThesepillarswiththeirkeydimensionsdetailedareshowninFigure2below.
Gendersensitiveapproach:Theconceptofgender-sensitivityhasbeendevelopedasawaytoreducebarrierstopersonalandeconomicdevelopmentcreatedbydiscriminationagainstwomen.Ithelpstogeneraterespectfortheindividualregardlessofsexorgenderroles.Italsoopensupthewidestpossiblerangeoflifeoptionsforbothwomenandman.Applyingagendersensitiveapproachmeansgoingbeyondequalityinthelegalsystem,byconsideringthedifferencesinlivingconditionsandinterestsof
AvailabilityAfunctionof:
domesticproduction
foodimports
foodstocks
donations(foodaid)
AccessAfunctionof:
houseeholdsubsistencefood
production
purchasingpower(atnationaland
household level)
transport/marketinfrastructure
formalsafetynets
informalcopingstrategies
StabilityAfunctionof:
seasonality
humanmade/naturaldisasters
wateravailability
marketprice
political&lawandorderenvironments
UtilizationAfunctionof
healthstatus
foodsafety&nutritionalquality
potablewatersupply
sanitationfacilities/practices
caringandfeedingpractices
knowledge/education
Figure2:TheFourPillarsofFoodSecurity
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womenandmenfromtheoutset,andinaconsistentmanner,whenformulatingandimplementingasocialpolicy,programorproject.3
SustainableFoodValueChain(VC):referstothefullrangeoffarmsandfirmsandtheirsuccessivecoordinatedvalue-addingactivitiesthatproduceparticularrawagriculturalmaterialsandtransformthemintoparticularfoodproductsthataresoldtofinalconsumersanddisposedofafteruse,inamannerthatisprofitablethroughout,hasbroad-basedbenefitsforsociety,anddoesnotpermanentlydepletenaturalresources.4
Fourcorefunctions(links)canbedistinguishedinthevaluechain:production(e.g.farmingorfishing),aggregation,processinganddistribution(wholesaleandretail).TheaggregationstepisespeciallyrelevantforfoodVCsinPNG;efficientlyaggregatingandstoringthesmallvolumesofproducefromwidelydispersedsmallholderproducersisoftenamajorchallenge.Theaggregationfunctioncanbetakenonbyproducergroups,byintermediariesspecializedinaggregation,byfoodprocessorsorbyfooddistributors(wholesalersorretailers).
3FAO(2009)Ibid4FAO(2014)Developingsustainablefoodvaluechains–Guidingprinciples.Rome
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3. PolicyContextandDirectionsVisionAllPapuaNewGuineanswillbefoodsecureprincipallyfromdomesticallyproducednutritiousfoodandleadhealthy,activeandproductivelives.
PrinciplesThispolicyisframedinthecontextof:
v Basichumanrights,childrightsandwomen’srights,includingtheuniversal‘RighttoFood’.
v Equity,respectandinclusionofthevoicesofthevulnerable(includingwomen,youth,elderlyandthosewithdisabilities).
v Respectingculturalvaluesandtraditionaldecisionmakingstructures.v Respectingandpromotingbiodiversityandenvironmentalsustainability.v Buildingonthenation’sstrategicassetsandcomparativeadvantage.v Decentralization,withcentralauthorityperformingonlythosetaskswhichcannotbe
performedeffectivelyatamoreimmediateorlocallevel.v Privatesector-ledfoodsectorgrowthv Adoptingagender-sensitiveapproachv Adoptingamulti-stakeholderandmulti-sectorapproachtotacklingfoodandnutrition
security.v Beingnutritionsensitive,gearedatachievingnutritionalimpact.v Utilizingscience-basedresources.v Strengtheningfoodandnutritionsecurityinformationinordertobettertarget
vulnerablegroups.
Theseprinciplesareconsideredessentialtoprotecthumanrightsandculturalvalues,sustaintheresourcebaseandpromoteequitablesocialandeconomicdevelopmentandtheyunderpinthedevelopmentandorientationofthispolicy.TheimplementationofstrategicactionsunderthispolicywillbeguidedbytheseprincipleswhichrespectthefiveNationalGoalsandDirectivePrinciplesoftheConstitutionwhichare:1.IntegralHumanDevelopment;2.EqualityandParticipation;3.NationalSovereigntyandSelfReliance;4.NaturalResourcesandEnvironment;and5.PapuaNewGuineanWays.
PNGVision2050Targets:• Healthy,Empowered,Educated,HappyPopulation• Top50inUnitedNationsHumanDevelopmentIndex(HDI)ranking
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GoalToenableallPapuaNewGuineanstoaccessandconsumesufficient,safe,affordable,andnutritiousfoodatalltimes.
KeyindicatorsandtargetsBy2027:
ü Inchildrenaged6-59months,theprevalenceofmoderatestunting(HAZ˂-2and˃-3)willbereducedtolessthan30percent,moderateunderweight(WAZ˂-2and˃-3)willbereducedtolessthan10percent,andmoderatewasting(WHZ˂-2and˃-3)willbereducedtolessthan2percent.
ü PrevalenceofAnemiainchildrenaged6-59monthsandnon-pregnantwomenaged15-49yearswillbereducedtolessthan25percentand15percentrespectively.
ü Prevalenceofoverweightintheadultpopulation≤20percentü Principallythroughsustainableincreaseinsmallholderyields,thecompositestaplefood
productionindexwillincreasefromthe2000level5(=100)by70percent(=170).ü Theaveragepercapitaconsumptionofricewillbe≤30kgü Theratio:FoodandBeverageImports/TotalImports≤11percentü Theaverageconsumptionoffoodproteinprincipallyfromdomesticallyproducedmeat,
fishandplantsourceswillbe≥0.8g/kgbodyweight/dayü Householddietarydiversityscore:≥5numberoffoodgroupsconsumedfor≥50percent
ofpopulation.ü CPIannualaveragefoodpriceinflation≤3percentü Women’sshareofhouseholdincomeincreased
Toachievethesetargetscoordinatedactionswillberequiredtosuccessfullyimplementthispolicytogetherwiththenationalnutritionpolicyandnationalfoodsafetypolicy.Additionally,significantimprovementinthetransportinfrastructure,water,sanitationandhygiene(WaSH)environmentsmustbeadvanced.
Whilstrecognizingthecrucialimportanceofmulti-sectorinterventionstoaddressthefoodandnutritionsecurityissuesthecountryfaces,thispolicyprincipallyidentifiesandprioritizesactionsinfivestrategicactionareaswhichwillmakeagricultureworkbetterforgoodnutritionandhealth.Thisfocusischosenbecauseultimatelyfoodinsecurityresultsinmalnutritionandhealthissues.Thepolicycomplementsotheragriculturepoliciessuchasthericepolicyandthepromotionofexportcropsunderthenationalagricultureplanframeworkwhicharealsoareasvitalforlivelihoods,employment,economicdevelopmentandfoodsecurity.
FivePriorityStrategicActionAreas
1. Productivityandfarmoutputgrowthofthemainfoodstaples,horticulture,smalllivestockandfishfarmingandincreasingefficienciesalongtheentirefoodvaluechain.
2. Buildingstabilityandresilienceintofoodproductionandsupplysystems.
5Thelatestnationalsurveyandevidence-baseddataassessmentavailable
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3. Enhancednutrientcontentandbalanceoffoodproductsconsumedbynutritionallyvulnerablehouseholdsandindividuals.
4. Empowermentofwomeninagriculture.5. Strengthenedgovernance,coordination,monitoringandcommunication.
CoreGovernmentLegislationandPolicies
Policies,PlansandLegislationrelevanttonationalfood(andnutrition)securitypolicy:
PolicyArea Policies/plans LegislationMacro-overarching
DevelopmentFiscal/Monetary/ExchangeRateTradeLabour/WagePopulationSecurity
Vision2050DevelopmentStrategicPlan(DSP)2010-2030NationalStrategyforResponsibleSustainableDevelopmentforPapuaNewGuinea(2014)AlotauAccord2012MediumTermDevelopmentPlan2(2016-2017)BankofPapuaNewGuineaMonetaryPolicyStatements(6monthly) NationalPopulationPolicy(NPP3)2015-2024PNGNationalSecurityPolicyPNGSocialProtectionPolicy2015(draft)
ConstitutionoftheIndependentStateofPapuaNewGuineaCustomsActCustomsTariffAct(Import&ExportCustomsTariff)PNGLaborAct1978PublicFinancialManagementAct1995PNGPublicServicesManagementAct1995
Decentralization ProvincialDevelopmentPlansDistrictDevelopmentPlansDistrictServicesImprovementProgram(DSIP)LocalLevelGovernmentServicesImprovementProgram(LLGSIP)
OrganicLawonProvincialandLocalLevelGovernments(OLPLLG)1998ProvincialAuthoritiesAct2007DistrictDevelopmentAuthoritiesAct2014
PrivateSector PublicPrivatePartnership(PPP)Policy(2008)SmallandMediumEnterprise(SME)Policy2015(draft)
Land SpecialAgricultural&BusinessLeases(SABLs) LandAct1996LandTenureConversionActRevisedLandGroupIncorporationAct2009LandRegistrationAct
Agriculture NationalAgricultureDevelopmentPlan(NADP)2007-2016NationalRicePolicy2015-2030NARIStrategyandResultsFramework2011-2020
(Bill)NationalAgricultureAdministrationAct2014(Bill)AgricultureInvestmentCorporationAct2014NationalAgricultureResearchInstituteAct1997AnimalDiseaseandControlAct1952AnimalsAct1952
Fisheries NationalTunaManagementPlanBechdemerManagementPlanBarramundiManagementPlanGulfofPapuaPrawnFishery(GOPPF)ManagementPlan
FisheriesManagementRegulation2000FisheriesManagementAct1998
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SharkFisheryManagementPlanLobsterFisheryManagementPlanFishingAggregatingDevice(FAD)ManagementPolicyTrialFishingPolicyNationalAquacultureDevelopment.PolicyOrangerieBayManagementPlanLiveReefFishFoodPolicy
NationalFisheriesAuthorityAct1987
Biosecurity NationalAgricultureQuarantine&InspectionAuthorityAct1997
Environment–ForestryBiodiversityConservationClimatechange
NationalForestPolicy1991NationalForestryGuidelines2009ForestryandClimateChangeFrameworkforAction2009–2015NationalBiodiversityActionPlanNationalClimateChangePolicy
EnvironmentAct2000National Forestry AuthorityAct1988ForestryAct1991
DisasterManagement NationalDisasterRiskManagementPlan
Health PNGNationalHealthPlan2011–2020PNGChildHealthPolicy(2009)PNG National Early Childhood Care andDevelopmentPolicy(2007)InfantandYoungChildFeedingPolicy2014SchoolHealthPolicy2005–2015NationalHealthPartnershipPolicy(2013)(draft)NationalNutritionPolicy2015-2024(draft)NationalFoodSafetyPolicy2014-2024
NationalHealthAdministrationAct1997PNGPublicHealthAct1973PNGFoodSanitationAct1991&Regulation2007
Education NationalPlanforEducation2005-2014
Infrastructure PNGNationalWaterSanitationandHygiene(WaSH)Policy2015-2030
NationalWaterandSewerageAct1986NCDWaterSupplyandSewerageAct1996
Gender NationalPolicyforWomenandGenderEquality2011-2015
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4. PoliciesandStrategies
StrategicActionArea1:Productivityandfarmoutputgrowthofthemainfoodstaples,horticulture,smalllivestockandfishfarmingandincreasingefficienciesalongtheentirefoodvaluechain
Outcome1:Localfoodproductionincreasedandproducersbetterlinkedthroughefficientvaluechainstoprofitablemarketsandconsumers
Athrivingagriculturalsectorisneededtoreducepoverty,providefoodandnutritionsecurityandpromoteeconomicgrowthinruralareasandournationasawhole.Agrowingagriculturesectorwillalsopromoteruraldevelopment.Adequatepublicandprivateinvestmentforagriculturesectordevelopmentwithanappropriatelevelofinvestmentinsmallholderagriculture,foodmarketingandthefoodvaluechainwillthereforebeessentialtoachievingthefoodsecuritygoal.
Enhancingsmallholderproductivity,productioncapacityandrelatedvaluechaincompetivenessiscriticalforprotectingandsustainingfoodsecurityinPNG.Increasedagriculturalproductivitycanimprovenutritioninseveralways—byincreasingconsumptionfromone’sownproduction,bygeneratingmoreincometobuymorenutritiousfoodandobtainhealthcare,andbyreducingfoodprices.
Thenecessarysustainableincreaseinagriculturalproductionandproductivitytostrengthenfoodsecurityisultimatelydependentonprivatesectoractivity(particularlythecurrentlandholdersandvaluechainserviceproviders)andGovernmentwillthusstrivetocreateastablemacroeconomicandtransparentcoherentpolicyenvironmentconducivetogreaterengagementofprivate-sector,smallandmediumenterprises(SMEs)andsmallholderagriculturalinvestments.Theaimwillbetoimprovefoodvaluechainefficienciesandtargetinvestmentsintoprogramswhichhavethebestpotentialtoincreasecountry-widenutritiousfoodsupply,distributionandmarketing.
Investmentinagriculturalresearchandextensionwillalsobevitaltomeetthegrowingfooddemandsandbuildresilientfarmingsystems.PNGhasastrongnationalagricultureresearchcapacitythroughitsnationalinstituteanduniversitieswhichmustbesustainedandexpanded.StrongcoordinationbetweentheresearchagenciesandtheDALwillbeessentialtogetherwithincreaseddeliveryofimprovedtechnologyoutputsofresearchtofarmers’fields,andtovaluechainserviceproviders.Particularlyimportantwillbetoimprovevalueadditionandreducevalue-chainwastage.
Extensionservicesarelikelytoinvolveavarietyofwell-coordinatedarrangementsofpublic,NGOandprivateplayersincludingfarmerandsupply
Strategy1.1:Improvesmallholderagriculturalproductionandproductivityfocusingonmaintainingcontinuityinsupplyofarangeofqualityproductstoimprovenutritionalhealthstatus.
Strategy1.2:Increaseinvestmentinadaptiveresearchanddevelopmentbuildingonlocalknowledgeandagro-biodiversitytoincreaseoveralldomesticfoodproduction,relatedvaluechaindevelopmentandsupportforcompetitivesmallholderagriculturalenterprises.
Strategy1.3:Improvethedeliveryofextensionservicestosmallholderfarmersandfoodvaluechainparticipants.
Strategy1.4:Inthecropsector,increasefocusongreaterproductivityandconsistentsupplyofadiverserangeofqualitynutritiousfoodcropsinrain-fedlowinputsystems.
Strategy1.5:Increasecompetivenessoflivestockproductionandproductivityofvaluechainsforsmallanimalsandtheirproducts(pigs,goatsandpoultryincludingegglayers).
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chaingroups.Theywillbefarmerandsupplychaindemand-driven,marketorientedanduseparticipatoryapproaches.Althoughextensionserviceswillbedirectedtoallproducersandvaluechainserviceproviders,specialattentionwillbegiventowomeninrecognitionoftheircriticalroleinfamilyhouseholdmanagementandfoodproduction.WhilsttheprimaryroleoftheCommodityBoardsistopromoteexportcropdevelopmenttheyalsocanplayanimportantroleinfacilitatingtransferofimprovedinputs,informationandtechnologiesfornutritiousfoodproduction.Iffarmhouseholdsarewell-fedandfoodsecurityisassuredgreaterattentionwillbepaidtoproductiveexportcropenterprises.Thisapproachwillenhancethevitalrolethatcashearnedfromtheexportscropsplaysinimprovingaccesstofoodforfarmhouseholds.
Recognizingthatalargeproportionofourfarmersdonothaveaccesstoirrigatedfarmlandincreasedattentionwillbefocusedonimprovingrain-fedfoodproductionsystemsparticularlyinuplandandhillsidelocations.Priorityinterventionswillincludepromotingconservationagricultureandincreaseddiversificationofdomesticfoodproductiontoimprovehouseholdaccesstoawiderrangeofnutritionallyadequatefoods.
Waterwillincreasinglybeaconstraintinagriculturalproductionthereforeimprovedirrigatedwatermanagementwillalsobeimportant.Protecting,maintainingandbuildingwaterstorageandsupplycapacityforagriculturalpurposes(includingstrategicallyplaceddams)willbecritical.
Agriculturalpracticesshouldpromoteadequate,healthyfoodwhileprotectingandcontributingtoenvironmentalsustainability.Governmentwillpromotefarmingsystemsandecosystemsperspectiveswhichencourageenvironmentallyfriendlyproductionsystems,includingintegratedcropmanagement,integratedpestmanagement,soilfertilitymanagement,agroforestryandaquaculture.Increasedattentionwillbegiventolandcapabilityassessmentinguidingchoiceofappropriatefarmingsystemsandagriculturalpractices.
Anessentialpreconditionforanysuccessfulproductiveenterpriseisthattheremustbeanidentifiedandsustainedmarketfortheproductthathaspotentialtoprovideproducersconsistentandattractivefinancialbenefits,andaviableproductdistributionandvalue-managementchainlinkingtheproducerstothemarketandtotheconsumerstogivetheconfidencetomakethenecessaryinvestmentsandchangesinpracticetosupplythesemarkets.Ademonstratedmarketdemandandfacilitatedaccesstomarketsisnecessarytostimulatesmallholdercommercialization.Forthistoberealizedimprovementinmarketlinkagesandproductqualityareneeded.Intimesofastrongandsustainedmarketdemandfarmerswillmoreactivelyseekandadoptproductivityenhancingtechnologyandmanagementmethodsaswellasimprovedpost-harvesthandlingandvalueaddingtechnologies.
Strategy1.6:Protectandenhancewatersourcesandstrengthenwaterandsoilusemanagementandapplicationofappropriate-scaleirrigationtechnologies.
Strategy1.7:improvethemanagementofcoastalandinlandfisheriesandsupportthedevelopmentofsustainableaquacultureandthevaluechainsfortheiroutputs.
Strategy1.8:Promoteandstrengthenpartnershipsforawholeofvaluechainapproachtofacilitatetheestablishmentofefficientviablecompetitivefoodproduction,distributionandmarketingfrominputsupplies,throughfarmproduction,distributionandprocessingtoendmarketsandconsumers.
