Annex 6. Annexes to Chapter 3

A6.1 Relation between policy goals and objectives: an example
A6.2 Dakar FSDS strategy: an approach
A6.3 Types of interventions at regional metropolitan, urban and local level
A6.4 An "urban" programme and an "urban distribution" subprogramme arranged by action plans
A6.5 Example of an action plan around a wholesale market
A6.6 Form 1: FSDS development programme for (name of city)
A6.7 Geographic programmes (form 2) and subprogrammes (form 3)
A6.8 Form 4: action plan: "(technical subject)"
A6.9 Form 5: A development programme arranged by action plans and sets of results: an example
A6.10 Form 6: set of results by interventions
A6.11 Examples of objectives of programmes, action plans, results and interventions
A6.12 Organizing an action plan by sets of results: an example of action plan A: "Urban Market Improvement"
A6.13 Compiling a set of results: an example
A6.14 From constraint analysis to policy implementation and monitoring
A6.15 Urban food supply and distribution policy: management structure

A6.1 Relation between policy goals and objectives: an example

Policy Goal

"Improved access, within ten years, by urban low-income households, to stable supplies of low-cost good quality food, through more efficient, hygienic and environmentally sound food supply and distribution systems."

Objective 1

INCREASED CONSUMER, TRADER AND TRANSPORTER SATISFACTION WITH THE CONDITIONS OF URBAN FOOD MARKETS WITHIN THREE YEARS

Possible concerned units:

Municipality: Market Infrastructure, Transport, Municipal Police and Health Departments; Ministries of Commerce, Agriculture, Transport and Health; Interior (Police Department); Chambers of Commerce and Agriculture; Transporter, Trader and Consumer Associations.

Objective 2

PROGRESSIVE REDUCTION, THROUGH CLEANER URBAN MARKETS, IN FOOD CONTAMINATION AS REPORTED BY ROUTINE MONITORING AND SURVEILLANCE

Possible concerned units:

Municipality: Market Infrastructure, Health and City Garbage Collection Departments; Ministries of Health, Commerce and Transport; Market Trader and Consumer Associations.

Traders and shopkeepers need to follow good hygiene practices in handling and processing fish as well as keeping clean trading surroundings. Fish markets and shops need adequate facilities including water, ice, waste bins and cold stores.

A6.2 Dakar FSDS strategy: an approach

Principle The programme is based on the recommendations from the identification of FSDS constraints and the long term analysis. It takes into account the current context marked by extensive poverty, devaluation, as well as liberalization, regionalization and decentralization programmes. This programme targets actions which can be realized rather than taking a hardline stance and retain elements which may be pertinent but not consistent with Senegal’s current capabilities. A logical framework The logical framework for defining the actions takes into account mutatis mutandis: the difficulties with the FSDS improvement objectives; the different time scales; a multiplicity of players; a multiplicity of intervention levels (Dakar and national) and sectors including supply channels. Global strategy Emerging from these principles is a global strategy based on: support for change, whether change is structural or takes the form of innovative action by players, aimed at increasing the efficiency of the FSD system; ending anticipating those factors responsible for unbalanced or faulty FSDS operation. Actions The actions will be selected on the basis of: the use and organization of space; the introduction of enhanced basic infrastructures; improved product quality; credit access; training for the persons involved; information on the various players. A targeted and participatory approach The approach is targeted because it focuses on the FSDS. Players outside of the city are not obliged to participate. The identification of public players (e.g. the state and local authorities) and private players (e.g. private operators and associations) makes it easier to define priority levels by their impact on the various sectors involved: investments, urban policy, organization, information and training. The participatory approach is based on the belief that unless players demonstrate genuine commitment to actions of direct concern to them, policies and programmes are unlikely to succeed. Source: Seck et al., 1997b.

A6.3 Types of interventions at regional metropolitan, urban and local level

Regional level Food supply to cities Promote and regulate rural food production. Rehabilitate, locate and construct rural assembly markets. Improve rural-urban transport infrastructure and services. Develop market information and marketing extension services. Facilitate access to credit for farmers, traders and transporters. Health and environment Assistance in correctly using fertilizers and pesticides.

Urban level Food supply to cities Promote and regulate urban food production. Urban food distribution Rehabilitate, relocate and construct, maintain and manage retail markets. Relocate and develop shopping centres. Facilitate access by vehicles to parking facilities around markets. Provide and improve facilities and services for informal retail activities. Improve intra-urban transport facilities. Health and environment Design adequate waste collection and management systems and infrastructure. Provide appropriate water, sanitation and infrastructure.

