papua new guinea national food security policy …...papua new guinea national food security policy...
Post on 04-Jun-2020
3 Views
Preview:
TRANSCRIPT
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
ii
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.
PapuaNewGuineaNationalFoodSecurityPolicy2018-2027
iii
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
iv
Acknowledgements
ThedevelopmentoftheNFSPwasaccomplishedthroughtheeffortsofmanyindividualsandinstitutionsandwewouldliketoexpressoursinceregratitudetothemall.
WethankallmembersoftheDALManagementteamandinparticulartheNationalProjectCoordinationdesk,thestaffofPolicyDivisionandtheFoodSecurityBranchwhocommittedtheirtimeandtechnicalexpertiseintheevolutionofthispolicy.
WearegratefultotheFoodandAgricultureOrganization(FAO)oftheUnitedNationsforfinancialandtechnicalsupport.
Ourspecialthanksmustbeaccordedtothestakeholdersatnational,provincialanddistrictlevelsthatgavefreelyoftheir
timeandsharedvaluableinformationwhichunderpinnedthedevelopmentofthisdocument.
DALseniormanagementbelievethattheNationalFoodSecurityPolicy2018-2027chartsasmartpathwaytosustainablefoodsecurityandtorealizingournationalvision2050andthetargetforfoodandnutritionsecuritysetintheglobalSustainableDevelopmentGoal2.Wethereforecommendthispolicyandtrustthatallstakeholderswillgivetheircontinuedandfullsupporttoensuresuccessfulpolicyimplementation.
MrFrancisDaink
ActingSecretary
DepartmentofAgricultureandLivestock
PapuaNewGuineaNationalFoodSecurityPolicy2018-2027
v
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
PapuaNewGuineaNationalFoodSecurityPolicy2018-2027
vi
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
1
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
2
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
3
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
0
10
20
30
40
50
60
70
National Southern Highlands Momase Islands
Prevalen
ce%
Figure1:Nutritionalstatusofchildrenunder5acrossPNG
underweight(WAZ˂-2) stunting(HAZ˂-2) wasting(WHZ˂-2)
2
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
3
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
4
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
5
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
6
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
7
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
8
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).
9
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.
10
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.
11
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.
.
12
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.
13
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.
14
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.
15
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.
16
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.
17
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).
18
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.
19
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
20
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
tcha
nge
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
DAL(2015)PapuaNewGuineaNationalRicePolicy2015-2013,DepartmentofAgricultureandLivestock,
DNPM(2010)PapuaNewGuineaDevelopmentStrategicPlan2010–2030,DepartmentofNationalPlanningandMonitoring,PortMoresby
DNPM(2014)NationalStrategyforResponsibleSustainableDevelopmentforPapuaNewGuinea,DepartmentofNationalPlanningandMonitoring,January2014,PortMoresby
DNPM(2015)PNGNationalWater,SanitationandHygiene(WaSH)Policy2015-2030,DepartmentofNationalPlanningandMonitoring,PortMoresby
57
DNPM(2015)PapuaNewGuineaMediumTermDevelopmentPlan2,2016-2017,DepartmentofNationalPlanningandMonitoring,March2015,PortMoresby
DepartmentofHealthofPapuaNewGuinea(2011)NationalNutritionSurveyPapuaNewGuinea,2005;PacificJournalofMedicalSciences:Vol.8,No.2,SpecialIssueMay2011