Strategy1.9:Encourageandsupporttheformationofsmallandmediumenterprises(SME)inthefoodsector.
Strategy1.10:Strengthenvaluechain/marketinfrastructure,marketinformationandbusinesssupportservices(includingfinancialinclusionandaffordablecreditfacilities,businessskillsdevelopmentandtraining)tosmallfarmers,fishersandSMEsinthefoodsector.
Strategy1.11:Ensurethatallinterventionprogramsaregenderfocusedandgenderresponsive.
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AneffectiveNationalFoodMarketingSystem(NFMS)isessentialtoprovidereliableandaffordablelocalfoodproducetothegrowingPNGpopulation.ThereforeGovernmentwillpromoteawholeofvaluechainapproachworkinginpartnershipwiththefarmingcommunity,traders,transporterswholesalers,retailersandagri-businessesinthefoodindustrytofacilitateandsupporttheestablishmentofefficientviableandcost-effectivefoodvaluechainsfrominputsupplies,throughfarmproduction,distributionlogisticstoendmarketsandconsumers.
InlinewiththeNationalAquaculturePolicyandfisheriesprioritiesgreaterfocuswillbegiventoensuringabettersupplyoffisheryproductstodomesticmarketsandraisingnationalconsumptionoffisheryproducts.
Reinforcingmarketchainsforproductsbasedonlocalandtraditionalnutritiousfoodcropsandseafood,wheresmall-farmersandfishershavespecialisedknowledgewillbeencouraged.Theseproductsstrengthenresilienceandreduceriskforsmallfarmersbecausetheycanflexiblyshiftbetweenproductionforhomeconsumptionandthemarketdependingonopportunity.
AtthepresentstageofPNG’seconomicandprivatesectordevelopment,supportingmarketlinkagesforthemajorityofsmallholders/ruralpopulationremainsapublicgood.Alsopossibleuseoftargetedtimeboundsubsidiestoaddressmarketfailuresneedtobeconsidered(examplescouldbeforfarminginputs/improvedplantingmaterialsandseeds,transport,coldstorageanddistributioninfrastructureandinformation).Whensubsidiesareprovidedthesewillaimtoimprovequalityfoodproduction,supplyanddistribution,butnotdistortmarketsforprivatesectoractivity.Itistheprivatesectortraderswhoultimatelywillbethemostimportantandsustainablelinkforfarmers’accesstomarketsforoutputs,inputsandusefulinformation.
Improvedroadtransportservicesalongwithstrategicallylocatedcoolstoragefacilitiesandimprovedmarketinfrastructure(alongwithessentialutilities,includingreliablepowersupply,safewaterandtelecommunications)areessentialrequirementsforboostingdomestictradeinagricultureandfisheriesproducts.Whenmunicipalmarketplacesofferagoodarrayandqualityofproducetheymakeamajorcontributiontosmallbusinessenterprisedevelopmentandfoodsecurity.Apolicyprioritythereforeistocontinuetoimprovedomesticmarket,storageanddistributioninfrastructureandpost-harvestmanagementforperishableproducts(includingforlivestockandfisheriesproducts)asameanstostimulatelocalfoodproduction,enhancefoodqualityandsafetyandreducewastage,thusincreasingmarketopportunities,employmentandruralincomes.Domesticmarketingislargelytheresponsibilityofwomenandtheyshouldbefullyinvolvedandleadinginitiativesandindecision-makinginplanningofmarketdevelopmentsandmarketmanagement.
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StrategicActionArea2:Buildingstabilityandresilienceintofoodproductionandsupplysystems.
Outcome2:Enhancedstabilityandresilienceinfoodproductionandsupply
Sustainablemanagementofagriculture,forestandfisheriesresourcesandsoilandwaterresourcesunderpinstheachievementofsustainablelivelihoodsandfoodandnutritionsecurityforallPapuaNewGuineans.Theseresourcesareasourceoffood,shelterandeconomicdevelopment,thusmanagingthemsustainablyiscrucialtoensuringtheycontinuetoprovideimportantecosystemservicessuchasclimatechangemitigation,watershedprotection,biodiversityconservationandfoodproduction.
SteepslopeswithshallowsoilswhereagricultureisfrequentlypracticedinPapuaNewGuineaareverysusceptibletoerosion.Unsustainablelanduseandforestdegradationhasalreadytakenaheavytollonthewatercycle,resultinginperiodicwatershortages,flashfloodsandlandslides.Theinevitableconsequencesarelowercropyields,cropfailuresandfoodshortages.Healthywatercatchments,rivers,forestsandsoilsarenecessaryforproductivefarmsandahealthypopulation.PNG’slandandwaterresourcesmustbemanagedtoavoidfurtherdegradationandtominimizetheriskofenvironmentaldamageandlossofbiodiversity.Forestprotection,reforestationandsustainableland,soilandwatermanagementremainhighpriorities.
ClimatestudiespredictthattheclimateinPapuaNewGuineawillbecomewarmerandwetterandtheintensityofextremerainfalleventswillincrease.FormostofPNG,anincreaseintotalrainfallandalessseasonaldistributionwouldhaveanegativeimpactonagriculture.IfENSOeventsoccurmoreoftenassomemodelspredict,morefrostswillresultathigh-altitudelocationswhichwillalsohavenegativeimpactonagriculture.Suchpotentialimpactsofclimatechangeposefurtherchallengesforfarmersandthreatstostabilityinfoodproduction.Increaseinrainfallintensityandchangingrainfallpatternswouldexacerbatesoilerosion,landslides,localfloodingandwateravailability.
Warmertemperaturesarealsolikelytoincreasetheincidenceofsomecropandlivestockdiseasesandvector-bornediseasessuchasmalariaanddenguefever.Floods,droughtandothernaturaldisasters—madeworsebyclimatechange—cantransformmarginalformsofpovertyintochronicvulnerabilityandfoodandnutritioninsecurity.Boldactionsareneededtoprotect,restore,andmanageland,soil,andwatersustainablytoalleviateruralpovertyandhungerandensurelong-termfoodsecurity.Increasedattentionneedstobepaidtolandcapabilityandlanduseplanning.
Strategy2.1:Enhancecapacitiesinruralcommunities,landownersandfarmerstousenaturalresourcesinasustainablemannertosupportanadequateandstablesupplyofdomesticallyproducednutritiousfood.
Strategy2.2:Conserveandincreasetheuseoftraditionalcropbiodiversity(andindigenoussmalllivestockbreeds),andcautiouslyintroducenewcropvarietieswhichcanextendthetolerancerangeofcropgrowingconditions(e.g.todrought,excessmoisture,salinesoilconditionsandhighertemperatures).
Strategy2.3:Developandextend‘climatesmart’traditionalandscience-basedagriculturaltechnologiesandpractices.
Strategy2.4:Ensureawell-functioningbiosecurityservicetoensureadequatelevelsofmanagementandcontrolofspreadofendemicallyoccurringpestsanddiseasesandprotectionofPNG’splantandanimalhealthstatusfromestablishmentandspreadofintroducedexoticpestsanddiseases.
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PNG is blessed with a wide diversity of plant genetic resources. The broadgeneticbaseof foodcropscurrentlyavailable inPNGprovides resilienceandtoleranceagainstmajorpest anddiseaseoutbreaks andwill provide farmerswithmoreoptionstomeetfuturethreatsandchallengesincludingthepotentialimpactsofclimatechange.Maintainingandutilizingthisrichgeneticpoolforfood crop improvement including increased productivity, quality andnutritionalvaluewillbevitaltoensuresustainablefoodsecurityinPNG.
Additionally,ensuringnationalbio-securityisalsoessentialtoprotectingbiodiversityandmaintainingproductivecapacityforfoodsecurityandtoprotectplant,animalandhumanhealth.Strengtheningbiosecuritycontrolandinterventionstargetingendemicemergingpestsanddiseases,particularlyinrespectofmeasurestopreventandmangerisksoftheirspreadandadaptationtoadditionalhostcrops.;strengtheningquarantinebordercontrols,harmonizationofbiosecurity,foodsafetyandcustomsclearancecontrolsthrough‘singlewindow’processingintegration,andensuringthatimportandexportactivitiescomplywithinternationalquarantinestandardsarethereforehighpriorities.Asisdevelopingcontingencyresponseplansforinvasivepestanddiseaseincursions.
Establishingriskmanagementsystemsandtools,toprovidefood-basedsafetynetsthatofferimmediaterelieftodisadvantagedgroupsduringcrises;buildingadequateemergencyfoodreservesandreliefsystems(includingseedbanks)asabuffertonaturalandhuman-madedisasters;andoverthelonger-termpreservingandextendingfoodcropgeneticbiodiversityandadopting‘climatesmart’agriculturalpracticestosustainagriculturalproductivitywillallbenecessarytoprotectfoodandnutritionsecurity.
Systemsforimproveddisastermitigationandaddressingrisksarebeingputinplaceanddisasterpreparednessandmanagementplansshouldindicatehowfoodandagriculturalsystemswillbeeffectivelymanagedandprotectedintimesofdisastersandcrisis.TheFoodSecuritypolicyframeworkwillbealignedtonationaldisasterpreparednessandmitigationpolicy.
Maintainingstrategicfoodreservesprovideacriticalbufferduringtimesofdisasterorcrisisforvulnerablecommunities.Thesebufferstocksneedtobewellmanagedtoensuresufficientavailabilityofgoodqualityfoodintimesofneed.Thispolicywillpromoteandsupportimprovedstrategicfoodstoragefromfarmhouseholdlevel,throughtovillage,districtandnationallevels.Recognizingthehighcostsofmaintainingphysicalfoodstocksandthepotentialthesehavetodistortmarketsignals,approacheswhichinvolvecommercialsectorfoodtradersholdingmandatedstrategicbufferstockstomitigateshort-termsupplyshockswillbeexplored.
Inaddition,processing,preservationandconsumptionoffoodgrainandespeciallypulsecropsbecauseoftheirbetterstorageattributes,comparedtotraditionalrootandtubercropswillbepromoted.Athouseholdlevelbuildingcapacityinsmallscalefoodprocessing,preservationandsafestorage(e.g.
Strategy2.5:Exploreandpromoteappropriateapproachestomaintainingadequatestrategicfoodreserves.
Strategy2.6:Buildcapacityinsmallscalefoodprocessing,preservationandstorageathouseholdandcommunitylevels.
Strategy2.7:Streamlineandimprovecoordinationofhumanitarianfooddistributiontovulnerablehouseholdsandcommunitiesintimesofdisastersandextremeneed.
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cassavaflour,driedfruitsetc.)tosupplementhouseholdfoodsuppliesduringleanperiodswillbesupported.Processingoffoodstoallowforlongerpreservationalsocontributestodietdiversity.
Theprivatesectorfood(e.g.rice)distributionnetworkappearedtofunctionwellfollowingthe1997drought–relativetothepublicsector/aiddistributionsystems-thereforeanappropriateapproach,undersuchcircumstanceswhereprivatefoodmarketsareoperating,maybeforgovernment(andaidagencies)todeliverfoodvouchers(ratherthanbagsofrice)tohouseholdsinvulnerablecommunitieswhohaveaccesstopurchasericefromthecommercialdistributionsystem.Thisshouldalsobetteraccommodatetargetingtotheneediestandstrengthenratherthancompetewithprivatebusinessoperations.However,thereshallremainacriticalneedforaid-distributedfoodsuppliesforthesubsectorofPNGsocietythatdoesnothaveaccesstofoodmarketsofanykind.
Fromtheperspectiveofimprovingtargetingofinterventions(particularlytodisadvantagedandvulnerablegroups),aspromulgatedinthispolicy,itwillbenecessarytodevelopamoredisaggregateddatabaseatthedistrictandlocallevels.TheGovernmentalsorecognizestheneedtohaveinplaceaneffectiveearlywarningsystemthatprovidesalertsonnutritionandfoodinsecuritywhichmaybeprecipitatedbyemergenciessuchasdrought,floods,tsunami,earthquakeorunfavorablefoodmarketconditions.Thisinformationisnecessarytoimprovegovernment’sabilitytoquicklyrespondtoreducefoodinsecurityandefficientlyallocateitsmaterialandfinancialresourcestowheretheyaremostneeded.
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StrategicActionArea3:Enhancednutrientcontentandbalanceoffoodproductsconsumedbynutritionallyvulnerablehouseholdsandindividuals.
Outcome3:Vulnerablehouseholdsandindividualsconsumingahealthybalancednutritiousdiet
ToaddressmalnutritioninPNGagriculturalpolicies,programs,andinvestmentsneedtobedesignedandimplementedtoachieveclearnutritiongoals.Effectivestrategiestoenhancefoodandnutritionsecuritymustalsotakeintoaccounttheneedsofthosewhoalreadylackfoodandnutritionsecurityandthosevulnerabletoalackoffoodandnutritionsecurity.Healthyfood,alongwithhealthcareandeducation,mustbeavailabletoallregardlessofincome.
PapuaNewGuineadisplaysanenormousdiversityinitsgeography,ecologyandhumanbiology;thediversityofthelandscape,andagricultureandculturalpracticesresultinwidedifferencesinthenutritionoutcomesamongtheregions.Athouseholdlevel,familywealthandgeographiclocationaresignificantfactorsassociatedwithmalnutritionofchildren,withchildrenfrompoorerfamiliesbeingsignificantlymorelikelytobemalnourished.
AdequatenutritionofchildreninPNGiscloselyassociatedwiththefoodproductionsystemswheretheyliveandbydifferencesindiet.MostofthefactorsassociatedwithchildgrowthcanberelatedinoneformoranothertodifferencesinlocalsubsistenceagriculturemakingagricultureoneofthemaindeterminantsofchildgrowthandnutritionpatternsinPNG.Qualityofthefoodconsumedisasimportantasthequantity,fortheimprovementinnutritionalstatus.Thequalityoffood(forexample,intakeofproteinandfats)resultsingreatvariationintheextentofprotein-energymalnutritionamongchildren.Thereforeincreasingavailabilityandaccesstonutrientdense/proteinrichfoodssuchfish,animalmeats,eggsandlegumepulsesisastrategicpriority.Additionally,peopleneedtobeempoweredeconomicallytoaccessandconsumethesenutritiousfoodsandprovidedwithinformationtoenablethemtomakehealthyfoodchoices.
Ournationalfoodsecuritystrategieshaveoftenfocusedmoregenerallyonagricultureandfoodsupply,neglectingtheimportanceoffoodqualitytonutrition.Goingforward,effectiveprogramsandprojectswillneedtobelocationspecific,designedtomeetthespecificneedsofparticularregions,areasordistricts.Moreover,acknowledgingresourceconstraints(bothhumanandfinancial)meansthatprogramresponseswillneedtobenutritionfocusedandtargetedtothoseareasingreatestneed.Therefore,improved
Strategy3.1:Strengthencapacitytomapallcommunitiesnationallythatareparticularlyvulnerabletolackoffoodandwatersecurityandgoodnutritionandensurethatappropriateinterventionsaretargetedtoreachthesegroups.
Strategy3.2:Boostresearchintonutrientrichcropsandimprovedlivestockbreeds.
Strategy3.3:Increaseavailabilityoffoodfromanimal(includingfish)sourcesathouseholdlevel.
Strategy3.4:UseagricultureasaplatformfordeliveryofmessagingonnutritionknowledgeandpracticesandworkcloselywiththeVocationalSchoolsineachdistrict.
Strategy3.5:Promoteincreasedconsumptionofdiversediets(includingprotein-richproductsespeciallymeat,eggs&fish)particularlyamongpregnantwomen,adolescentgirls,andyoungchildren.
Strategy3.6:Throughpartnershipsbetweeneducation,agricultureandhealth,trialschoolfeedingprogramsincorporatinglocallyproducednutritiousfoods.
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foodandnutritionsecurityinformationwillbevitalforbetterdecisionmakingonprograminterventionsindifferentlocations.
Peoplefromallincomegroupsareexperiencinghealthproblemsandsometimesprematuredeathsduetoarangeoffactorsincludingpoorqualitydiet,lessthanoptimalnutrition,andexposuretounsafefoodandwater.Poordietarypracticesresultfromlimitedaccesstoqualitynutritioninformationandservicesandthelowpurchasingpowerfornutritiousfood.Consequently,manyofourchildrenandadultsdonoteatabalanceddietwiththerecommendedamountofcarbohydratestaples,protein-richfoods(meatandfish),vegetablesandfruit.Studentswithdecreasedoveralldietqualityaremorelikelytoperformpoorlyinschool,andhavemorebehavioralandemotionalproblems.Butlowawarenessonnutritionbymothers,fathersandcommunityleadersremainsoneoftheprimaryfactorsunderminingnutritionrelatedprograms.Agricultureprogramsthatdirectlyinteractwithfarmersofferasignificantopportunitytodeliverinformationaboutpracticesandbehaviorsthatimprovenutritionalongsideinformationonagriculture.
Governmentwillthereforestrengthenandexpandthisintegrationofnutritioneducationintoouragriculturalprograms.Particularattentionwillbefocusedonlocally-adaptedcropvarietiesrichinmicronutrientsandproteintogetherwithincreasingavailabilityoffoodfromanimal(includingfish)sourceathouseholdlevel.Supportwillbedirectedtoproductionofsmalllivestock,poultryandegglayersandaquaculturebecausetheyofferuniqueopportunitiestoimprovedietarydiversityandnutritionatthehouseholdlevel.Extendingthedistributionofimprovedsmalllivestockbreedsandaquaculturefingerlingsaswellasimprovinglocallivestockfeedsourceswillbeimportant.Inparticular,wewillworktoreachwomenfarmersandtoensurethattheirincreasedproductivitywilltranslateintoimprovedhealthandnutritionfortheirfamilies.Schoolfoodgardenswillalsobeencouraged.
Whilstunder-nutritionremainsacriticalchallengeoverweightandobesityisashighas25percentamongadultsinsomecommunitieswhichisasignificantriskfactorfortheincreaseinlifestylerelatednon-communicablediseases(NCDs).Improvingtheavailabilityoflowercost,nutritionallysuperiorandlocalfoodproductswillbeacriticalstrategytoimprovingdiets,healthandfoodsecurityinPNG.ThroughpartnershipwithourcivilsocietyandNGOsgovernmentwillfacilitateandpromotesustainedcommunitycampaignsthatpromotehealthyfoodchoices.