Metropolitan level Food supply to cities Promote and regulate periurban food production. Improve food transport flow to the city. Facilitate access to credit for farmers, traders and transporters. Rehabilitate, locate and construct slaughterhouses. Urban food distribution Rehabilitate, locate, construct, maintain and manage wholesale markets. Health and environment Locate and regulate market and slaughterhouse waste disposal. Provide appropriate water and sanitation infrastructure.

Local level Food supply to cities Promote and regulate urban food production. Urban food distribution Encourage improvement of food shops and sales from homes. Improve facilities and services for informal retail activities. Health and environment Support informal/private waste collection systems. Provide appropriate water, sanitation and basic infrastructure.

A6.4 An "urban" programme and an "urban distribution" subprogramme arranged by action plans

Action Plan

Urban Market Improvement

Expected results in six years:

1. Infrastructure improved in five urban markets.
2. Hygiene and safety standards defined and enforced.
3. Effective market management.

Markets and slaughterhouses need efficient waste collection systems to maintain hygienic conditions, avoid food contamination and ease traffic.

Action Plan

Food Retail Outlets in Low-Income Districts

Expected results in four years:

1. Four new open retail markets established.
2. Food traders and street vendors trained.
3. Appropriate regulations approved and enforced.
4. Consumers informed about fair trading practices and food hygiene.

Low-income urban areas need simple retail markets. These have to be planned and provided with protection from the sun, wind, dust and rain.

Action Plan

Institution Strengthening

Expected results in two years:

1. Training programmes and material prepared on food supply and distribution.
2. Municipal technical staff trained.
3. Decision-makers sensitized.

City and local authorities need trained staff capable of meeting the challenges of dynamic situations.