DepartmentofHealth(2015)PapuaNewGuineaNationalNutritionPolicy:2015-2024,FinalDraftMarch2015,NationalDepartmentsofHealth,AgricultureandLivestock,Education,CommunityDevelopment,NationalPlanningandMonitoring
FAO(2009)StateofPlantGeneticResourcesforFoodandAgriculture,PapuaNewGuineaCountryReport
FAO(2009)GlossaryonRighttoFood,FoodandAgricultureOrganizationoftheUnitedNations,December2009,Rome
FAO(2014)Developingsustainablefoodvaluechains–Guidingprinciples.Rome
GibsonJ(1995)FoodConsumptionandFoodPolicyinPapuaNewGuinea,InstituteofNationalAffairsDiscussionPaperNo.65
GibsonJ(2001)RicedemandinPapuaNewGuinea,PacificEconomicBulletin16(2):27-35
GibsonJ(2012)TwoDecadesofPovertyinPapuaNewGuinea,presentationatPNGUpdate,UPNG,June12,2014
GillespieS,HaddadL(2001)AttackingthedoubleburdenofmalnutritioninAsiaandthePacific,AsianDevelopmentBank,Manila,PhilippinesandtheInternationalFoodPolicyResearchInstitute,WashingtonDC,UnitedStates
GovernmentofPapuaNewGuineaandWorldBank(2010)ClimateChangeinPapuaNewGuinea:FrameworkfortheNationalClimateChangeStrategyandActionPlan
HansonL.Wetal(2001)PapuaNewGuineaRuralDevelopmentHandbook.LandManagementGroup,DepartmentofHumanGeography,ResearchSchoolofPacificandAsianStudies,theAustralianNationalUniversity,Canberra
HideRL,AllenBJ,Bourke(1992)AgricultureandNutritioninPapuaNewGuinea:SomeIssues,PapuaNewGuineaNationalNutritionPolicyWorkshop,InstituteofNationalAffairsDiscussionPaperNo.54
HouX(2015)StagnantStuntingRateDespiteRapidEconomicGrowthinPapuaNewGuinea,FactorsCorrelatedwithMalnutritionamongChildrenunderFive,PolicyResearchWorkingPaper7301,WorldBankHealthNutritionandPopulationGlobalPracticeGroup,June2015
IMF(2013)PapuaNewGuineaStaffReportforthe2013ArticleIVConsultation,IMFCountryReportNo.13/339
IPCC(2012)Managingtherisksofextremeeventsanddisasterstoadvanceclimatechangeadaptation,SpecialReportoftheIntergovernmentalPanelonClimateChange(IPCC):Geneva,IPCCSecretariat
MarksG,FeredayNS(1992)SummaryofProceedingsPapuaNewGuineaNationalNutritionPolicyWorkshop,PapuaNewGuineaNationalNutritionPolicyWorkshop,InstituteofNationalAffairs:DiscussionPaperNo.54
MuellerI,Smith,TA(1999).PatternsofchildgrowthinPapuaNewGuineaandtheirrelationtoenvironmental,dietaryandsocioeconomicfactors–furtheranalysesofthe1982–1983PapuaNewGuineaNationalNutritionSurvey.PapuaNewGuineaMedicalJournal42(3–4):94–113,citedinRMBourkeandTHarwood(2009)
58
NARI(2011)StrategyandResultsFramework2011-2020:AStrategicContributiontoRealizingPNGVision2050,CorporateDoc.No.8.2011,NARI,Lae39p
NationalStatisticsOffice,2009-2010PapuaNewGuineaHouseholdIncomeandExpenditureSurvey,SummaryTables
NSONationalPopulationandHousingCensus2011Report
OmotN(2012)FoodSecurityinPapuaNewGuinea,in:TempletonD.(ed.)FoodsecurityinEastTimor,PapuaNewGuineaandPacificislandcountriesandterritories.ACIARTechnicalReportsNo.80.AustralianCentreforInternationalAgriculturalResearch:Canberra.53pp
PNGVision2050DevelopmentCentre(2011)PapuaNewGuineaVision2050StrategicPolicyDirectionsandExpectedOutcomes,PortMoresby
SenA(1982)PovertyandFamines:AnEssayonEntitlementandDeprivation,OxfordNewYork:ClarendonPress
VincentD,LowS(2000)AReviewofthePapuaNewGuinea’sRedMeatIndustry,ACIARMonographSeries,No.66.ACIAR,Canberra
WebbP(2013)ImpactPathwaysfromAgriculturalResearchtoimprovedNutritionandHealth:LiteratureAnalysisandResearchPriorities,FoodandAgricultureOrganization(FAO),Rome
WhitecrossN,FranklinP(2000)Theroleofriceinthe1997PNGdrought,in:BourkeRM,AllenMG,andSalisburyJG(eds.)FoodSecurityforPapuaNewGuinea.ProceedingsofthePapuaNewGuineaFoodandNutrition2000Conference,ACIARProceedingsNo.99AustralianCentreforInternationalAgriculturalResearch,Canberra.pp.255–259
WHOMulticentreGrowthReferenceStudyGroup(2006)WHOChildGrowthStandards:Length/height-for-age,weight-for-age,weight-for-length,weight-for-heightandbodymassindex-for-age:Methodsanddevelopment,Geneva:WorldHealthOrganization
WHO(2014)Globaldatabaseonchildgrowthandnutrition,dataforPapaNewGuinea,WorldHealthOrganization16August2014
top related