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StrategicActionArea4:Empowermentofwomeninagriculture
Outcome4:Sustainableincomegeneratingopportunitiesforwomenincreasedtoenhanceeconomicaccesstonutritiousfoodforchildrenandfamilies
InPNG,womenmakeupalmost50percentofthepopulationwithnearly90percentofthemengagedinagriculture,fisheriesandforestry.Theyproducethebulkofthenation’sfoodbutoftenwithouttheircontributionsbeingrecognized.Also,theyfacesignificantchallengesinfoodproductionandtrade.Law-and-orderproblemsincludinghold-ups,theftandsexualharassmentbymenmeantheycannotparticipatefreelyinmarketingwhichgreatlylimitswomen’saccesstoincome.Socialconstraintsplacebarriersaroundwomen’saccesstoscientificandtechnologicalinformation.InmanyPNGsub-culture(butnotall),lackofcollateraldenieswomenaccesstoagriculturalcredit,whilecultureortraditionsaccordownershipoflandandotherresourcestomen.Toenhancethecontributionofwomeninfoodproductionandsupplyandtoensurefoodsecurityatthehouseholdlevel,theempowermentconstraintsfacingwomeninagricultureneedtobeadequatelydealtwith.
Globalexperiencehasclearlyshownthatwherewomenhaveincreasedaccesstoincomegeneratingopportunitiesandsocialdecision-makingempowermentatcommunitylevel,householdnutritionimproves.Amongagricultureprojectsthathaveimprovednutrition,women’sactiveinvolvementhasbeenaconsistentelement.Villageconsultationsduringthepreparationofthispolicyindicatedthatwomenputaveryhighpriorityontheirchildren’seducationandnutrition.Thispolicythereforepromotesopportunityforincreasedincomeearningbywomenandtheirempowermentindecision-makingprocesses.
Thesmall-scalefisheriessector(seafishers,reefgleaners,shellfishgathers,andaquaculture)offersthepotentialforcreatingsignificantincomegeneratingandemploymentopportunitiesforbothcoastalandinlandcommunitiesandparticularlyforwomen.Developingthefisheriessectorwillservethedualpurposeofimprovingnutritionalstatusandhouseholdincomes.
Women’saccesstofinancetofacilitatedevelopmentofsmall-scaleruralenterpriseswillneedtobestrengthenedandexpandedalongwithappropriatesmallbusinesstrainingandmentoringprograms.
Womenhaveaveryhighworkload,whichaffectstheirhealth.Thenutritionalstatusofwomenisdependentontheirdietandtheirworkload,andontheirnutritionalstatusdependstheirabilitytocareforandproperlyfeedtheirchildren.Giventhesignificanttimeconstraintsonwomen,interventionsthat
Strategy4.1:Tomaximizeimpactofhouseholdincomeonthefamily’snutrition,increasewomen’saccesstoincome-generatingopportunities,especiallyviaincreasedattentiontocrops/livestockproducedbywomen.
Strategy4.2:Increasefocusandresourcestosustainabledevelopmentofthesmall-scalefisheriessectorbydevelopingviabledistribution,valueadditionandmarketingchains.
Strategy4.3:Expandmicro-financeaccessandsmallenterprisecreation,mentoringandsupportprogramsforwomen.
Strategy4.4:Improvewomen’saccesstoextensionservices,technology,inputs,marketsandinformationandsupportcapacitybuildingthroughstrengthenedruralresourcecentres.
Strategy4.5:Investinlaborandtime-savingandproductivityenhancingtechnologiesfortasksperformedbywomen(e.g.weeding,foodprocessing,firewoodandwatercollection).
Strategy4.6:Providesupportandworkthroughwomen’sorganizations(e.g.PNGWiADF,WomeninBusiness,andtheProvincialCouncilofWomen.
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affectwomen’stimeallocationcanhelpimprovetheirownnutritionaswellasthatoftheirchildren.Improvementofvillagewaterandfirewoodsupplies,includingbringingthemclosertovillages,andincreasedsupportforlabour-savingfarmtechnologieswouldhelptoreducewomen’sworkload;alsoimportantwillbeprovidinghealthyandefficientenergysourcesandcookingfacilities.
Therearenumerousnon-governmentorganizationsworkingongendersensitivefoodandnutritionsecurityprojects.DALwillcoordinateitsactivitiesandforgepartnershipswiththeseestablishednetworkstopromotebestpracticesthatreachfamiliesandwomenfarmersatthecommunity/villagelevel.
Womenhavelongbeentrainedasextensionofficers(didimeri)inserviceprovisionforagriculture,butthefemale-to-maleratioofemployeesasapercentageoftotalagriculturesectoremployeesactivelyinvolvedinextension,trainingandresearchhasfallen.Restoringthebalanceoftrainedwomeninagricultureextensionserviceswillbepursued.
StrategicActionArea5:Strengthenedgovernance,coordination,monitoringandcommunication
Outcome5:Successfulimplementationoffoodsecuritypolicyandprogramsatnational,provincial,districtandlocallevels
Policyimplementationwillrequirebringingtogethermultipleagenciesandgroupsincludingtheprivatesectorandbusinessorganizations(atnational,provincial,districtandlocal-level)thatareintendedtoworkinconcert;thereforeeffectivecoordinationwillbefundamentaltosuccess.
Thefirstandperhapsmostimportantsteptowardsencouraginggreaterinvestmentinimprovedfoodandnutritionsecuritybyboththepublicandprivatesector,istheeffectiveco-ordinationofstakeholders,andtheirclearcommunicationofpolicyneedsandobjectives.Thisisparticularlyimportantinthecontextoflinkinglocallevel,districtandprovincialneedsandplanningprocessesintothenationalpolicyimplementationframework.
TheBillforthe‘NationalAgricultureAdministrationAct2014’ prescribestheadministrativegovernancestructureforimplementationandmonitoringofnationalagriculturepolicyandplans-implementationoftheNFSPwillbealignedtothislegislativeframework.FollowingareviewandreformulationofanewNationalAgriculturePlan(NAP),thefoodsecurityimplementationplanandprogramswillbesubsumedundertheNAP.DAL(FoodSecurityBranch)will
Strategy4.7:Promoteawholeoffamilyapproachtogenderandmaleadvocacytoenhancewomen’sroleindecisionmakingrelatingtoagriculture,agribusinessandhouseholdnutrition.
Strategy4.8:Ensureagenderbalanceinagriculturetrainingandprovisionofextensionservices.
Strategy5.1:Strengthenpublic-privatesectorgovernancesystemsandarrangementstoenhanceprivatesectorroleindecisionmakingtoenhancedevelopmentoffoodvaluechainsandthefoodeconomymorebroadly.
Strategy5.2:Strengthenthegovernanceandcoordinatingstructureessentialforeffectivemulti-sectoralfoodsecuritypolicyoversight,implementation,monitoringandresponseatnational,provincialanddistrictlevels).
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havealeadershiproleinfoodsecuritypolicyformulationandcoordinationofimplementingpartners,securingfinanceandmonitoringandreportingonprogress.TheFreshProduceDevelopmentAgency(FPDA)andNationalAgricultureResearchInstitute(NARI)willassumeanexpandedroleinimplementationofsupportforfoodsecurityprogramsandactions.
RecognizingtheimportanceofgooddataandanalysisforsoundpolicydecisionmakingandtheverysignificantissuesthatcurrentlyexistrelatedtodataqualitythisPolicypromotesacoordinatedcapacitybuildingefforttoimprovetheflowandqualityofinformationonfoodandnutritionsecurityintendedtoguideandsupporteffectiveevidence-basedpolicymakingandprogramming.
Thedatacollectedshouldaimtobetterlinkfoodsecurityandnutritionstatusandoutcomestomacroeconomic,poverty,agriculture,health,education,socialprotectionandotheraspectsoftheunderlyingcausesoffoodandnutritioninsecurityandincludeclimatevariabilityandtrendsinthemonitoringsystems.Itwillalsobenecessarytobuildcapacityin-countrytoundertakepolicy-relevantanalysisoffood,nutritionandhealthproblems.
ResponsibilitiesandrequirementsforagriculturedatacollectionandreportingarelaidoutintheNationalAgricultureAdministrationBill.Relevantagriculturedataforfoodsecurityplanningandmonitoringwillbecollected.Thisdatawillinformpolicyimplementationmonitoring,anintegratedmulti-sectoralmonitoringsystemforfoodandnutritionsecurityandthenationalstatisticalsystem.
Keyagricultureminimumdatasetswillbeidentifiedformonitoringfoodsecurityandwillbeusedtodefineindicatorsinacommonresultsmonitoringframeworkforfoodandnutritionsecurity(referalsotoChapterFive–MonitoringandEvaluationintheNationalNutritionPolicy2015-2024).
Strategy5.3:Reviewinstitutional/humanresourceneedstoeffectivelyimplementthefoodsecuritypolicy,andwhereneededensuredesignatedfoodrelatedpositionsareestablishedandadequatelyresourcedateachlevel.
Strategy5.4:Providetrainingandadvocacyonrolesandresponsibilitiesofstakeholdersintheeffectiveimplementationofthefoodsecuritypolicy.
Strategy5.5:Buildacriticalmassofhumancapabilitytogetherwithappropriateresourcestoeffectivelycollect,integrate,analyzeandreportcredible(genderdisaggregated)foodandnutritionstatisticsinatimelyway.
Strategy5.6:Continuetoimprovestandardizationofapproachesandindicatorsusedinthemultiplenationalsurveyswhichcollectinformationrelevanttofoodandnutritionsecurity(e.g.PopulationCensus,HIES,SurveyofLivingStandards,DemographicHealthSurveys,NutritionSurveysetc.).
Strategy5.7:Strengthenthefoodsecuritydatamanagement,informationandcommunicationsystemsincludingappropriateintegratedinformationmanagementsystemsinpublicandprivatesectors.
Strategy5.8:Supportthestrengtheningandtimelydistributionofdemand-drivenfood,nutritionandfoodvaluechaininformationproducts.
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5. OrganizationalResponsibilities
InstitutionalStructureforFoodandNutritionSecurityGovernanceandCoordinationCurrentlytheinstitutionalstructureofsupportservicesforfoodandnutritionsecurityisfragmentedwitharangeofgovernmentdepartments,NGOs,faith-basedorganizationsandprivatesectorentitiesallhavingimportantrolestoplay.Thereisaneedtoconsolidate,focusandcoordinatefunctionsacrosstheagenciesandtheprivatesectoractorswhodrivethefoodeconomy.DALwillworkcloselywiththeprivatesectorrepresentativeorganizationsandkeygovernmentagenciesincluding,departmentsofHealth,NationalPlanningandMonitoring,Education,CommunityDevelopmentandReligion,CommerceandTrade,TransportandCommunications,Environment,OfficeofClimateChangeandDisasterManagementCentre)togetherwithprovincialanddistrictauthoritiestocoordinatetheimplementationofthenutrition,foodsafety,WaSHandfoodsecuritypolicies(Figure3).
Viableapproacheswillbesoughttoleverageintegratedactionsacrossthemultiplesectorstoachievegainsinagriculture,nutrition,andhealthsimultaneously.Theaimwillbetoensurethatminimum(essential)packagesareprovidedineachsector,withgainsfromeachachievedinthecommunitiestargeted;hencebyexploitingsynergiesgaincompoundedfoodandnutritionsecuritybenefits.
Nutritionpolicy&programs
WaSHpolicy&programs
Foodsafetypolicy &programs
Foodsecuritypolicy&programs
CoordinatedDelivery
Figure3:FoodandNutritionSecurityPolicyImplementation
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TheNationalNutritionCommittee(NNC)6willbeanimportantbodyforcoordinationofthemulti-sectorinterventionstoimprovefoodandnutritionsecurity.TheNNCisintendedasaninterimbodytooperateforaninitialperiodoftwoyearswiththeintentionoftransitioningtoaNationalFoodandNutritionCouncilasthepinnaclecoordinationbodyforfoodandnutritionpolicycoordinationandmonitoring.
Alongwith(horizontal)centralcoordinationitwillalsobenecessarytoensureadequate(vertical)coordinationatdistrictandlocal-levelswheresupportforlocaldemand-drivendevelopment,particularlywiththeprivatesectorwillbeimplemented.Figure4belowillustratesthestructureforcoordinationthroughthedifferentpoliticalandadministrativetiersofgovernment.ThestructureisinlinewiththeBillfortheNationalAdministrationAct,whichprovidesanationalpolicyframeworkrelatingtoagriculturemattersanddefinestheadministrativearrangements,functionsandresponsibilitiesofProvincialGovernmentsandLocalLevelGovernmentsandtherelationshipbetweenthemandtheNationalDepartmentofAgriculture.
Notes:NAAAct=NationalAgricultureAdministrationAct;AICAct=AgricultureInvestmentCorporationofPapuaNewGuineaAct;NAP=NationalAgriculturePlan;NFSP=NationalFoodSecurityPolicy;NHAAct=NationalHealthAdministrationAct;NNP=NationalNutritionPolicy;PDP=ProvincialDevelopmentPlan;DDP=DistrictDevelopmentPlan;PA=ProvincialAuthority;DDA=DistrictDevelopmentAuthority;DAL=Departmentof
6TheNationalNutritionCommitteeestablishedbytheHealthBoardwillbeahighlevelExecutivecommittee,atnationallevelforharmonizeddelivery,liaisonandcoordinationofnutritionspecificandnutritionsensitiveactivitiesincludingfoodsecurityactions.
21
Agriculture&Livestock;FSB=FoodSecurityBranch;FSWG=FoodSecurityWorkingGroup;TAG=TechnicalAdvisoryGroup;TWG=TechnicalWorkingGroup.
TheNFSPwillbeimplementedaspartofanapprovedNationalAgriculturePlan(NAP)7whichwillbedeclaredthenationalagriculturepolicyforthewholecountry,andwillbecoordinatedandmonitoredatprovincial,districtandlocallevelsbyagriculturecommitteesasprescribedintheNAA.TheDALFoodSecurityBranch(FSB)willfacilitatetheformationofaFoodSecurityTechnicalAdvisoryGroup(FSTAG)atnationallevelandFoodSecurityWorkingGroups(FSWG)atprovincial,districtandlocallevelstoadvisetheDALmanagementandtheagriculturecommitteesonmattersrelatedtoimplementationandmonitoringoftheNFSP.TheFSTAGandFSWGswillincludefoodsecurityandagricultureexpertisefromrelevantgovernmentagencies[e.g.DAL(includingarepresentativeongenderissues),NationalAgricultureResearchInstitute(NARI),FreshProduceDevelopmentAgency(FPDA);NationalQuarantineInspectionAuthority(NAQIA),NationalFisheriesAuthority(NFA)etc.]andalsodrawonexpertisefromtheprivatesector,non-governmentalorganizations(NGOs)andthefoodpolicyresearchcommunity[e.g.UniversityofPapuaNewGuinea(UPNG),UniversityofGoroka,NationalResearchInstitute(NRI),InstituteofNationalAffairs(INA)etc.].WherenecessarytheFSTAGwillprovidesupportandmentoringtotheprovincial,districtandlocallevelFSWGs.Toensuremulti-sectorhorizontalcoordinationoffoodandnutritionsecurityactionstheFSTAGwilladvisetheDALDeputySecretaryPolicy,whowillbeamemberoftheNationalNutritionCommittee.Atprovincial,districtandlocallevelstherelevantFSWGwillhavearepresentativeinthenutritioncommitteeatthatlevel.
Foodsecuritystrategiesandactionswillbeincludedaspartofagriculturedevelopmentplansinprovincialdevelopmentplansandstrategicimplementationplans.TheNFSPwillalsoformthebasisforthedistrictsandLLGstodevelopfoodsecuritycomponentsintheirrollingfive-yeardevelopmentplansandotherrelevantstrategies.
InstitutionalRolesandResponsibilitiesInter-sectorcollaborationonfoodsecurityandnutritionwillrequireclarityonrolesandresponsibilities,includingjointplanning,jointresourcemobilization,jointmonitoringandjointimplementation.KeygovernmentdepartmentsandagenciesandotherstakeholderswithimportantrolesforachievingthefivedevelopmentoutcomesarelistedintheSummaryFoodSecurityPolicyFrameworkinAnnex1.However,thispolicyframeworkdoesnotattempttostipulateanexhaustiveandall-inclusivelistofstakeholdersandtheirroles.Whenoperationalplansaredetailedtheyshouldidentifyanddefinewhoisresponsibleforimplementationofspecificactivitiesandthecostsshouldbeincludedintherelevantsector/corporateplansandfoodsecuritybudgetline.Itisalsorecognizedthatcloseworkingrelationshipsandpartnershipbetweenthepublicagencies,privatesectorandcivilsocietyorganizationswillbeessentialtoachievingthedesireddevelopmentoutcomes.
PartnershipsDALwillplayaleadershiproleinpolicyformulation,coordination,monitoringandreportingimplementation,andsourcingfinancialresourcesfromthenational,provincialanddistrictlevelgovernmentsandinternationaldevelopmentpartnerstoimplementactivitiestoachievetheanticipated
7CurrentlytheNationalAgricultureDevelopmentPlan(NADP)2007-2016whichwillbereviewedandrevisedtoanewnationalagricultureplangoingforward
22
policydevelopmentoutcomes.Theimplementationofthevariousstrategiesofthepolicywilldrawstronglyuponpartnershipswithprivatesector,establishedNGOs,developmentagencies,andothergovernmentdepartmentstoutilizetheirexistingnetworks,technicalknowledgeandexperienceontheground.LeveragingtechnicalsupportforareasimportanttofoodsecuritythatareoutsideofthecorebusinessofDALwillrequireeffectivecommunicationofthepolicyandcoordinationwithrelevantpartnerstogettheirbuyinandcollaborationintheirareasofcomparativeadvantage.