A6.5 Example of an action plan around a wholesale market

The issue The overall issue in Dakar is how to feed three million inhabitants 48% of whom are poor (middle class ruined by the recession). The FSDS environment may be described as follows: social disparities are among the most significant in the country; there is no distinction between rich and poor areas; the range of products consumed by more fortunate customers has expanded (poultry, processed dairy products, fruits and vegetables), thus encouraging segmentation of demand; distribution channels have diversified considerably over time; we may now speak of fragmented distribution; food supply is not one of the government’s major concerns; policy is geared to modernizing commercial infrastructures (reduction of material shortcomings). The team in charge of the case study comprises: an economist specializing in marketing; a financial analyst; an agronomist specializing in management; a sociologist; an architect-town planner. The interinstitutional steering committee comprises the municipality, one central services representative in charge of trade, and traders’ and urban associations’ representatives. Elements of the diagnosis concerning fruit and vegetable supply The heterogeneity of the marketing channels (from the point of view of players and resources): supply bases: remote production areas, no green belt; diversity of suppliers: traditional pattern with small-scale family farms on the one hand, and modern agricultural enterprises on the other; a multiplicity of retail outlets: from supermarkets to small shops; overlapping of marketing channels: the channels are unstable; they often overlap, but sometimes support each other. The modern direct marketing channel comprises a limited number of operators: from the producer to the consumer in 12 hours. On the other hand, the short channel (marketing of fruit and vegetables from production areas close to the cities) is fragmented: channels complicated by a large number of intermediate operations at all levels in a variety of places: farms, urban markets and central market. An attempt to group these channels together in a simplified, modern network failed (rural dispatch markets, producer markets: rural depots are the places where the produce is assembled, where price information is provided, where commercial transactions take place and from where goods are dispatched to the wholesale markets). As things stand at present, the product will have been negotiated ten times between the production area and the retail outlet by middlemen often fighting for survival under extreme financial and material conditions. The wholesale market This is a very large marketing space created to improve food marketing: reduced number of middlemen, smaller losses, improved pricing mechanism, improved hygiene, etc. Its general objectives are based on a vague idea of food supply problems. Its development is characterized by a gradual undermining of responsibilities. Opinions vary about the new functions to be assigned to it: allow grain trading; discontinue storage activities, introduce cold storage facilities, allow retail trading, etc. The sharing of the site among the middlemen obeys the rules of hierarchy, but space is bitterly disputed and there are more points of sale than the site can hold, with the result that they spill out into the nearby streets. At negotiating time the system operates as follows: as the delivery trucks are unloaded, major customers (supermarkets, hotels and hospitals) and major traders get a head start over the others, i.e. the middlemen usually working on six or seven products (typology is not an issue) inside or outside the depots, from the large-scale buyers to the small buyers at the end of the chain, e.g. the sellers on the urban markets, who negotiate small quantities. The wholesale market, symptomatic of food supply- related problems All kinds of difficulties have accumulated here, with the result that the market administrators seem paralysed: at the financial level: public coffers empty (recession); at decision-making level: the wholesale market is a political entity, laws are broken and cronyism is develops; Drop in efficiency due to: lack of space (rise in marketed volume): overcrowding, traffic jams, provisional premises have become permanent, prefinancing for building provided by major traders. However, there is no shortage of land: 70% of land is occupied (illegal occupation excluded); equipment and services withdrawn or not in use, such as packaging or preparation, information on product quantities and prices, worker training and supervision (unloading), and services to small retailers (e.g. transport facilities). Social conflict due to: inegalitarian structure of the traders’ social environment, unfair competition between same level of traders; reflection of the major social differences visible in the society, conflict between the well-to-do and those on the breadline: children involved in theft, increase number of private security guards, unguarded entrances; minimum municipality involvement: emergency programmes for the most deprived, but no real food policy. The poor obtain their food by scavenging for food wastes and theft. This serves as a relief valve preventing the spread of delinquency and does not adversely affect the normal day to day market operations. The scenario The urban population will double in ten years in the outlying districts (large-scale immigration). Incomes must be stabilized to prevent an increase in the number of households under the poverty line. Large shortfalls in demand will reduce the overall viability of the urban economy; the improvement in income must stem from several sources but the outlook for job creation on a large scale is poor; there must be a move toward subcontracting and the use of semi-industrial systems; it is vital to reduce the cost of urban food supply. Proposed strategy Improve incomes through the introduction of family workshops subcontracted to the large enterprises and supported by a training programme; raise the city’s revenue through an appropriate sharing of the cost of public services management, the authorities wishing to step up social programmes and increase public sector participation in pipeline reorganizaton. This would entail: - the municipality floating loans for the recapitalization of wholesale market management companies. Measures must include liquidating the central supply body in favour of more efficient companies, managed by the private sector in partnership with the public sector; - a reduction in the cost of the supply pipeline. Given the importance of the issues and the limited funding available, the administration wishes to take "critical" steps to ease the situation and is proposing excessively complex solutions. A five-point pilot recovery programme has, therefore, been prepared by the team to: reorganize the green belt through the creation of cooperative markets designed to reduce the costs of the short channel; improve the social situation through highly labour-intensive work on the outskirts of the market (including cleaning services); decentralize the central supply body’s infrastructures in several parts of the city; introduce a joint management scheme with the traders and improved concessions based on strict rules and appropriate cost sharing; raise the market vendors’ license fee in order to improve the municipality’s financial position and allow it to become a genuine negotiating partner. In discussions, the parties concerned stressed that: the critical steps proposed were considered adequate in terms of the strategy, but not sufficient to have an immediate impact, especially where the rehabilitation and management of wholesale market space are concerned; the planning team therefore recommends that free spaces be allocated without delay and a pilot management scheme set up; with regard to infrastructure investment, the economic and financial return criteria vary one from the other. Infrastructure decentralization will depend on the district and inhabitants’ income levels. Several models have been proposed and will be the subject of feasibility studies; measures relating to joint management with the traders must be backed by a promotion effort by the associations in order to obtain representative spokespersons. The necessary process was identified; several assumptions about the raising of market licence fees were put forward; the sensitivity analyses show the relevant thresholds and those beyond which a measure will not be applicable in the current social context; the appropriateness of the highly labour-intensive work programme is recognized. However, it should be preceded by an awareness campaign among urban associations and by a solidarity campaign to finance it.

A6.6 Form 1: FSDS development programme for (name of city)

Background and justification (maximum 500 words)	Situation at the start of the development programme; The socio-economic context in which the development programme will be implemented; How does the development programme integrate with economic, social and political development priorities?
General strategy (maximum 500 words)	How will the development programme resolve the identified problems? How will the development programme obtain the required changes? How will the development programme's strategy fit in with the current strategy of national development plans?
Objectives (maximum 500 words)	What changes is the development programme expected to bring about or promote in the short, medium and long terms? Indicators showing how will the development programme's implementation will be monitored and success be evaluated against programme's objectives
Duration	State the development programme expected overall duration (in years and months).
External policies and strategies (maximum 500 words)	What changes need to be proposed for national and sectoral policies and strategies?
Main components	Title of each geographic programme and respective subprogramme as well as their expected duration.
Institutional responsibilities	Programme monitoring committee: membership and duties.
Financial implications	Provide an estimate of the overall costs (indicating, if possible, the local and foreign currency components).

A6.7 Geographic programmes (form 2) and subprogrammes (form 3)

	Form 2: Geographic Programe for "..." area	Form 3: Subprogrammes "..."
Background and justification (maximum500 words)	Situation at the start of each geographic programme; The socio-economic context in which the geographic programme will be implemented; How does the action plan integrate with economic, social and political development priorities?	Situation at the start of each subprogramme; The socio-economic context in which the geographic programme will be implemented; How does the development programme integrate with economic, social and political development priorities?
General strategy (maximum500 words)	How will the geographic programme resolve the identified problems? How will the geographic programme obtain the required changes? How will the geographic programme's strategy fit in with the current strategy of national development plans?	How will the subprogramme resolve the identified problems? How will the subprogramme obtain the required changes? How will the subprogramme's strategy fit in with the current strategy of national development plans?
Objectives (maximum500 words)	What changes is the geographic programme expected to bring about or promote in the short, medium and long terms? Indicators showing how will the geographic programme’s implementation will be monitored and success be evaluated against plan's objectives.	What changes is the subprogramme expected to bring about or promote in the short, medium and long terms? Indicators showing how will the subprogramme's implementation will be monitored and success be evaluated against development programme's objectives.
Duration	Expected duration of the geographic programme (in months).	Expected duration of the subprogramme (in months).
External policies and strategies (maximum500 words)	What changes need to be proposed for national and sectoral policies and strategies?	What changes need to be proposed for national and sectoral policies and strategies?
Main Components	Title of each subprogramme and their expected duration.	Title of each expected set of results and the time required for obtaining them.
Institutional responsibilities	Geographic programme monitoring institutions expected to collaborate directly in the committee: membership and duties. List the institutions expected to collaborate directly in the implementation of each specific geographic programme.	Name of leading institution and list of collaborating institutions. List the institutions expected to collaborate directly in the implementation of each general subprogramme.
Financial implications	Provide an estimate of the overall costs (indicating, if possible, the local and foreign currency components).	Provide an estimate of the overall costs (indicating, if possible, the local and foreign currency components).

A6.8 Form 4: action plan: "(technical subject)"

Background and justification (maximum 500 words)	Situation at the start of the action plan; The socio-economic context in which the action plan will be implemented; How does the action plan integrate with economic, social and political development priorities?
General strategy (maximum 500 words)	How will the action plan resolve the identified problems? How will the action plan obtain the required changes? How will the action plan action plan strategy fit in with the action plan strategy?
Objectives (maximum 500 words)	What changes is the action plan expected to bring about or promote in the short, medium and long term? Indicators showing how the action plan's implementation will be monitored and success be evaluated against the objective(s) of the action plan.
Duration	State the action plan's duration (in months) and any special structure required for the short, medium and long term.
Sets of results	List the sets of results, which form part of the action plan and their implementation time (in months).
Lead institution	Give the name of the lead institution for each set of results. Is a monitoring committee desirable for each action plan?
Partner institutions	List the institutions expected to collaborate directly in the implementation of each action plan.
Financial implications	Provide an estimate of the overall costs (indicating, if possible, the local and foreign currency components).

A6.9 Form 5: A development programme arranged by action plans and sets of results: an example

Action plan A: Urban market improvement Sets of results: A1. Urban markets infrastructure improved A2. Hygiene and safety A3. Market management Action plan B: Development of retail food outlets in newly urbanized areas Sets of results: B1. Open-space retail markets B2. Food shops B3. Traders and street sellers trained B4. Appropriate regulations Action plan C: Institution strengthening on FSDS matters Sets of results: C1. Training programmes and material C2. Municipal technical staff trained Action plan D: Improving rural-urban food transport Sets of results: D1. Roads and food transport facilities D2. Rural assembly markets D3. Food packaging, storage and processing

Insufficient space and facilities causes food contamination and spoilage.

Markets are often seen by local authorities only as a source of income.

A6.10 Form 6: set of results by interventions

Name of action plan: "..."	Name of set of results: "..."
Issues hoped to be resolved through the achievement in this set The situation at the start and the specific problem to be resolved; the socio-economic context in which the results will be obtained.	Objectives of the set of results Specific objectives of the set of results; general description of the desired situation after these results have been obtained.
(maximum 250 words)	(maximum 250 words)

Expected results	Problems	Main interventions	Priority	Beneficiaries	Partner institutions	Implementation time	Prerequisites	Additional requirements
Description and justification of main results expected.	Description of special problems to which results are linked.	List the main measures needed to obtain the stated results.	The result is: urgent; priority; necessary; desirable. For urgent and priority results, give a brief justification.	List the direct and indirect beneficiaries.	List the public and private institutions expected to cooperate with the lead institution in implementing the measures.	State the time in months needed to achieve the results and show how they are distributed over the short, medium and long term.	List the prerequisites and give a short justification.	List the additional requirements and give a short justification.