6. PolicyImplementationAdetailedandcostedimplementationplanwillbeprepared.Implementationofthepolicystrategicactionswillbebrokendownintoanumberofmutuallysupportingpriorityprogramsdesignedtodeliverthefoodsecuritydevelopmentoutcomes.Eachprogramshallbetranslatedintoafullycostedoperationalplanforimplementationduringtheperiod2018-2027.Annualworkplansatprovincial,district,andlocallevelswillcomefromthese,reflectinglocalcapacity,prioritiesandneeds.
Thedevelopmentoftheimplementation/operationalplanswillbedoneincloseconsultationwithimplementingandsupportingagenciesincorporatingjointplanningandparticipation(facilitatedbytheDALFoodSecurityBranch)toensurethatmultipleviews,needsandconcernsinresolvingpriorityfoodandnutritionsecurityissuesatdifferentlevelsaretakenintoaccountandnegotiated.Manyactionsnecessarytoachievethefourkeydevelopmentoutcomeswillalreadybeintegraltoothersectorandagencyactionprogramse.g.fisheries,FPDA,NARIandotherresearchanddevelopmentinstitutions,health/nutrition,environment(includingdisasterriskmanagementandclimatechange),education,andinfrastructure.Carewillbetakenthatallfoodandnutritionsecurityprogramsarecoordinatedandnotduplications.
Toensureproperalignmentofresultsdowntheplanninglevels,thedevelopmentofimplementationplansshallpickuptheplanningprocessfromtheinterventionstrategylevelundereachofthedevelopmentoutcomeresultareas,asoutlinedinthePolicyFrameworkMatrix(Annex1),andunpackeachinterventionstrategyintoitsnecessarybroad-basedactivities.Activitydeliverytimeframe,responsibilityforcarryingouteachactivityandtheexpectedoutputsandintendedbeneficiariesshouldalsobedetailed.Thecostofimplementingthestrategywillbesharedamongrelevantsector/agencybudgetsatnationalandprovinciallevelsanddistrictsupportgrants,developmentpartners’foodandnutritionsecuritysupportandprivatesectorinvestments.TheMinistryofFinancewillworktogetherwithDAL,theProvincialAuthoritiesandtheDistrictDevelopmentAuthorities(throughtheDistrictDevelopmentBoard)andotherstakeholderstoensurecoordinationofinvestmentsinfoodandnutritionsecurityandsubsequentlythattheseinvestmentsaredeliveringtheanticipatedresults.
Theimplementationofintegratedactionsthroughpartnershipswillbeacentralfocusalongwithconsistencyandcoherencebetweenfoodandnutritionsecuritypolicy,andmacroeconomic,trade,agriculture,fisheries,health,education,infrastructure,disastermanagementandclimatechangepolicy.Thecombinedfoodandnutritionsecuritypolicyframeworkshouldhelptoalignfoodsecurityandnutritionrelevantprogramswithinacommonresultsframework.
23
7. MonitoringandEvaluationAneffectiveandaffordablemonitoringandevaluation(M&E)systemwillbeessentialtoensurethatpolicydirectionsareachievingdesiredpolicyoutcomesandimpact.Thiswillrequireinitiallythatthereissufficientbaselinedatainplace,andsubsequently,systematicdatacollectiononrelevantindicators.Goodmonitoringwillallowappropriateadjustmentstothepolicyframeworkasimplementationunfolds.Effectivelydemonstratingthequalityandimpactofresourcesshouldhelpfacilitateincreasedcommitmentstostrengtheningfoodandnutritionsecurity.
Currentlytherearedatalimitationsformonitoringpolicyoutcomesandafirstprioritywillthereforebetoestablishaminimumsetofcoreindicatorsthatneedtobemeasured.Itwillthenbeimportanttoensuretherelevantdataiscollectedinanyfutureagricultureandcommunitysurveys,HouseholdIncomeandExpenditureSurveys,DemographicHealthSurveys,NutritionSurveys,andPopulationCensus.
AttheimpactanddevelopmentoutcomelevelstheM&EMatrixinAnnex2identifiesbroadindicatorsthatshouldbetracked.Atthestrategyoutputlevelindicators,dataandtargetswillneedtobeestablishedatamoredisaggregatedleveltoreflectregionalcontextandpriorities.Gender,ageandgeographicaldisaggregationwillhelptofacilitatemonitoringofbothpositiveandnegativeimpactsonvulnerablecommunitiesandgroups.
TheDALinclosecooperationwiththeNationalStatisticsOffice(NSO)andtheDepartmentofHealthwillberesponsibleforestablishingtheM&Eframeworkandpreparingregularpolicyimplementationreports.
ReportingonpolicyandprogramimplementationwillfollowtheprocessforagriculturepolicyreportingdescribedintheNationalAgricultureAdministrationBill.TheFoodSecurityBranchwillfurnishtotheSecretaryofDAL,onorbeforethe30Marcheveryyear,anAnnualReportonprogressandperformanceoffoodsecuritypolicyprogramsimplementationfortheyearending31Decemberpreceding.Thepolicywillbesubjecttoamid-termevaluationnolaterthanfiveyearsafteritsendorsementbytheNationalExecutiveCouncil(NEC).
Goodreportingonresultswillprovidepolicymanagersandstakeholderstheopportunitytoreflectonwhathasandwhathasnotworkedandfeedtheselessonsintofutureplanning.ThePolicywillbeupdatedafterthecompletionoftheevaluationorsoonerifnecessary.
24
Annexes
1. SummaryFoodSecurityPolicyFrameworkPOLICYGOAL
Ø EnableallPapuaNewGuineanstoaccessandconsumesufficient,safe,affordable,and
nutritiousfoodatalltimes.
DEVELOPMENTOUTCOMES STRATEGICACTIONSFoodSecurityAvailabilityPillar
ActionArea:Productivityandfarmoutputgrowthofthemainfoodstaples,horticulture,smalllivestockandfishfarmingandincreasingefficienciesalongtheentirefoodvaluechain
Outcome1.Localfoodproductionincreasedandproducersbetterlinkedthroughefficientvaluechainstoprofitablemarketsandconsumers.Keystakeholdersfordeliveringthisoutcome:Buildingandstrengtheningpartnershipswiththeprivatesectorwillbeessentialinalloutcomeareas.DAL;ProvincialandDistrictDivisionsofPrimaryIndustry;NARI,FPDI,NAQIA,UNITECHandUniversityofGoroka.TheNationalFisheriesAuthority(NFA)willleadsupportforfisheriesandaquaculture.TheDepartmentofTrade,CommerceandIndustrywillhaveanimportantsupportingroleforimprovedtradepracticesandstrengtheningintheareasofmarketingandcreditprovision.ChamberofCommerceIndustry(PNGCCI)PapuaNewGuineaWomen’sChamberofCommerceandIndustry(PNGWCCI),PNGManufacturersCouncilNationalDevelopmentBank(andmicrofinanceintuitions).CentreforExcellenceinFinancialInclusion.PNGWiADF;NGOshavebeenandwillcontinuetobevitalplayersinthedeliveryofactionstoachievethisdevelopmentoutcome.GovernmentwillseektostrengthenpartnershipswithNGOsandcommunityorganizationsworkinginthesectorandwherepossibleandappropriateencourageandsupportserviceprovisionbythem.
Strategy1.1:Improvesmallholderagriculturalproductionandproductivityfocusingonmaintainingcontinuityinsupplyofarangeofqualityproductstoimprovenutritionalhealthstatus.
Strategy1.2:Increaseinvestmentinadaptiveresearchanddevelopmentbuildingonlocalknowledgeandagro-biodiversitytoincreaseoveralldomesticfoodproduction,relatedvaluechaindevelopmentandsupportforcompetitivesmallholderagriculturalenterprises.
Strategy1.3:Improvethedeliveryofextensionservicestosmallholderfarmersandfoodvaluechainparticipants.
Strategy1.4:Inthecropsector,increasefocusongreaterproductivityandconsistentsupplyofadiverserangeofqualitynutritiousfoodcropsinrain-fedlowinputsystems.
Strategy1.5:Increasecompetivenessoflivestockproductionandproductivityofvaluechainsforsmallanimalsandtheirproducts(pigs,goatsandpoultryincludingegglayers).
Strategy1.6:Protectandenhancewatersourcesandstrengthenwaterandsoilusemanagementandapplicationofappropriate-scaleirrigationtechnologies.
Strategy1.7:improvethemanagementofcoastalandinlandfisheriesandsupportthedevelopmentofsustainableaquacultureandthevaluechainsfortheiroutputs.
Strategy1.8:Promoteandstrengthenpartnershipsforawholeofvaluechainapproachtofacilitatetheestablishmentofefficientviablecompetitivefoodproduction,distributionandmarketingfrominputsupplies,throughfarmproduction,distributionandprocessingtoendmarketsandconsumers.
Strategy1.9:Encourageandsupporttheformationofsmallandmediumenterprises(SME)inthefoodsector.
25
Strategy1.10:Strengthenvaluechain/marketinfrastructure,marketinformationandbusinesssupportservices(includingfinancialinclusionandaffordablecreditfacilities,businessskillsdevelopmentandtraining)tosmallfarmers,fishersandSMEsinthefoodsector.
Strategy1.11:Ensurethatallinterventionprogramsaregenderfocusedandgenderresponsive.
FoodSecurityStabilityPillar
ActionArea:Buildingstabilityandresilienceintofoodsupplyandproductionsystems.Outcome2:Enhancedstabilityandresilienceinfoodproductionandsupply.
Keystakeholdersfordeliveringthisoutcome:OfficeofClimateChangeDevelopment(OCCD);ConservationandEnvironmentProtectionAuthority(CEPA);NationalForestryAuthority;DAL;NARI;NAQIA;NationalDisasterCentre;NGOs;Faith-basedorganizations.
Strategy2.1:Enhancecapacitiesinruralcommunities,landownersandfarmerstousenaturalresourcesinasustainablemannertosupportanadequateandstablesupplyofdomesticallyproducednutritiousfood.
Strategy2.2:Conserveandincreasetheuseoftraditionalcropbiodiversity(andindigenoussmalllivestockbreeds),andcautiouslyintroducenewcropvarietieswhichcanextendthetolerancerangeofcropgrowingconditions(e.g.todrought,excessmoisture,salinesoilconditionsandhighertemperatures).
Strategy2.3:Developandextend‘climatesmart’traditionalandscience-basedagriculturaltechnologiesandpractices.
Strategy2.4:Ensureawell-functioningbiosecurityservicetoensureadequatelevelsofmanagementandcontrolofspreadofendemicallyoccurringpestsanddiseasesandprotectionofPNG’splantandanimalhealthstatusfromestablishmentandspreadofintroducedexoticpestsanddiseases.
Strategy2.5:Exploreandpromoteappropriateapproachestomaintainingadequatestrategicfoodreserves.
Strategy2.6:Buildcapacityinsmallscalefoodprocessing,preservationandstorageathouseholdandcommunitylevels.
Strategy2.7:Streamlineandimprovecoordinationofhumanitarianfooddistributiontovulnerablehouseholdsandcommunitiesintimesofdisastersandextremeneed.
FoodSecurityUtilizationPillar
ActionArea:Enhancednutrientcontentandbalanceofproductsconsumedbynutritionallyvulnerablehouseholdsandindividuals.
Outcome3:VulnerablehouseholdsandindividualsconsumingahealthybalancednutritiousdietKeystakeholdersfordeliveringthisoutcome:
Strategy3.1:Strengthencapacitytomapallcommunitiesnationallythatareparticularlyvulnerabletolackoffoodandwatersecurityandgoodnutritionandensurethatappropriateinterventionsaretargetedtoreachthesegroups.
Strategy3.2:Boostresearchintonutrientrichcropsandimprovedlivestockbreeds.
26
DAL;DepartmentofHealth(DOH);NARI;FPDA;NFA;EducationDepartment;NGOs;Faith-basedorganizations;NationalMedia
Strategy3.3:Increaseavailabilityoffoodfromanimal(includingfish)sourcesathouseholdlevel.
Strategy3.4:UseagricultureasaplatformfordeliveryofmessagingonnutritionknowledgeandpracticesandworkcloselywiththeVocationalSchoolsineachdistrict.
Strategy3.5:Promoteincreasedconsumptionofdiversediets(includingprotein-richproductsespeciallymeat,eggs&fish)particularlyamongpregnantwomen,adolescentgirls,andyoungchildren.
Strategy3.6:Throughpartnershipsbetweeneducation,agricultureandhealth,trialschoolfeedingprogramsincorporatinglocallyproducednutritiousfoods.
FoodSecurityAccessPillar
ActionArea:Empowermentofwomeninagriculture.
Outcome4:Sustainableincomegeneratingopportunitiesforwomenincreasedtoenhanceeconomicaccesstonutritiousfoodforchildrenandfamilies.
Keystakeholdersfordeliveringthisoutcome:DALWomeninAgricultureDevelopmentUnit(WiADU),WomeninAgricultureDevelopmentFoundation(WiADF),FoWIADInc.,NationalCouncilofWomen,ProvincialCouncilofWomen,districtwomen’sassociations;NARI,FPDA,NFA;Microfinanceinstitutions;NationalDevelopmentBank;VocationalSchools,Faith-basedorganizations.
Strategy4.1:Tomaximizeimpactofhouseholdincomeonthefamily’snutrition,increasewomen’saccesstoincome-generatingopportunities,especiallyviaincreasedattentiontocrops/livestockproducedbywomen.
Strategy4.2:Increasefocusandresourcestosustainabledevelopmentofthesmall-scalefisheriessectorbydevelopingviabledistribution,valueadditionandmarketingchains.
Strategy4.3:Expandmicro-financeaccessandsmallenterprisecreation,mentoringandsupportprogramsforwomen.
Strategy4.4:Improvewomen’saccesstoextensionservices,technology,inputs,marketsandinformationandsupportcapacitybuildingthroughstrengthenedruralresourcecentres.
Strategy4.5:Investinlaborandtime-savingandproductivityenhancingtechnologiesfortasksperformedbywomen(e.g.weeding,foodprocessing,firewoodandwatercollection).
Strategy4.6:Providesupportandworkthroughwomen’sorganizations(e.g.PNGWiADF,WomeninBusiness,andtheProvincialCouncilofWomen.
Strategy4.7:Promoteawholeoffamilyapproachtogenderandmaleadvocacytoenhancewomen’sroleindecisionmakingrelatingtoagriculture,agribusinessandhouseholdnutrition.
Strategy4.8:Ensureagenderbalanceinagriculturetrainingandprovisionofextensionservices.
FoodSecurityGovernance Strategy5.1:Strengthenpublic-privatesectorgovernancesystemsandarrangementstoenhanceprivatesectorroleindecisionmakingtoenhance
27
ActionArea:Governance,coordination,monitoringandcommunication.
Outcome5:Successfulimplementationoffoodsecuritypolicyandprogramsatnational,provincial,districtandlocallevelsKeystakeholdersfordeliveringthisoutcome:DAL;MOH;DNPM;NationalStatisticsOffice(NSO)DepartmentofProvincialandLocalGovernmentAffairs,WardDevelopmentCommittees.NationalResearchInstitute(NRI);InstituteofNationalAffairs(INA)
developmentoffoodvaluechainsandthefoodeconomymorebroadly.
Strategy5.2:Strengthenthegovernanceandcoordinatingstructureessentialforeffectivemulti-sectoralfoodsecuritypolicyoversight,implementation,monitoringandresponseatnational,provincialanddistrictlevels).
Strategy5.3:Reviewinstitutional/humanresourceneedstoeffectivelyimplementthefoodsecuritypolicy,andwhereneededensuredesignatedfoodrelatedpositionsareestablishedandadequatelyresourcedateachlevel.
Strategy5.4:Providetrainingandadvocacyonrolesandresponsibilitiesofstakeholdersintheeffectiveimplementationofthefoodsecuritypolicy.
Strategy5.5:Buildacriticalmassofhumancapabilitytogetherwithappropriateresourcestoeffectivelycollect,integrate,analyzeandreportcredible(genderdisaggregated)foodandnutritionstatisticsinatimelyway.
Strategy5.6:Continuetoimprovestandardizationofapproachesandindicatorsusedinthemultiplenationalsurveyswhichcollectinformationrelevanttofoodandnutritionsecurity(e.g.PopulationCensus,HIES,SurveyofLivingStandards,DemographicHealthSurveys,NutritionSurveysetc.).
Strategy5.7:Strengthenthefoodsecuritydatamanagement,informationandcommunicationsystemsincludingappropriateintegratedinformationmanagementsystemsinpublicandprivatesectors.
Strategy5.8:Supportthestrengtheningandtimelydistributionofdemand-drivenfood,nutritionandfoodvaluechaininformationproducts.
28
2.
SummaryM&EMatrixfortheFoodSecurityPolicy
Results
Indicator
Target
2027
Baseline
Source
Impact:Be
tternutritiona
lhea
lthstatus
forP
apua
New
Guine
ans,
particu
larly
vulne
rablegrou
ps
andindividu
als
PrevalenceofStuntinginchildren≤5
PrevalenceofUnderw
eightinchildren≤5
PrevalenceofWastinginChildren≤5
Prevalenceofoverw
eightinAdults(BMI25-29.9)
PrevalenceofAnemia(Hb˂11.0g/l)inchildren≤5
PrevalenceofAnemia(Hb˂12.0g/l)inwomenof
reproductiveage
Moderate≤30%
Moderate˂10%
Moderate≤2%
≤20%
≤25%
≤15%
48%(2010)
27%(2010)
16%(2010)
169%(m
en˃18
years),17.4%
(women15-49)
48%(2005)
26%(2005)
NNS,HIS,HIES
NNS,HIS,HIES
NNS,HIS,HIES
NNPindicators
NNS
NNS
Outcome1:Localnutritiousfo
od
prod
uctio
nincrea
sedan
dprod
ucersb
etterlinked
throug
hefficientvalue
chains
toprofitab
lem
arkets.
Compositestaplefoodproductionindex
Yield/haofmainstaplefoodcrops
Diversificationofcropsgrownonfarm
s
Aquacultureproduction
Livestocknumbers
Ratio:food&beverageimports/totalim
ports
CPIAnnualAverageFoodInflation
Increase70%from
(2000level=100)
increased
Increased
Tobedeterm
ined
Increasedby20%
≤11%
≤3%
4.5m
illionM
t(2000)
10.5%(2014)
AgricultureSurvey
DAL/NSO
DAL/NARI
DAL/NARI
NFA
DAL/NARI
Tradestats.