A6.11 Examples of objectives of programmes, action plans, results and interventions

FSDS development programme in (name of city) "Within ten years, all urban households, and low-income households in particular, will have access to low-cost, good quality staple food price, because FSDSs will be more efficient, dynamic, healthy and environmentally sound". "Within five years, (name of the city) will have a modern wholesale and retail market network supplying all the urban areas with food that meets the needs of the local people in terms of quantity, variety, quality and services, with costs reflecting efficient and well managed FSDSs".

Action plan: "Urban market improvement" "In six years, all the existing urban markets will meet logistical, hygiene and safety standards as a result of sound, rational management by the traders’ associations." Action plan: "Training for technical staff employed by the central and local institutions" "Within four years, decisions and interventions by the central and local institutions will be based upon a technically sound understanding of FSDS problems in (name of city), through training and technical skill enhancement".

Results: Retail free markets "Food availability in the newly urbanized areas will be improved, within five years, through the provision of appropriately equipped markets areas".

Intervention: Construction of a road linking point A (maize production area) to point B (rural assembly market) "In two years, all maize produced in zone A will reach the assembly market in zone B for transfer to the city’s wholesale market".

A6.12 Organizing an action plan by sets of results: an example of action plan A: "Urban Market Improvement"

Less than 3 years	From 3 to 6 years	From 6 to 10 years
Set of results A1: Physical improvement of urban markets
All the urban markets have adequate areas set aside for food loading and unloading. All the existing (ten) urban markets meet acceptable logistical, hygiene andsafety standards, as a result of sound, rational management.
Set of results A2: Hygiene and safety
Hygiene standards in all the urban markets significantly improved through appropriate waste management and the provision of latrines and water points.
Safety standards for persons and products significantly improved in the urban markets through the provision of lighting and security systems. Traders using the markets appropriately informed about fire prevention and management	Improved practices for the unloading, processing and selling of fish and meat products.
Set of results A3: Market management
Regulations for private market management and private management trials in three urban markets. Adequate knowledge of market management acquired by the traders responsible for urban market management.
All the existing (ten) urban markets are managed by private traders' associations in line with the criteria for joint and private management.
Information available on traders using the markets and on their commercial activities for appropriate market management.
Tax revenue from urban markets increased by 30 percent as a result of new procedures and improved financial management.

A6.13 Compiling a set of results: an example

Action plan: A - Urban market improvement	Set of results: A3 - Market management
Issues: The conditions under which commercial food activities take place are extremely precarious and often cause high food losses, personal insecurity and public health problems. This situation is mostly due to inadequate maintenance and management.	Objective: Urban food markets are clean and functional places where traders and customers can safely meet.	Lead institution: The Municipality. Financial implications: Provide an estimate.

Expected results	Problems	Main interventions	Priority	Beneficiaries	Partner institutions	Implementation time	Prerequisites	Additional requirements
Regulations covering private market management and private management trials in three urban markets.	Current management rules do not meet food trading requirements and are unsuited to joint and private management.	Proposal to amend the regulations and current legislation. Private management trials and evaluation of results in three markets.	Top priority. The reasons for the current state of the urban markets are inadequate regulations and legislation which would not permit appropriate management even if the political will existed.	Direct: market managers. Indirect: all market users.	Ministry for Agriculture; Ministry for Health; Ministry for Trade; Consumers’ associations; Wholesale, transporters and retail traders, associations.	Short term (regulations: one year) Medium term (management trials: four years).	Political will. Authorization allowing joint market management.	Special regulations and legislation for private urban market management.
Better knowledge of market management by the traders involved.	Traders have no experience in market management.	Training for new market managers.	Necessary	Direct: traders using the markets; wholesale and retail traders’ associations; market managers.	Ministry of Trade.	Short term: (small number of markets). Medium term: (all markets).	Political will. Authorization allowing joint market management.	Traders must be interested and available.
All the urban markets will be managed by private traders’ associations consistent with joint and private management criteria	Urban markets currently managed by the municipality. This is an inefficient management system, often the cause of problems.	Private management trials extended to all markets.	Necessary	Direct: Market managers. Indirect: Market users.	Ministry for Agriculture Ministry for Health; Ministry for Trade; Consumers associations; Wholesale and retail traders associations.	Short term: Joint management trials. Medium term: extension of joint management and private management trials. Long term: all markets will be under private management.	Authorization allowing joint market management.	Sufficient degree of involvement by private traders.

A6.14 From constraint analysis to policy implementation and monitoring

A6.15 Urban food supply and distribution policy: management structure

Source: adapted from Onumah, E. G. and Hubbard, M., 1999.