NSOCPI
Outcome2:Enh
ancedstab
ilityand
resilienceinfo
odprodu
ction
andsupp
ly.
Proportionoftotallandunderforest
Incidenceandgeospatialdistributionofendemicand
foreignpests,diseasesandinvasivespeciesincursions
Cerealim
portdependencyratio
Disaster-relateddamagesandlossesinfoodand
agriculturesectors.
72%
Reduced
Reduced
Reduced
71.7%(2014)
MTDP2(Table4.2)
NAQIA
Outcome3:Vulne
rableho
useh
oldsand
individu
alsc
onsuminga
healthyba
lanced
nutritious
diet
Shareofenergycomingfromprotein,fatand
carbohydrateintotaldietaryenergy
Ave.foodproteinconsumption(g/kgbody
weight/day)
Amountofproteinindietsuppliedfromdomestic
anim
al(includingfish)sources
Averagepercapitaconsumptionofrice
Amounts(numberofdailyservings)offruitand
vegetablesindiets
Householddietarydiversityscore
Protein10-15%;fat15-
30%;carbohydrates55-
75%
≥0.8g
Increased
≤30kg
Increased(WHO
recommended6)
≥5for≥50%population
22kg(2014)
HIES
HIES
Tradestats,DAL,
PopulationCensus
STEPSSurvey
DietarySurvey(24
hourrecall)
29
Outcome4:Sustaina
bleincome
gene
ratin
gop
portun
itiesfo
rwom
enin
crea
sedtoenh
ance
econ
omicaccessto
nutritious
food
forchildrenan
dfamilies.
Medianpercapitaruralincome
Women’sagriculturalassets
Women’sshareofhouseholdincome
Share(%)ofruralhouseholdexpenditureonfood
Childnutritionindicators
Increasedrelativeto
inflation
increased
increased
Reduced
Improved
HIES,CPI
HIES
HIES
HIES
NNS,HIES
Outcome5:Successfulimplem
entatio
nof
food
securitypo
licyan
dprog
rams.
Foodsecuritycoordinatingstructure
Foodsecuritym
edium-term
&annualfoodsecurity
implementationplansatnational,andprovinciallevels
Foodandnutritionsecuritydatacollectionand
managementsystem
Regularqualityreportsonfoodsecuritypolicy
implementation
Monitoringtargetsforoutcomes1-4
Unintendedimpactsofgenderfocusedprograms+ve
&-ve
Multi-sector
coordination
mechanismsfunctional
atnationalandsub-
nationallevels
Preparedinatim
ely
way
Inplaceandwell-
functioning
AnnualReport
producedand
distributed
≥75%achieved
Recorded-notarget
Dysfunctional
Nonprepared
Notavailableand
operating
Notprepared
DALreportsand
minutes
Availabilityofdata
DALreports
Monitoring&
EvaluationReports
Abbreviatio
ns:N
NS=NationalNutritionSurvey;HIS=HealthInform
ationSystem;HIES=HouseholdIncomeandExpenditureSurvey;NNP=NationalNutritionPolicy;
DAL=DepartmentofAgricultureandLivestock;NARI=NationalAgricultureResearchInstitute;NAQIA=NationalAgricultureQuarantineandInspectionAuthority;NFA=National
FisheriesAuthority;NSO=NationalStatisticsOffice;CPI=ConsumerPriceIndex;M
TDP2=M
ediumTerm
DevelopmentPlan2
Notes:Datafornutritionalstatusindicatorsofchildrenunder5reflectW
orldHealthOrganizationChildGrowthStandardsforclassificationofstunting,wastingandunderw
eightstatus.
Childrenareclassifiedasstunted,wastedandunderw
eightiftheirheight-to-ageZ-score,weight-to-heightZ-scoreandweight-to-ageZ-scorearebelow2respectively.8
Compositestaplefoodindexcomprisesallm
ainstaples(sweetpotato,banana,cassava,Co
locasia
taro,Chinesetaro,lesseryam(Dioscoreaesculenta),coconut,greateryam(D.
alata),sago,Irishpotato,taro(Alocasia),Queenslandarrowroot,taro(Am
orph
opha
llus),sw
amptaro,yam(D.num
mularia),aerialyam(D.bulbifera),rice,yam(D.
pentap
phylla).
9
Householddietarydiversityscore(HDDS)-thenumberofdifferentfoodgroupsconsumedoveragivenreferenceperiod(usually24hourrecall)canbem
easuredat
householdorindividuallevel.Tobetterreflectaqualitydiet,thenumberofdifferentfoodgroupsconsumediscalculated,ratherthanthenumberofdifferentfoods
consumed.Knowingthathouseholdsconsume,forexample,anaverageoffourdifferentfoodgroupsim
pliesthattheirdietsoffersomediversityinbothm
acro-and
8W
HOM
ulticentreGrowthReferenceStudyGroup(2006)WHOChildGrowthStandards:Length/height-for-age,weight-for-age,weight-for-length,weight-for-
heightandbodym
assindex-for-age:Methodsanddevelopment,Geneva:WorldHealthOrganization.
9 Source:BourkeandVlassak(2004)
32
micronutrients.Thisisamoremeaningfulindicatorthanknowingthathouseholdsconsumefourdifferentfoods,whichmightallbecereals.Thefollowingsetof12foodgroupsisusedtocalculatetheHDDS:Cereals;Fishandseafood;Rootandtubers;Pulses/legumes/nuts;Vegetables;Milkandmilkproducts;Fruits;Oil/fats;Meat,poultry,offal;Sugar/honey;Eggs;Miscellaneous.10
10SwindaleA,BilinskyP(2006)HouseholdDietaryDiversityScore(HDDS)forMeasurementofHouseholdFoodAccess:IndicatorGuide,USAID
33
3. FoodSecurityLandscape
BackgroundFoodsecurityremainsacrucialyetpoorlydefinedissueonPNG’sdevelopmentagenda.Ingeneral,thedatanecessarytoassessthefourdimensionsoffoodsecurity–availability,access,utilizationandstability–haseithernotbeensystematicallycollected,orwhereitisavailableitisnotbeingutilizedtoprovidetheevidencebaseforsounddecisionmaking.
Consequently,diametricallyconflictingpolicyperspectiveshavebeenarticulatedoverthepastyearsrangingfrom,“Thelong-termsustainabilityofnationalfoodsecurityisprecarious,onthepresenttrendofover-dependenceonimportedfood”11,to“FoodsecurityisgenerallygoodinmodernPNG.Thisisbecauseahighproportionofthepopulationisengagedinsubsistenceagriculture;mostpeoplehaveaccesstolandforfoodproduction;thereisadiversityofsubsistencefoodsources;andmostpeoplehaveaccesstocashincomewithwhichtobuyfoodwhensubsistencesuppliesareinadequate.”12
Afurthercloudedissueinpolicydiscussionsisthedistinctionbetweenfoodsecurityandnationalfoodself-sufficiency–i.e.theextenttowhichourcountrycanmeetitsownfoodneedsfromhome-grownproduction.Butfoodsecurityandfoodself-sufficiencyarenotsynonymous–acountrycanbeasubstantialimporteroffoodandenjoyahighleveloffoodsecurityprovidedithasmorethansufficientforeignreservestocoverthoseimportsandthatthefoodimportedissuitablynutritious,thereisaneffectivefooddistributionandmarketingsysteminplace,andpeoplecanaffordtobuyit.
Nevertheless,thecontinuingvolatilityinfoodcommoditypriceshascalledintoquestionthereliabilityoftheglobalfoodmarketandhasraisedimportantquestionsforfoodsecuritypolicy,including:
Ø Howmuchfooddoweneedtoproduceourselves?Ø Whatistheoptimumlevelofsustainablefoodself-sufficiency?Ø Howresilientisthenationalfoodeconomyanditsunderpinningsystems(includingtradedfood
commodities)?
Whatisclear,however,isthatintermsoffoodsecurityforPNGtheagriculturesectorhasspecialimportancebecauseitcontinuestobethemainsourceoffood,employmentandincomeforover85percentofthepopulation,whomainlyliveinruralareas.Therefore,agriculturalgrowth,includinggrowthindownstreamvaluechainsforagriculturalproducts,remainsoneofthebestwaystogenerateincomeforthepoorestinPNGwhoneedthemosthelpbuyingnutritiousfood.Moreover,becauseoftheprominentrolewomenplayinfoodproduction,agriculturecanprovideanimportantentry-pointforenhancingwomen’scontroloverresources,knowledgeandstatus;pluschildnutritionoutcomescanimprovealongwithwomen’sempowermentinhouseholdsandsocietythrough
11DAL(2000)TheNationalFoodSecurityPolicy2000–2010page22,DepartmentofAgricultureandLivestock,May2000.12BourkeRM(2001)AnoverviewofFoodSecurityinPNG,in:BourkeRM,AllenMG,andSalisburyJG(eds)FoodSecurityforPapuaNewGuinea.ProceedingsofthePapuaNewGuineaFoodandNutrition2000Conference,ACIARProceedingsNo.99AustralianCentreforInternationalAgriculturalResearch,Canberra.pp.5–14.
34
agriculture.Agriculturealsoprovidesasignificantamountoffoodtotownspeopleandearnsanimportantamountofforeignexchangefromcash-cropexports,thusenablingthenationtobetteraccessfoodimports.Insum,agriculturecaninfluencefoodsecurity,nutritionandhealththroughmultiplepathways(directandindirect),butonlyoneofthosepathwaysrelatestotheconsumptionofmorefood.13
Inlightoftheimportantroleagricultureprogramscanplayinimprovingfoodsecurityandhealthydiets,theDepartmentofAgricultureandLivestock(DAL)formulatedtheNationalFoodSecurityPolicy2000-2010.Thispolicyhadastrongemphasisonstrengtheningcapacitytoincreasedomesticfoodproduction,processingandmarketingtoreachahigherlevelofnationalfoodself-sufficiency.Additionally,thepolicyalsorecognizedthatfoodinsecurityisacomplexmulti-facetedissuethatmustbeaddressedthroughcoordinatedactionsacrossmanygovernmentdepartments(atnational,provincialandlocallevels)togetherwithnon-governmentandprivatesectoragents.Thepolicydocumentspecificallymentionededucation,nutritionandhealth,andenvironmentinteractionswithfoodsecurityandtheneedforstrengthenedroadandtransportinfrastructure.TheNFSP2000-2010complementedbythe1995NationalNutritionPolicyreplacedthe1978NationalFoodandNutritionPolicy.CurrentlytheHealthDepartmenthasledthedraftingofanewNationalNutritionPolicy2015-2024andaNationalFoodSafetyPolicy.OnceadoptedthesepoliciestogetherwiththenewFoodSecurityPolicywillprovidetheframeworkforstrengthenedfoodandnutritionsecurityinPNGgoingforward.
DevelopmentofthisnewNFSPhasbenefitedfromreviewsoftheearlierfoodsecurityandnutritionpolicyframeworks.Akeyfindingisthatstrategicdecision-makingandimprovedpolicyimplementationforfoodandnutritionsecurityarecriticallyconstrainedbyalackofco-ordinationbetweenpublicsectoragenciesandbetweenthepublicandprivatesectors.Therefore,thefirstandperhapsmostimportantsteptowardsencouraginggreaterinvestmentinimprovedfoodand
nutritionsecuritybyboththepublicandprivatesector,istheeffectiveco-ordinationof
stakeholders,andtheirclearcommunicationofpolicyneedsandobjectives.Thisisparticularlyimportantinthecontextoflinkingprivatesector,locallevel,districtandprovincialneedsandplanningprocessesintothenationalpolicyimplementationframework.
Additionally,gainingabetterunderstandingofthesocio-cultural(includinggender)reasonsforfoodsecurityandnutritionissuesisalsovitaltounderstandingthecurrentsituationanddevelopingappropriatepolicyandinstitutionalsettingsthatwillhelppoorandvulnerablecommunitiesstrengthenlocalfoodsystems,managechangingfoodpricesandmakeimprovementsinthenutritionalvalueoftheirdiets.
Malnutrition FoodsecurityunderpinsallotherdevelopmentandtheConstitutionoftheIndependentStateofPapuaNewGuinea,underNationalGoalsandDirectivePrinciples1–IntegralHumanDevelopment,callsforimprovementinthelevelofnutritionandthestandardofpublichealthtoenableourpeopletoattain
13WebbP(2013)ImpactPathwaysfromAgriculturalResearchtoimprovedNutritionandHealth:LiteratureAnalysisandResearchPriorities,FoodandAgricultureOrganization(FAO),Rome
35
selffulfilment.However,some40yearssincetheadoptionoftheConstitution,therecentlydraftedNationalNutritionPolicy2015-2024statesthattheproblemofmalnutritioncontinuestobeasignificantimpedimentinthehealth,socialandeconomicdevelopmentofPapuaNewGuinea.14
Analysisofdatapertainingtomalnutritioninchildrenaged5oryoungerfromthelatestnationalrepresentativesurvey,thePNGHouseholdIncomeandExpenditureSurvey(HIES)2009-2010,indicatesthatmalnutritioninPNGremainsprevalentandsevere,andvariesacrosstheregions.Theoverallstunting,underweightandwastingratesarehigh,48.2percent,27.2percentand16.2percent,respectively(Figure1).Notonlyaretheoverallrateshigh;theseverecasesamongthestunted,underweightandwastedchildrenarealsohighataround50percentineachcategory.ThestuntingrateintheHighlandsregionisveryhighat58percentwhilsttheIslandsRegionhasthelowestrateat39.1percent.Incontrasttothedistributionofstuntingrate,theprevalenceofwasting(at19.3percent)andunderweight(at31.2percent)arehighestamongtheIslandsRegion(Figure2).TheHIES2009-2010dataindicatesimilarfindingsforprevalenceofstuntingtotheNationalNutritionSurvey1982-83andtheNationalNutritionSurvey2005.15161718Butthenationalprevalenceofunderweight,wastingandalsooverweightappearstobeincreasing(Figure1).
Source:NSO2009-2010HIESSummaryReport;WHOLandscapeInformationSystemCountryProfile:PapuaNewGuinea(http://apps.who.int/nutrition/landscape/report.aspx?iso=pngaccessed6/7/15)
14DepartmentofHealth(2015)PapuaNewGuineaNationalNutritionPolicy:2015-2014,FinalDraftMarch2015,NationalDepartmentsofHealth,AgricultureandLivestock,Education,CommunityDevelopment,NationalPlanningandMonitoring,pg.715NationalStatisticsOffice,2009-2010PapuaNewGuineaHouseholdIncomeandExpenditureSurvey,SummaryTables(Tables5.14&5.15)16DepartmentofHealthofPapuaNewGuinea(2011)NationalNutritionSurveyPapuaNewGuinea,2005;PacificJournalOfMedicalSciences:Vol.8,No.2,SpecialIssueMay201117WHO(2014)Globaldatabaseonchildgrowthandnutrition,dataforPapaNewGuinea,WorldHealthOrganization16August201418HouX(2015)StagnantStuntingRateDespiteRapidEconomicGrowthinPapuaNewGuinea,FactorsCorrelatedwithMalnutritionamongChildrenunderFive,PolicyResearchWorkingPaper7301,WorldBankHealthNutritionandPopulationGlobalPracticeGroup,June2015
0
10
20
30
40
50
60
1982-83 2005 2009-2010
Prevalen
ce%
Figure1:PrevalenceofChildMalnutritioninPNG;under5yearsanthropometry
underweight(WAZ˂-2)
stunting(HAZ˂-2)
wasting(WHZ˂-2)
overweight(WHZ˃+2)
36
Note:ThedatainFigures1&2reflecttheWorldHealthOrganizationChildGrowthStandardsfortheclassificationofstunting,wastingandunderweightstatus.Childrenareclassifiedasstunted,wastedandunderweightiftheirheight-to-ageZ-score,weight-to-heightZ-scoreandweight-to-ageZ-scorearebelow-2respectively;childrenareclassifiedasoverweightiftheirweight-to-heightZ-scoreareabove+2.19
Source:NSO2009-2010HIESSummaryReport,Table5.14
ThesefindingsimplythatmalnutritioninPNGisnotimprovingdespitethecountryhavingwitnessedstrongeconomicgrowthoverthelastdecade.Furthermore,whilsthigherlevelsofmalnutritionareevidentamongpoorerhouseholds(55percent)evenricherhouseholds,withanticipatedlessfoodaccessproblems,experiencerelativelyhighlevelsofmalnutritionwith36percentofchildreninhouseholdsfromhighestincomequintilereportedstunted.Butdespitetheseeminglyweaklinkagebetweeneconomicgrowthandchildunder-nutritionatthemacrolevel,analysiscarriedoutbytheWorldBankHealthNutritionandPopulationGlobalPracticeGroupshowsthatathouseholdlevelfamilywealthandgeographiclocationaresignificantfactorsassociatedwiththestuntingratewithchildrenfrompoorerfamiliesbeingsignificantlymorelikelytobestunted.Inaddition,qualityoffood(forexample,intakeofprotein)andthehistoryofincidenceofmalariaarehighlycorrelatedwiththelikelihoodofstunting.Theevidencealsosuggeststhatwomenlackknowledgeofqualityfeedingfortheirchildrenevenamongbetter-offhouseholdsandthathighfertilityrateandclosebirthgapsalsomakeitdifficulttogiveinfantssufficientexclusivebreastfeedinginthefirstsixmonths.20
PapuaNewGuineadisplaysanenormousdiversityinitsgeography,ecologyandhumanbiology;thediversityofthelandscape,andagricultureandculturalpracticesresultinwidedifferencesinthenutritionoutcomesamongtheregions.ThePapuaNewGuineaNationalNutritionSurvey1982/83foundgreatvariationintheextentofprotein-energymalnutrition(PEM)amongchildrenunder5yearsbetweendifferentregions.
19WHOMulticentreGrowthReferenceStudyGroup(2006)WHOChildGrowthStandards:Length/height-for-age,weight-for-age,weight-for-length,weight-for-heightandbodymassindex-for-age:Methodsanddevelopment,Geneva:WorldHealthOrganization20HouX(2015)OptCit.
010203040506070
National Southern Highlands Momase Islands
Prevalen
ce%
Figure2:Prevalenceofunderweight,stuntingandwastingbyregions
underweight(WAZ˂-2) stunting(HAZ˂-2) wasting(WHZ˂-2)
37
Unfortunately,thereislimitedpopulationbaseddataonmicronutrientdeficiencyinPNG;neitherthe1982/83nutritionsurveynorthe1996householdconsumptionsurveylookedatmicronutrientdeficienciesinPNG.The2005NationalNutritionSurvey(NNS)providesthelatestandmostcomprehensiveinformationwhichfoundmicronutrientdeficienciestobeprevalentinlocalandselectedpopulationsacrossthecountry,butthattherewereconsiderabledifferencesintheprevalenceofmicronutrientdeficienciesanddiseaseburdensbetweenregionsandevenbetweendistricts.Asignificantlackofdietarydiversityleadstomicronutrientdeficiencies.Themostseriousdeficienciesrelatetothelowintakeofiron,folicacid,iodineandzinc,whichcanpresentsignificantpublichealthproblemsamongchildrenunderfiveandwomenofreproductiveage.
Source:PNGNationalNutritionSurvey2005
Almosthalfthechildrenincludedinthe2005surveywereanemicandoveronethirdofnon-pregnantwomenofchildbearingagewereanemic;ruralwomenwerealmosttwiceaslikelytobeanemiccomparedtourbanwomen.Amongmen(18yearsandolder)26.3percentwereanemicwithruralmenhavingsignificantlyhigherprevalenceofanemia(Figure3).Nationallyirondeficiencyaccountsforalmost50percentoftheanemiaamongchildrenunderfive,withMomaseandtheSouthernregionshavingthehighestprevalence.Generally,acrossPNGthesurveyfoundvitaminAdeficiencytobeamoderateproblem,butwassevereinMomase.TheprevalenceofbothanemiaandvitaminAdeficiencyaresignificantlyassociatedwithmalarialinfections.
AnalysisofnutritiondatahasledresearcherstoconcludethatadequatenutritionofchildreninPNGiscloselyassociatedwiththefoodproductionsystemswheretheyliveandbydifferencesindiet.Mostofthefactorsassociatedwithchildgrowthcanberelatedinoneformoranothertodifferencesinlocal
National Southern Highlands Momase IslandsChildren(6-59months) 48.1 55.6 24.3 67.5 49.8
women(non-pregnant) 35.7 44.2 12.2 59.8 46.3
men(18years&older) 26.3 32.6 8.3 46.4 30.3
01020304050607080
Prevalen
ce%
Figure3:PrevalenceofanemiaacrossregionsofPNG(2005survey)
38
subsistenceagriculturemakingagricultureoneofthemaindeterminantsofchildgrowthandnutritionpatternsinPNG.2122
WhileoverallfoodavailabilityisconsideredgenerallygoodinPNG,foodsecurityproblemsarisethroughqualityandnutritionalvarietyconstraintsandavailabilityofproteininthediet.Generallylowruralincomesmeanthatthereislimitedopportunityforimportsandhigh-proteinlocalproduce(mainlyofanimalorigin)tocontributetodietaryvariation.23Consequently,proteinintakeisrelativelylowcomparedtotheglobalaveragewhichsignalstheneedtoincreaseavailabilityandaccesstonutrientdense/proteinrichfoodssuchfish,animalmeats,eggsandlegumepulses.Clearly,enlargementofan
affordablenutritiousfoodbasketinadditiontoincreasingstaplefoodproductionisneededto
improvethefoodandnutritionsituationinPNG.
Whilstunder-nutritionremainsacriticalchallenge,overweightandobesityisashighas25percentamongadultsinsomecommunitieswhichisasignificantriskfactorfortheincreaseinlifestylerelatednon-communicablediseases.24Datafromthe2005NNSshowsthatoverweightmenandwomenweremostprevalentinSouthernRegion(includingPortMoresby)andinurbanareas.TheWHOestimatesthatNCDscurrentlyaccountforabout42percentoftotaldeathsinPNG(Figure4).ThelatestWHOSTEPSsurvey(2007-2008)foundahighrateofundiagnoseddiabeteswiththepotentialtocauseahugeburdenofmorbidityandmortality.Furthermore,childrenwhowerestuntedintheirearlyyearsfaceanincreasedriskofbecomingoverweightlaterinlife.25Improvingtheavailabilityoflowercost,
nutritionallysuperiorandlocalfoodproductswillbeacriticalstrategytoimprovingdiets,health
andfoodsecurityinPNG.
21MuellerI,Smith,TA(1999).PatternsofchildgrowthinPapuaNewGuineaandtheirrelationtoenvironmental,dietaryandsocioeconomicfactors–furtheranalysesofthe1982–1983PapuaNewGuineaNationalNutritionSurvey.PapuaNewGuineaMedicalJournal42(3–4):94–113,citedinRMBourkeandTHarwood(2009)pg.46422AllenB(2009)Part6:AgriculturalDevelopment,PoliciesandGovernance,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra.23OmotN(2012)FoodSecurityinPapuaNewGuinea,in:TempletonD.(ed.)FoodsecurityinEastTimor,PapuaNewGuineaandPacificislandcountriesandterritories.ACIARTechnicalReportsNo.80.AustralianCentreforInternationalAgriculturalResearch:Canberra.53pp.24PapuaNewGuineaNationalNutritionPolicy2015-2024,FinalDraftMarch201525GillespieS,HaddadL(2001)AttackingthedoubleburdenofmalnutritioninAsiaandthePacific,AsianDevelopmentBank,Manila,PhilippinesandtheInternationalFoodPolicyResearchInstitute,WashingtonDC,UnitedStates
39
Source:WHONon-CommunicableDiseases(NCD)CountryProfiles,2014(*NB.PNGmortalityrateshaveahighdegreeofuncertainty)Whilefoodpreferencesareimportantindietarychoices,priceandfoodavailabilityarethedrivingfactorsinfoodconsumptionpatterns.Therefore,poordietisnotsimplyahealthissuesbutaneconomicone.Householdsmakeeconomicallyrational,butsometimesnutritionallydetrimentaldecisionstoconsumecertainfoods,becauseoftherelativepricedifferencebetweennutritiousfoodandlesshealthyalternatives.
ToaddressmalnutritioninPNGagriculturalpolicies,projects,andinvestmentsneedtobedesigned
andimplementedtoachieveclearnutritiongoals.Policiesthataffectthepriceoffoodbyfacilitating
investmentinimprovingagriculturalproductionefficienciesandpublicinvestmentsinroadsandports
thatsupportimprovedlogisticsandlowerunitcostsforfooddistributionshouldbeprioritized.However,internationalexperiencehasshownthatagriculturalinterventionsthataimtoimproveproductivityandincometendtobemoresuccessfulinimprovingnutritionstatusofchildrenwhentheyalsoincludeanutritioneducationcomponent.26Additionally,policiesthatincentivizehealthierfoodchoicesshouldalsobeconsidered.Aclearaimofthisnewfoodsecuritypolicyshallbetomakeagricultureworkforbetternutritionandamoreproductiveandfunctionalfoodeconomy.
Furthermore,recognizingthattheextentofmalnutritionvariesenormouslyacrossdifferentlocationsandthatitcannotbeassumedthattheproblemscausingmalnutritioninonecommunityarethesameasthosecausingitinnearbyareas-farmingsystemsdiffer,accesstocashdiffers,infrastructureandhealthandeducationservicesdiffer,andcustomsrelatingtofoodandhealthdiffer.Consequently,effectiveprogramsandprojectswillneedtobelocationspecific,designedtomeetthespecificneeds
ofparticularregions,areasordistricts.27Moreover,acknowledgingresourceconstraints(bothhuman
andfinancial)meansthatprogramresponseswillneedtobenutritionfocusedandtargetedtothose
areasingreatestneed.
26HouX(2015)OptCit.27MarksG,FeredayNS(1992)SummaryofProceedingsPapuaNewGuineaNationalNutritionPolicyWorkshop,PapuaNewGuineaNationalNutritionPolicyWorkshop,InstituteofNationalAffairs,DiscussionPaperNo.54
Injuries10%
Communicable,maternal,
perinatalandnutritionalconditions
48%Cardiovascular
diseases8%
Cancers9%
Chronicrespiratorydiseases
6%
Diabetes6%
otherNCDs13%
Figure4:Proportionalmortality(%oftoaldeaths,allages,bothsexes)*
40
Accesstonutritiousfoodisessentialtogoodhealth,butnationalfoodsecuritypolicymustalsorecognizethedistinctionbetweenfoodinsecurityandmalnutrition.Whilefoodinsecurityisoneoftheunderlyingcausesofmalnutritionotherfactors,suchasdiseases,poorhealthandchildcare,lackofsafewaterandimprovedsanitation,hygieneandhousing,arealsocriticalcausalfactors(Figure5).Infrastructureisparticularlylacking:only40percentofpopulationhaveaccesstoanimproveddrinkingwatersourceand19percentareusinganimprovedsanitationfacility.Eightypercentofurbanhouseholdslackaccesstolatrines,94percentofallcitiesandtownsareunsewered,and80percentofallseweragegeneratedisdischargeduntreated.Furthermore,alargepartofthecountry’sruralroadsnetworkisinapoorconditionimpactingadverselyonaccesstohealthcentresandschools.28Thefoodandnutritionsecuritysituationisalsocompoundedbyagenerallackofknowledgeathouseholdlevelongoodnutritionandfeedingpracticeswhichiscomplicatedalsobyculturalbeliefsandtaboos.
Figure5:ConceptualFrameworkofFoodandNutritionSecurity
Adaptedfrom:AcademyofNutrition&Dietetics,2013
PNGwomenareatthenexusofagriculture,nutrition,andhealth.Assmallholderfarmersandcaretakersofchildrentheymakedailyfoodproductionandconsumptiondecisionsfortheirfamilies.Theyarealso
28Datasources:WHOLandscapeInformationSystemCountryProfile:PapuaNewGuinea(http://apps.who.int/nutrition/landscape/report.aspx?iso=pngaccessed6/7/15);ADB(2015)CountryStrategyPaperPNG,AsianDevelopmentBank,March2015
ProductionPurchaseDonation
NutritionalStatus
FoodIntake
HealthStatus
Food,AvailabilityAccess,Stability
CaringCapacityUtilisation
HealthServices
Environmentalconditionswater,sanitation&
housing
FoodandNutritionSecurity
Manifestation
Immediatecauses
Underlyingcauses
FoodSecurity
41
muchmorelikelythanmentospendadditionalincomeonfoodandhealthcare,soincreasingwomen’sincomeislikelytohaveaproportionallygreaterimpactonchildren’shealthandnutritionthancomparableincreasesinmen’sincome.Giventhesignificanttimeconstraintsonwomen,interventionsthataffectwomen’stimeallocationcanhelpimprovetheirownnutritionaswellasthatoftheirchildren.
TheNationalHealthDepartmentisintroducingevidence-basednutritioninterventionsthroughnationalnutritionpolicyincludingstrategicactionsaimedatnutritionbehaviorchange,improvedbreastfeeding,andinfantandyoungchildfeedingpracticesandscalingupofcommunitymanagementofacutemalnutritionthroughsupplementaryandtherapeuticfeedingprogramsnationwideandtrainingoffamilyhealthpromotersonnutrition.
Globalexperienceindicatesthatotherkeyfactorsforimprovingnutritionthroughagricultural
investmentsincludeworkingwithwomenfarmers(toensuretheygainaccesstotechnologiesand
inputs),nutritioneducation,tailoringprojectstothespecificneedsofeachcommunity,andrigorous
monitoringandevaluation.
FoodAvailabilityAtthetimeofthe2011censustherewerealmost7.3millionmouthstofeedinPNG.Populationgrowthrateishighandaverageannualgrowthrateshavebeenincreasing(Figure6).Atanaverageannualgrowthrateofaround3percentthepopulationwilldoubleinjustover30years’timeimplyingatleastadoublinginthedemandforfood.TheestimatedarablelandareainPNGis44,438km2givinga‘physiological’densityof164personspersquarekilometer,anincreaseof78personsfrom86personsin2000.29 Landdegradationisbecomingamajorriskfactoraspopulationdensityincreases.
Source:NSO,NationalPopulation&HousingCensus2011ReportFigure1.1
29NSONationalPopulationandHousingCensus2011ReportTable1.2,pg.18
2.72.9
3.1
1.0
2.0
3.0
4.0
1980- 2000 1980- 2011 2000- 2011
Percent
Period
Figure6:Averageannualgrowthrates,PNG,1980,2000and2011Censuses
42
IntermsoflandpotentialsomedistrictsintheprovincesofMadang,Sandaun(WSepik),Enga,ENewBritain,MorobeandtheSouthernHighlandsareparticularlydistressed.30Locallyhighandgrowingpopulationdensitiesareplacingsomeagriculturalsystemsunderstressthroughreducedfallowperiodsandextendedintensifiedcroppingperiods.Agriculturalstressislikelytobeaprimarycauseofmalnutritionwhichinfluencessecondarycausessuchasdiseaseandpoverty.31
Increasingpopulationalsomeansincreasingdemandforimportedfood.However,amajorchallengeinanalyzingtrendsinfoodproductionandfoodimportstomeettherisingdemandisaccessingreliabledata.Dataiseitherabsentorweakandfrequentlythereareconflictingdatasetsrecordedbydifferentsources.Aparticularlychronicproblemisthelimitedavailabilityofsubsistenceproductiondatawhichmeansthataveryimportantpartofthecountry’sfoodsupplyispoorlyaccountedfor.Absenceofarecentagriculturecensus32andlackofaregularsupplyofdomesticmarketdataalsomakesitdifficulttoestimateaccuratelythesizeofthecommercialdomesticfoodproductionsector.Consequently,thenationhasnocrediblefoodbalancesheet.Tostrengthenfoodpolicyanalysisandformulation
improvingagriculturedatacollectionandsystematizationisthereforeahighpriorityneed.
Recognizingthatmanyaspectsofagricultureareinherentlydifficultandexpensivetomeasure,includingvaluationofsmallholderagriculturaloutputandfieldmeasurementsofcropyieldsandproduction,regularmonitoringoffood-relateddomesticmarketactivitywouldprovideausefulproxytomeasure
the‘pulse’offoodproductionandcommercializationandtheimpactofbothdomesticandexternal
factorsonthis.
Subsistencefoodproductionintraditionalfoodgardenstogetherwithsubsistenceandartisanalfishing33,huntingandfoodgatheringcontinuestobethefundamentalbasisoffoodsecurityinPapuaNewGuinea;providingresilienceagainstexternalshocks,eithereconomic(pricespikes,globalrecession)ornatural(cyclones,floods,droughts,pestsanddiseasesetc.).Forthelargemajorityofthepopulationsubsistencefoodproductionisbyfarthemostimportantsourceoffoodandagrowingportionofdomesticallygrownfoodsurplusisbeingmarketed(Figure7).Indeed,cashearnedfromsellingfreshfoodisexceededonlybycashearnedfromcoffeesales.Themostcommonlymarketedfreshfoodsaresweetpotato,otherrootcrops,corn,peanuts,greenvegetablessuchasaibika,cabbage,beansandamaranthus,fruitincludingpawpaw,pineapple,mangoandwatermelon,andnutssuchaskarukaand
30AllenB,BourkeRM,GibsonJ(2005)‘PoorruralplacesinPapuaNewGuinea,AsiaPacificViewpoint,24,2,Aug200531HideRL,AllenBJ,Bourke(1992)AgricultureandNutritioninPapuaNewGuinea:SomeIssues,PapuaNewGuineaNationalNutritionPolicyWorkshop,InstituteofNationalAffairsDiscussionPaperNo.5432Thelastnationalagriculturesurveywasundertakeninthe1961-62;mostrecentcredibleestimatesfornationalfoodcropproductionarefortheyear2000.33Traditionalfisheriesinvolvingfishinghouseholds(asopposedtocommercialcompanies),usingrelativelysmallamountofcapitalandenergy,relativelysmallfishingvessels(ifany),makingshortfishingtrips,closetoshore,mainlyforlocalconsumption(FAOdefinition).
43
galip.34Additionally,increasingamountsofdomestically-grownintroducedvegetablesarenowbeingsold.
Source:NSO,NationalPopulation&HousingCensus2011ReportTable6.1
Atthetimeofthe2011Censusgrowingfoodcrops,vegetablesandrootcropsandrearinglivestockwerethemainactivitiesthat74percentand44percentofhouseholdswereengagedin,respectively.Forthehouseholdsengagedingrowingfoodcrops,vegetablesandrootcrops,77percentdidsofortheirownconsumption.Clearly,PNG’sfoodsecurityremainsreliantontheabilityoftheruralcommunitytogrowsubsistencecropsandtomarketproducethatprovidethecashtopurchasefood.
Researchershaveestimatedthat83percentoffoodenergyand76percentofproteinconsumedinPNGin2006wasproducedinPNG.Thebalancewasimported(Figure8).Ingeneral,crop-basedenergyfoodsareconsumedinlargerquantitiesthananimaland/orplantprotein-basedfood.However,people’sdietsvaryacrossthecountry,particularlybetweenruralandurbanareas.Thebroadpatternisthatmostfoodenergyinruralareascomesfromrootcrops,bananaandsago,withcoconut,othernutsandgreenvegetablesmakingasmallbutsignificantcontributiontoenergyandagreatercontributiontotheintakeofothernutrients,particularlyprotein.35
Figure8:SourcesofdietaryenergyandproteinbymajorfoodgroupsinPNG,2006
34AllenM,BourkeRM,McGregorA(2009)Part5CashIncomefromAgriculture,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra.35Manygreenvegetablesusedtraditionallydonotconstitutestaplecrops,buttheyareveryimportantsupplementaryfoods,providingadditionalprotein,vitaminsandmineralsinthediet.Studiesofdietaryintakesuggestthatgreenvegetablescontributeatleast20-30%ofthedailyproteinintakeandsometimesmuchmoreaswellas4to6%ofthedailyenergyintakeinthehighlands.
73.9
44.3
24.6
19.3
22.6
33.5
39.4
26
77.4
66.5
60.6
74
0 10 20 30 40 50 60 70 80 90
Food,vegetables&rootcrops
Livestock
Poultry
Fishing
percent
Figure7:HouseholdsagriculturalactivitiesinPNG,2011Census
Ownuse Cash Engaged
44
Source: Bourke and Harwood (2009) Table 2.1.2 pg.133
Urbanpeopleconsumemorerice,wheat-basedfoods,softdrinkandbeer,andlessrootcropsandbanana.ButsweetpotatoremainsbyfarthemostimportantstaplefoodinPNG.Itprovidesaroundtwo-thirdsofthefoodenergyfromlocallygrownfoodcropsandisanimportantfoodfor65%ofruralvillagers.Annualproductionofsweetpotatowasestimatedatabout2.9milliontonnesin200036Regardingstaplefoodofplantoriginalone,itwasestimatedthat15yearsagoPNGproducedannuallyabout4.5milliontonnesandimportsannuallyanaverageof0.3milliontonnes.3738Unfortunately,up-to-datereliableestimatesoffoodproductionarenotavailable.
Anoverallproxyindicatorofacountry’sself-sufficiencyinfoodistheleveloffoodimportsasaproportionoftotalimports.Acountrywherefoodimportsmadeuponlyasmallproportionoftotalimportswouldbedeemedtobemorefoodself-sufficient.FoodimportsintoPNGaccountforonlyabout10.5%oftotalimports–whichisverylowbydevelopingcountrystandardsandthelowestinthePacificislandsregion(seeTable1).
Table1:PNGFoodandLiveAnimalasaproportionoftotalimports
2010 2011 2012 2013 AverageTotalmerchandizeimportsFOBPNGKmillions
9,576.2 10,033.5 9,911.8 12,141.8 10,415.8
Food&liveanimals
1,111,3 1,119.1 970.5 1,146.6 1,086.9
36BourkeRMetal(2009)FoodinPapuaNewGuinea:Part1AnOverview,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra.37BourkeRM,VlassakV(2004).EstimatesoffoodcropproductioninPapuaNewGuinea.LandManagementGroup,ResearchSchoolofPacificandAsianStudies,theAustralianNationalUniversity,Canberra38Omot(2012)OptCit.
45
FOBPNGKmillionsF&LAas%ofTotalImports
11.6% 11.1% 9.8% 9.4% 10.5%
Sourceofdata:BankofPNGQuarterlyEconomicBulletin,DecemberQuarter,2014
Riceisthelargestvaluefoodcommodityimport;in2012riceimportshadaCIFvalueofUS$218m(approx.PGK440m39)andrepresented2.6percentoftotalimports.40Butintermsofvolumewheatimportshavenowovertakenrice.Thelong-termtrendinnationalriceandwheatimportsisshowninFigure9.
Source:indexmundi;UnitedStatesDepartmentofAgricultureWhilsttherehasbeenasteadilyincreasingtrendinriceimports,takingintoaccountpopulationgrowththepercapitaconsumptionseemstohaveplateaued.Since1990theimportsofricehaveaveragedabout180,000tonnesperyear,in2013,170,000tonnesofricewereimported.ThelargepeakinriceimportsshowninFigure5isaconsequenceoftheseveredroughtexperiencedinthecountryin1997.
Table2:Trendinpercapitaconsumptionofimportedrice
Year EstimatedPopulation(million)
Riceimports(Kgmillions)
Estimatedpercapitaconsumption(kgimportedrice)
1981 3.0 104 351991 3.6 150 422001 5.2 150 292011 7.3 160 22
392012inter-bankmid-yearrate40UNComtradePapuaNewGuinea2013TradeProfile
0
50
100
150
200
250
300
350
400
1963
1966
1969
1972
1975
1978
1981
1984
1987
1990
1993
1996
1999
2002
2005
2008
2011
Volumetonn
es'000s
Figure9:TrendinPNGriceandwheatimports
wheat
rice
46
Theslowinginricedemandhasbeendescribedasa‘maturation’ofthericemarketinPNG.4142Nevertheless,riceremainsimportantforfoodsecurity,particularlyinurbanareasandattimesofnationaldisasterssuchasthe1997drought.Thefavorablepricecomparisonofricewithotherstaples(onanenergyperkgbasis–Figure10),togetherwithitsgoodtransportabilityandstoragequalitiesandconvenienceinpreparationwillcontinuetomakeitapopularchoiceinPNGhousehold’sfoodbasket.
Source:Omot(2010),citedinOmot(2012)
Note:thepriceisbasedonfoodenergycontent.Thepriceforeachfoodwasconvertedtothericeequivalentusingtheenergycontentofeachfood,becausefoodssuchasbanana,taro,yam,sweetpotatoandcassavahavehighmoisturecontent,whilerice,flourandsagohavelowmoisturecontentandpricesmaynotbedirectlycomparableifusingthegivenmarketprices.
Localstaplesinurbanareasaregenerallyconsiderablymoreexpensivethaninruralareas.Sowhenruraldwellersmovetourbanareasthereisreductionintheconsumptionoflocalstaplesandanincreaseinriceconsumption.However,Gibson(1995)assertsthatlowconsumptionoflocalstaplesinurbanareasisduemoretohighpricesthanconsumerpreferences.43Thereforeakeypolicyimperativeistoget
localstapleproductsintodomesticurbanmarketsatcompetitiveprices.
Recentreliableestimatesfordomesticriceproductionarehardtocomeby.Domesticriceproductionwasestimatedtohavebeenintherange60–2,200tonnesovertheperiod1962to2000.44Currentindustryestimates45arethatlocalannualproductionisabout30,000tonnes,whilstDALestimatesof15,000tonnes46arealittlehigherthanNARIresearcher’sestimateofabout10,000tonnes.47Ifan
41GibsonJ(2001)RicedemandinPapuaNewGuinea,PacificEconomicBulletin16(2):27-3542BourkeRMetal(2009)Part2FoodProduction,ConsumptionandImports,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra.43GibsonJ(1995)FoodConsumptionandFoodPolicyinPapuaNewGuinea,InstituteofNationalAffairsDiscussionPaperNo.6544BourkeRMetal(2009)OptCit.45BusinessAdvantagePNG3June2015,Trukai’sCEOestimatescurrentlocalriceproductionof30,000tonnes46DAL(2015)PapuaNewGuineaNationalRicePolicy2015-2013,pg.4747LarakiJ()RiceResearchandDevelopment,NARI
8.017.2
6.31
4.463.95 3.65 3.39
2.71
0123456789
Banana Taro Yam Potato Rice Sago Flour SweetPotato
Estimated
price(P
NGK/kg)
Figure10:Estimatedprice(PNGK/kg)ofstaplefoodsinLaein2008
47
optimisticcurrentlocalproductionof30,000tonnesisaddedtotheimportsof170,000tonnesin2013,thecurrentpercapitaconsumptionwouldbeabout26kgwhichisalittlelowerthantheconsumptionof29kgpercapitaestimatedfor2001(Table2).However,consumptionlevelsarenotevenacrossthecountrywithsignificantlymorericeconsumedbyurbandwellers,beingpossibly30kghigherthanthenationalaverage(i.e.50–60kg/capita/annum).48
Riceproductionisimportantforthenation’sfoodsecurity,butexpansioninproductionmustbe
producerdrivenbasedonhouseholdconsumptionneeds(e.g.themountaincommunitiesinlandofFinschhafeninMorobeProvince,whereaccessisdifficult,importedriceisexpensiveandcoffeeiscostlytomarket),49oronfullcommercialviabilityofthericeproductionsystem.
Figure11:TrendsinGlobalRiceTrade(source:InternationalRiceResearchInstitute)
Intheinternationalarenamostriceisconsumedwhereitisproducedwithlessthan10percentofworldproductionbeingtradedontheglobalmarket(Figure11).Thiscangiveriseto“thinness”intheworldricemarketsthatmaycontributetopricesurges.Governmentrestrictionsonriceexportspracticedinsomecountriesalsoexacerbatesscarcityandpushesupprices.Thissituationdecreasesconfidenceintheglobalmarketsupplyofriceandinvigoratesnationalimportsubstitutionpolicies.Sincethe2007-08ricecrisis,manyrice-consumingcountrieshavebeenreluctanttodependonimportedriceandhaverolledoutmeasurestoimproveself-sufficiencythroughprogramstoexpandtheirriceproductionandreducetheirdependenceonforeignrice.50Consequently,thePNGGovernment’slong-termpolicyforriceremainstostrengthennationalself-sufficiency.51Asthebiggestpercapitariceconsumptionisinurbanareas,andthepooresthouseholdspendthehighestproportionoftheirbudgetonfood,keepingthepriceofriceaslowaspossibleisacriticalfactorfortheirfoodsecurity.
48GibsonJ(2001)OptCit.49BourkeRMetal(2009)OptCit.50MohantyS(2015)TrendsinGlobalRiceTrade,InternationalRiceResearchInstitute51DAL(2015)OptCit.
48
However,intermsofnutritionsecurity,thereisamorepressingneedforsupporttoenhance
productivityandsustainabilityofsmallholderfarmingsystemsforthetraditionalstaplesandnutrient
rich(particularlyprotein)foods-including,legumes,smalllivestockandaquaculturefish.Enhancing
competivenessandfunctionofvaluechainsfordomesticallyproducedproteinrichfoodswillalsobe
criticalforlivelihoodsandfoodsecurity.
Livestockmakesasignificantcontributiontothelivelihoodsandhealthofmorethan600,000smallholderfarmersinPNGmainlythroughsubsistenceandsmallscalecommercialproductionofpigsandpoultry.Smallruminants(goats&sheep),cattleandinlandaquaculturecanalsoplayanincreasingroleinthissector.However,thefoodsecurityandeconomicbenefitsfromtheselivestockenterprisesareconstrainedbyalackoflivestockhealthservicesandpoormanagementpractices.Inadequatehousingandnutrition,poorreproduction,highmortalityofyoungstockandpooraccesstoemergingurbanmarketsareconsistentissuesrestrictingproductivity.CompoundingthesituationaretheeffectsofHIV/AIDSonthelabourmarketandanincreasedsusceptibilitytocommonzoonoticconditions,thusaddingtothediseaseburdenoftuberculosisandmalariawithinsmallholderfarmingcommunities.52
SetagainstabackdropofhighcostoffuelandimportedfoodandcoupledwiththegrowingthreatofdiseaseintroductionthereisconsiderablepotentialforlivestocktomakeagreatercontributiontofoodsecurityandsustainablelivelihoodsinPNG.Keychallengesforlivestockdevelopmentarebuildinglocal
capacityinanimalhealthandproduction,developingcosteffectivelocalfeedsources,andimproving
hygieneandslaughteringfacilities.Otherlocalizedchallengestodevelopingcommerciallivestock
venturesarewaterandpowersupply,investmentforfencingandtheftofstock.
Withthemanykilometersofshorelineandlargelyunpollutedcoastalwatersaswellashighelevationlakesandstreams,PNGhasgoodpotentialfordevelopmentofaquacultureenterprises.Thereisalsogoodpotentialforsmallscalefishpondcultureunderappropriateextensionapproaches.Consequentlyaquacultureisslowlybeingdevelopedandiscurrentlyatthesubsistencetosemi-commerciallevel,particularlywheresmallpondsaredugtofarmGIFTtilapia,carportrout.Estimatednumberofsmallaquaculturefarmsstandsataround100,000withmorethan80percentoftheselocatedintheHighlands.BarramundicagecultureisalsogainingmomentumintheFlyRiverareaandcagecultureofprawnsintheSepikRiver.Thereisscopeforexpandingcagecultureandinlandfishproduction,whichoffersagoodopportunityforsmall-businessinvolvement.Themajorconstrainttotheexpansionofaquacultureremainsthehighcostandavailabilityofimportedfeedformulationsandtheavailabilityoffingerlings.Aquacultureremainsanimportantcomponentinsustainablecoastalfisheries
managementprovidinganimportantsourceofproteinforthelocaldietwhilstrelievingthepressure
onlocalfisheryresources.
WhilesustainablefoodproductiontomeettheneedsofPNG’srapidlyincreasingpopulationwillrequiregreaterproductivityofexistingstaplefoodsandbettermanagementoflandresources,thekeystimulustoincreasefoodproductionandproductivitywillbeanincreasedmarketdemand.Forthistoberealizedimprovementindomesticandoverseasmarketlinkagesareneeded.Overthepastmuchfocusonagriculturedevelopmenthasbeenontheproductioncomponentofsupplysideissueswithoutsufficient52EnablingSmallholderLivestockServicesinPNGhttp://www.nari.org.pg/node/266
49
attentionpaidtohowthedownstreamcomponentsofthevaluechainwillassistthefarmertoaccessviablemarketsforthenewsurplus.Basically,ifafarmercannotgenerateworthwhilevaluefromsaleofsurplustohissubsistencerequirementswhygrowit?OfteninPNG,theincentivetogrowmorehasn’tbeentherebecausethevaluechainopportunitieshaven’tbeenavailabletofarmers.Intimesofastrongandsustainedvaluechaindemandfarmerswillmoreactivelyseekandadoptproductivityenhancingtechnologyandmanagementmethods.Functioningvaluechainssupportbetterlivelihoodssopoorhouseholdscangrowfoodandgenerateincometobuyaffordablefood,especiallyduringseasonalfoodshortages.
Butthecurrentcriticallackofeffectiveextensionandoutreachservicesmeansthatsmallholderfarmersandvaluechainparticipantsgenerallyhavelittleaccesstoinformation,newtechnologiesandimprovedplantingmaterialsresultinginlowfarmandvaluechainproductivity.Becauseofinformationasymmetries,fewfarmersandvaluechainparticipantshaveknowledgeaboutthequalityandstandardsrequirementsofhighervaluemarkets.Theseobstaclescoupledwithgeneralfarmremotenessandlackofaccessroadscontinuestoimpedemarketaccessandfarmcommercialization.Furthermore,facilitiesinurbanopenmarketsareoftenofpoorquality,withlackofshadeandpoorwaterandsanitationfacilities.Consequently,lossesinfoodchainsareexpectedtobehighandtherearepotentialpublichealthrisksfromfoodcontaminationandtransmissionoffoodbornedisease.53Addressingtheprincipalconstraintsinfoodproducevaluechainsincludingthelackofsectorcoordination,lackof
valuechainstandardsandthelackoffoodsafetystandardsarethereforepolicypriorities.Building
thecapacityforrobustdomesticvaluechainswillrequirecoordinatedinvestmentsinimproved
qualityproductiontogetherwithenhancedcapacityinvaluechaininfrastructure,processingand
marketing.Upgradingphysicalmarketplacesandfacilitieswillalsobenecessary.
Plantgeneticdiversityiscrucialtoimprovingproductivitybyprovidingfarmerswithavarietyofcrop
productionoptionstochoosetosuittheirparticularcircumstances. PNGisblessedwitharichdiversityofplantgeneticresources.Itisthecenteroforiginfor‘noblecane’(sugarcane)andwingedbeanandthesecondarycenterofdiversityforsweetpotato,taro,banana,yam,cassavaandaibika.Thediversityofthesecropsincludesmorethan1000sweetpotatovarieties,800taro,200banana,300yam,100cassavaand50aibika(islandcabbage)varieties.54ThebroadgeneticbaseoffoodcropscurrentlyavailableinPNGprovidesresilienceandtoleranceagainstmajorpestanddiseaseoutbreaksandwillprovidefarmerswithmoreoptionstomeetfuturethreatsandchallengesincludingthepotential impactsofclimatechange.Maintaining and utilizing this rich genetic pool for food crop improvement including increase
productivity,qualityandnutritionalvaluewillbevitaltoensuresustainablefoodsecurityinPNG.
Additionally,ensuringnationalbio-securityisalsoessentialtoprotectingbiodiversityandmaintaining
productivecapacityforfoodsecurityandtoprotectplant,animalandhumanhealth.Strengtheningandimprovingthecost-effectivenessofinternalcontrolsandregimestolimitspreadandcontrol
53PNGhassufferedfromseveralhigh-impactoutbreakswhichcanatleastpartiallybeattributedtofoodbornetransmission,suchascholerain2009-2011,whichledto1500+recordedcasesand500+deaths,andfrequentshigellosis(bacillarydysentery)outbreaks,whichledto1000+casesandatleast13deathsin2013(DraftNationalFoodSafetyPolicy2014-2024,pg.10)54FAO(2009)StateofPlantGeneticResourcesforFoodandAgriculture,PapuaNewGuineaCountryReport
50
endemicallyoccurringpestsanddiseases,andquarantineborderriskmanagementandcompliancemanagementcontrols,includingharmonizationofbiosecurityandcustomsclearancethrough‘singlewindow’processingintegration,ensuringthatimportandexportactivitiescomplywithinternationalquarantinestandardsanddomesticatingintoPNGlegislationinternationaltradeobligations,rulesandprocessesarethereforehighpriorities.Asisdevelopingcontingencyresponseplansforinvasivepestanddiseaseincursions.
UnderanappropriateimplementedpolicyframeworkPNG’ssubstantiallandandmarineresourcesandstrongagriculturalbaseretainasolidfoundationforfoodavailability,bothintermsofself-sufficiencyinproductionofstaplefoodsandalsointhecapacitytodevelopandgenerateexportearningsfromtheprimarysector(agriculture,forestryandfisheries).Additionally,PapuaNewGuineamineralresources(miningandpetroleum/gasproducts)considerablystrengthenthecounty’spotentialexportearningcapacityandthusthecountryfoodimportcapability.However,whilstavailabilityofsufficientfoodisclearlyanecessaryconditionforfoodsecurity,astheNobelprizewinnerAmartyaSeneloquentlystatesinhisclassicessayPovertyandFamines55,availabilityofenoughfoodintheaggregateisnotsufficientforfoodsecurity.Thereforethereisalsoaneedforapolicyfocusonaccess,whichreferstotheabilityofpeopletophysicallyobtainandeconomicallyprocurethebalancednutritiousdiettheyneed.
AccesstoNutritiousFoodPovertyandfoodsecurityareinextricablyinterlinked.Eveninruralsettings,thepoorestfarminghouseholdstendtoproducelessfoodthantheyconsumeandspendthelargestproportionoftheirincomeonfood,leavingthemvulnerabletohighfoodpricesanddeclinesinagriculturaloutput.The2009-10HIESdataindicatethatnearlyone-quarterofthepopulationsufferfoodpoverty(householdsconsuminglessthanthevalueof2200caloriesofmoderatenutritionalquality)and40percentofthepopulationconsumedlessthanaminimumbasketoffoodandothergoodsandservices.56Furthermore,povertyratevariesconsiderableacrossregionsandissignificantlymoreprevalentinruralareas.Withtheirgreaterpopulations,theHighlandsandruralMomaseaccountfor37.5percentand29.2percentofPNG’spoorhouseholds,respectively.Only8.5percentofthepoorpopulationlivesinurbanareas,andthesehouseholdsappeartobeonlyjustbelowthepovertyline,unlikeruralMomaseinparticularwherepoorhouseholdsreportverylowconsumptionlevels.5758Essentially,theworstsocialindicatorsareassociatedwithenvironmentalconditionsinwhichthepracticeofsubsistenceagricultureisleast
55SenA(1982)PovertyandFamines:AnEssayonEntitlementandDeprivation,OxfordNewYork:ClarendonPress56Inrecognitionofthewidespreadinformalsocialsafetynetsprovidedbyaccesstoproductivelandassets,assessmentsofpovertyinPNGhavetypicallynotbeensolelybasedoncashincomesbuthavealsotakenaccountoftheeconomicvalueofsubsistenceproduction.Forthe2009–2010HIES,a“costofbasicneeds”povertylinewasdetermined,calculatingthecostofanindividualconsuming2,200caloriesperadultequivalentperdayplusthecostofessentialnonfooditemssuchasclothing.57GibsonJ(2012)TwoDecadesofPovertyinPapuaNewGuinea,presentationatPNGUpdate,UPNG,June12,201458IMF(2013)PapuaNewGuineaStaffReportforthe2013ArticleIVConsultation,IMFCountryReportNo.13/339,Box1pg.5
51
productive.59Lowruralincomesmeanthatthereislimitedopportunityforimportsandhigh-proteinlocalproduce(mainlyofanimalorigin)tocontributetodietaryvariationexacerbatingproteinenergymalnutrition(PEM).Foratrulyfoodsecuresociety,PNGneedstoensurethatthepoorestandmost
vulnerablehaveaccesstosufficientnutritiousfoodtomeettheirdietaryneeds.
PNGhasanopentradepolicyregimeandfoodpricevolatilitythereforebecomesaparticularlyimportantvariableinassessingthenation’sfoodsecurity.Inflationspikedfollowingtheriseinglobalcommoditypricesin2008,importedfoodandfuelbeingmajordriversofinflation(Figure12).Inrural
areasfoodtransportedfromthecapitalandotherregionsissubjecttohigherpriceslargelyduetotransportcostsandexcessivelyhighwastagerateswithinthevaluechainswhichcontributedirectlytoendprices.Highinflationaddsfurtherpressuretothealreadyweakpurchasingpowerofvulnerablehouseholds.
Source:indexmundi:BankofPapuaNewGuinea
Thequalityoffoodthatpeoplecanaccessisimportant,particularlyforthepoorestpeople,butalsoforpeoplewithlimitedinformationaboutnutrition.Whenfoodpricesrise,ortherealincomesofpoorpeoplefallforotherreasons,thereisariskofhiddenhunger,wherepeopleswitchtolower-pricedfoodsthatfailtoadequatelymeettheirnutritionalneeds.Policiesforthisproblemneedtoensurethattherealincomesofthepoorareprotected,andtoprovideinformationtohelppoorpeoplemakebetterchoicesaboutthefoodtheyeat.WithalargeproportionofPNG’spoorpopulationdependentonsemi-
subsistencefarmingsupportingsmallfarmstobeamajorsourceofnutritiousfoodandofincomefor
womenandfamiliesisafoodandnutritionsecuritypolicypriority.
Tobuyenoughfood,thepoorruralhouseholdsneedhighercashincomesandefficientvaluechainsandlocalmarkets,toaugmentthevariablesupplyfromsubsistenceproduction.Investmentisneededinfoodvaluechainsandothermarkets,aswellasinsocialprotectionsystems,tohelpdisadvantagedpeoplecopewithchronicpovertyaswellashousehold-levelandmacropriceshocks.
CurrentlyinPNGtherearenoformalsystemsinplacetosupportthesocialprotectionofcommunitiesvulnerabletofoodinsecurityandmalnutrition.ThewantoksystemofreciprocitycontinuestobethemajorinformalsocialsafetynetoperatinginPNG.However,whilsttransfers(cashorkind)remainaveryimportantmeansofassistinghouseholds,theproportionofallhouseholdsrecordedthatreceived59HansonL.Wetal(2001)PapuaNewGuineaRuralDevelopmentHandbook.LandManagementGroup,DepartmentofHumanGeography,ResearchSchoolofPacificandAsianStudies,TheAustralianNationalUniversity,Canberra
0
2
4
6
8
10
12
2004 2005 2006 2007 2008 2009 2010 2011 2012 2014 2015
percen
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Figure12:CPIaverageannualinflationrate%
52
transfersinthe2009-2010HIESwasabout49percent,downfromover90percentrecordedasreceivingtransfersinthe1996HouseholdSurvey.Theimportanceofwantoksnotwithstanding,thepossibilitiesforinter-householdincometransfersremainslimitedbylowhouseholdincomesinpoorercommunities.Furthermore,intimesofshock,particularlythosebroughtaboutbynaturaldisasters,communitysupportarrangementsoftenfail,unlessthecommunityincludesasubstantialnumberofwantokmembersoutsidetheaffectedarea(suchasurbandwellers).Thereisthusaneedtosupplementtheseinformalsafetynetarrangementswithtargetedformalinterventions.
53
StabilityofPNG’sFoodSupplyStabilityoffoodsupplyatthenationallevelisdependentontheresilienceofthenationalfoodeconomyandsupplysystem(comprisingvaluechainsfordomesticproductionandimports)toshocks–suchasfoodpricespikes,naturaldisasters(floods,droughts,frosts,cyclones,tsunamiandvolcaniceruptionsetc.),outbreaksofpest/diseases,andalsotolonger-termtrends–includingdownturnsintheglobaleconomy,changingclimaticconditionsandlabormigrationfromruralareas.
Thelargestproportionsofthepopulationaresmallholderfarmerswholiveinthedenselysettledvalleysofthecentralhighlandsorwithin10kilometersofthecoastline,regionswhicharevulnerabletonaturaldisasters.Almosttwo-thirds(63percent)oflandusedforagricultureisonmountainsandhills.TheprovinceswiththegreatestproportionoflandusedforagricultureonmountainsandhillsareEasternHighlands(91percent),Enga(90percent),Simbu(86percent),Madang(76percent),Sandaun(76percent),Morobe(76percent)andGulf(75percent).60Intensificationoflanduseinthesefarmingenvironmentsexacerbatessoilerosionandlanddegradationandlowerstheresilienceoftheagriculturalsystems.Lossofsoilorganicmaterialreducessoilsmoistureholdingcapacityandincreasestheriskofdroughtdamage.Withincreasingpopulationpressureandreducedfallowperiods,underexistingculturalsystemsandpracticesthereislowrateofsoilfertilityreplenishmentandthuslanddegradationisbecomingamajorriskfactorforthestabilityoffoodsupply.TheliteratureindicatesthatitisnolongerpossiblethatmostpeopleofPNGareabletoeatwellfromtheirgardensorlabor.Vulnerabilityisincreasing,thoughhowsusceptibletoshocksapersonisdependsonthequalityoftheirland.61Thereisthereforeacriticalneedforwellresearchedlowinputtechnologytoenhancetheresourcebaseand
sustainsmallholderfarmproductivityandtostrengthenavailabilityandaccessibilityofrural
householdstofoodvaluechainsthatareabletodeliveralternativefoodstothemaswellastaketheir
foodproductionanddeliverittomarketsandconsumerswithminimalwastage.
Heavyrainorearthquakesfrequentlycauselandslidesthatmayoccuroverawidearea.Eachyear,betweenMayandOctober,thehighlandsexperiencefrostsataltitudesabove2,100meters.Wherethesefrostsremaininfrequent,cropscanrecoverfromthetemporarydamagetheycause.Ifthefrequencyordurationofthefrostsincreases,cropscanbedestroyed.Asthestaplerootcropshavealonggrowthperiodincoolerareas,thiscanleadtofoodshortageslastingmanymonths;aswasthecaseduringthe1997droughtandfrosts.
Withtheloomingthreatofclimatechangethereisacriticalandurgentneedtoaddresstheimpactof
changingweatherpatternsonfoodproductionandstabilityoffoodsupply.Therearealreadyindicationsthatrisingsealevelsarehavinganegativeimpactonverysmallislandsandothercoastallocationsbecauseofcoastalerosionandseawaterinundation.Manyoftheseareasdependontaro,
60AllenB,BourkeRM(2009)Part1People,LandandEnvironment,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra.61CammackD(2008)ChronicPovertyinPapuaNewGuinea,BackgroundPaperfortheChronicPovertyReport2008-2009,ChronicPovertyResearchCentre
54
cassava,sagoandbananasasstaples,andyieldsfromthesecropshavebeenonadecline.6263Thereareabout140islandssmallerthan100km2
insizeandwithpopulationdensitiesgreaterthan100persons/km2.Itisthesepeoplewhoarelikelytosufferthemostsevereconsequencesofrisingsealevels.64Thepossibleincreasingthreatsoffloodsandexcessivesoilmoisture,droughts(oftenassociatedwithElNiñoconditions)andfrostsarealsobecomingimportantconcerns.
Thedevastatingimpactofthe1997and2015droughtsondomesticfoodsupplyhavehighlightedthatfoodsecuritystrategies,includingdroughtcontingencyplans,mustincludetheuseofimportedfoodstofeedasignificantproportionofthepopulationforashorttimefromtime-to-time.65Attimesofsuchnaturaldisastersriceisaveryimportantfoodbecauseofitstransportabilityandstorability,butdisasterslikethe1997droughtwouldlikelyalsodisruptanylocalriceproduction-sowhatiscrucialforthericesectoristomaintainandstrengthenthenationaldistributionandmarketingsystemandkeepthepriceofriceatalowmarketlevel.Theprivatesectordistributionnetworkappearedtofunctionwellfollowingthe1997drought–relativetothepublicsector/aiddistributionsystems66-thereforeanappropriateapproach,undersuchcircumstances,maybeforgovernment(andaidagencies)todeliverfoodvouchers(ratherthanbagsofrice)toenablevulnerablecommunitieswhohaveaccesstopurchasericefromthecommercialdistributionsystem.Thisshouldalsobetteraccommodatetargetingtotheneediest.Therewill,however,remainaneedforpublicsectoraiddistributionduringperiodsofsupply-sidefoodsecuritycrisistosupportthesubstantialproportionofthepopulationthatlacksaccesstomarketsofanykind.
TheFrameworkfortheNationalClimateChangeStrategyandActionPlanidentifiestheagricultureandwatersectorsasparticularlyvulnerabletoclimatechange.Acrossallsectors,themainconcernsraisedrelatedtochangesinrainfallandtemperaturepatternsandtheireffectsondrought,floodingandlandslides.Sustainablemanagementoftheenvironmentandbuildingresilienceinthefaceofclimatechangeandnaturaldisastersarefundamentalforachievinglastingfoodandnutritionsecurity.ResiliencewillbetheultimatemeasurebywhichPNG’sfarmingandfoodsecuritywillbejudged.Notjustresiliencetoshort-termshocks,butamoreenduringresilienceinthefaceofthenewfundamentalsassociatedwithglobalizedtrade,highenergycosts,labourmigrationandclimatechange.
KeyLessonsfromreviewofthe2000-2010FoodSecurityPolicyTheNationalFoodSecurityPolicy(NFSP)2000-2010wasoverlyambitiouswith14sub-programsandanestimatedbudgetfordeliveryofPGK500millionover10years.Lackofdetailedimplementationplans
62GovernmentofPapuaNewGuineaandWorldBank(2010)ClimateChangeinPapuaNewGuinea:FrameworkfortheNationalClimateChangeStrategyandActionPlan63DAL(2014)TowardsAgricultureTransformationandaNewDirectionforEnhancingProductivityinAgriculture,FunctionalandExpenditureReviewofAgriculturalCommodityBoardsandAgencies,DepartmentofAgricultureandLivestock,April201464AllenB,BourkeRM(2009)OptCit.65Ibid66WhitecrossN,FranklinP(2000)Theroleofriceinthe1997PNGdrought,in:BourkeRM,AllenMG,andSalisburyJG(eds)FoodSecurityforPapuaNewGuinea.ProceedingsofthePapuaNewGuineaFoodandNutrition2000Conference,ACIARProceedingsNo.99AustralianCentreforInternationalAgriculturalResearch,Canberra.pp.255–259
55
withallocatedresponsibilitiesandamonitoringframework,particularlyrelatedtotheinvolvementandactionsrequiredatprovincialanddistrictlevel,andinrelationtoengagementofprivatesectorandthevaluechainsthatitoperates,resultedinlowanderraticallocationofbudgetresources.Furthermorethepolicyfailedtocapturethewidelyvaryingfoodsecurityneedsacrossthedifferentprovincesandregionsorthepressingfoodsecurityissuesrelatedtoclimatechange.Atthehouseholdlevelfoodsecurityisonlypossiblewhenconstraintsoflocalfoodsourcesandtheirdistributionarefullyaddressed.Consequently,therewasverylimitedpolicybuy-inattheprovincialanddistrictlevelswhereprogramprioritiesoftenvariedfromthosearticulatedatthenationallevel.Asaresultonlyfourprovinces(Manus,Madang,EastHighlandsandSimbu)adoptedprovincialfoodsecurityprogramslinkedtotheNFSP.67
Thepoorimplementationofthe2000-2010FoodSecurityPolicyindicatesthatthereisneedforgreatlyimprovedcoordinationofmulti-sectorserviceprovisionespeciallyinlinkingagricultureandnutritioninterventionsandbetweennational,provincialanddistrictlevelsandespeciallylinkingthepublicsectoratalllevelswiththeprivatesectorandthevaluechainsthatareprivatesectordrivenandmanaged.Itisalsoessentialtodesignprogramstomeetthespecificneedsofparticularregions,areasordistricts.Moreover,acknowledgingresourceconstraints(bothhumanandfinancial)meansthatprogramresponsesgoingforwardwillneedtobenutritionfocusedandtargetedtothoseareasingreatestneed.
Ensuringcoherenceinthepolicyenablingenvironmentisalsoessential-ifpoliciesareconflictingtheyneedtobereconciled.Furthermore,foodandnutritionsecuritypoliciesmustbealignedwiththecountry’snaturalresourceendowments,macroeconomicenvironment,infrastructuredevelopmentandbeintunewiththesocio-economicandculturalcontext.Additionally,informationsystemsneedtobestrengthenedwithimproveddataqualityandtimelinesstoenablepolicymonitoringandinvestmentdecisionmaking.
WomenareattheforefrontofsmallholderfoodproductionandmarketinginPNG,womenalsoplaythekeyroleinchildandfamilynutrition;thereforenationalfoodsecuritypolicyneedstofullyempowerwomeninagriculturedevelopmenttomaximizenutritiongains.
Areviewofinternationalexperienceidentifiesthatlimitedcommunicationbetweentheagricultureandnutritionsectorsandinadequatejointplanningatthenationallevelhasreducedtheimpactofinterventionsinbothareas.Thecreationofanenablingenvironment,encompassingeffectivenationalinstitutions,forthedevelopmentandimplementationofnutrition-sensitiveagriculturalpoliciesandprogramsiscritical.Keycontributorstosuccessinimprovingnutritionthroughagriculturalinvestmentsincludeworkingwithwomenfarmers,nutritioneducation,tailoringprojectstothespecificneedsofeachcommunity,andrigorousmonitoringandevaluation.
67DAL(2014)OptCit.
56
4. Listofreferencesandkeydocumentsrelevanttofood&nutritionsecurity
AllenB,BourkeRM,GibsonJ(2005)PoorruralplacesinPapuaNewGuinea,AsiaPacificViewpoint,24,2,Aug2005
AllenB(2009)Part6:AgriculturalDevelopment,PoliciesandGovernance,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra.
AllenB,BourkeRM(2009)Part1People,LandandEnvironment,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra.
AllenM,BourkeRM,McGregorA(2009)Part5CashIncomefromAgriculture,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra
BourkeRM(2001)AnoverviewofFoodSecurityinPNG,in:BourkeRM,AllenMG,andSalisburyJG(eds)FoodSecurityforPapuaNewGuinea.ProceedingsofthePapuaNewGuineaFoodandNutrition2000Conference,ACIARProceedingsNo.99AustralianCentreforInternationalAgriculturalResearch,Canberra.pp.5–14.
BourkeRM,VlassakV(2004).EstimatesoffoodcropproductioninPapuaNewGuinea.LandManagementGroup,ResearchSchoolofPacificandAsianStudies,theAustralianNationalUniversity,Canberra
BourkeR.M.andHarwood,T.(eds)2009.FoodandAgricultureinPapuaNewGuinea,ANUEPress,AustralianNationalUniversity,Canberra
BourkeRMetal(2009)FoodinPapuaNewGuinea:Part1AnOverview,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra
BourkeRMetal(2009)Part2FoodProduction,ConsumptionandImports,in:FoodandagricultureinPapuaNewGuinea’,ed.byR.M.BourkeandT.Harwood.ANUEPress,AustralianNationalUniversity:Canberra
CammackD(2008)ChronicPovertyinPapuaNewGuinea,BackgroundPaperfortheChronicPovertyReport2008-2009,ChronicPovertyResearchCentre
DAL(2000)PapuaNewGuineaNationalFoodSecurityPolicy2000–2010,DepartmentofAgricultureandLivestock,May2000
DAL(2014)TowardsAgricultureTransformationandaNewDirectionforEnhancingProductivityinAgriculture,FunctionalandExpenditureReviewofAgriculturalCommodityBoardsandAgencies,DepartmentofAgricultureandLivestock,April2014
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