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### Viewing cable 03HARARE2453, Pilot WFP Feeding Program in Former Commercial

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
03HARARE2453 | 2003-12-23 14:49 | 2011-08-24 16:30 | UNCLASSIFIED | Embassy Harare

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    This record is a partial extract of the original cable. The full text of the original cable is not available.

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    UNCLAS SECTION 01 OF 04 HARARE 002453

    SIPDIS

    AID FOR DCHA/FFP LANDIS, CRUMBLY, MUTAMBA, PETERSEN
    DCHA/OFDA FOR PRATT, BARTON, KHANDAGLE, MENGHETTI
    BORNS, MARX, HALMRAST-SANCHEZ, MCCONNELL
    AFR/SA FOR FLEURET, COPSON, LOKEN, MACNAIRN
    STATE/AF FOR RAYNOR, DELISI
    PRETORIA FOR DIJKERMAN, HELM, DISKIN, HALE
    NAIROBI FOR SMITH, RILEY
    LILONGWE FOR RUBEY, SINK
    LUSAKA FOR GUNTHER, NIELSON
    MAPUTO FOR POLAND, BLISS
    MASERU FOR AMB LOFTIS
    MBABANE FOR KENNA
    GABORONE FOR THOMAS, MULLINS AND DORMAN
    ROME FOR FODAG FOR LAVELLE, DAVIS

    E.O. 12958: N/A
    TAGS: EAID PREL US ZI
    SUBJECT:  Pilot WFP Feeding Program in Former Commercial
    Farming Areas

    REF: Harare 02241

    Summary:

    ¶1.  On December 18 in a meeting for donor
    representatives, the World Food Programme (WFP)
    presented details of its proposed pilot program for
    extending general food distribution into newly resettled
    (i.e., former commercial farming) areas.  This meeting
    followed the delivery of letters from the European Union
    and United Kingdom confirming their support of the WFP
    pilot.  The procedures that WFP presented in the meeting
    outlined processes for beneficiary selection, food
    distribution and monitoring that are similar to those
    currently followed in the communal areas, but involve
    additional monitoring mechanisms to address issues of
    potential politicization and transparency.  WFP's
    presentation credibly addressed donor concerns about the
    feasibility of following these processes and
    demonstrated significant forethought regarding how the
    plan could be implemented in the special context of the
    newly resettled areas.  On the basis of this
    presentation, post concludes that the pilot program
    appears viable and will inform WFP that we do not object
    to moving forward on a pilot basis, as was already
    agreed by the EU.  Post will explicitly remind WFP that
    it is not authorized to expand the pilot feeding program
    beyond the initial two districts without a full
    evaluation and concurrence from major donors.  End
    Summary.

    Donor approval of the pilot:

    ¶2.  In a letter to the WFP on December 15, the European
    Union confirmed its support for WFP's proposed pilot
    program in two districts in the former commercial
    farming areas.  Post has forwarded this letter to
    Washington.  In a related letter from the United Kingdom
    to the EU, the British High Commissioner emphasized that
    the approval of the pilot "does not imply agreement to
    subsequently roll out the programme more widely without
    a detailed review; nor does it imply availability of
    additional funding."

    ¶3.  As described in reftel, the United States had a
    number of concerns about the feasibility of successfully
    implementing free food distribution in the contentious
    environment of these resettled areas. Based on WFP's
    efforts to address these concerns, as discussed below,
    post intends to convey its approval of the program in
    two initial districts on a pilot basis only.

    Details of the pilot and US concerns:

    ¶4.  Following the approval of the pilot by the European
    Union, WFP invited donor representatives to a
    presentation to discuss the details of the pilot.  The
    USAID/Zimbabwe Mission Director and the Zimbabwe Food
    For Peace Officer attended.

    ¶5.  In the presentation, WFP staff and partners who will
    implement the pilot (Save the Children/UK and CARE,
    International) described details regarding: access to
    the former commercial farming areas;  beneficiary
    selection and registration; verification of the
    vulnerability of registered beneficiaries and lack of
    vulnerability of non-beneficiaries; food distribution
    management; and monitoring.  The program's design is
    substantially similar to the procedures used by NGOs in
    the communal areas, with special care to sensitize and
    inform all concerned government officials of the
    procedures, and intensified public information,
    verification of registrations, and monitoring.

    ¶6.  The presentation and ensuing discussion addressed
    the major practical and policy issues that have been of
    concern to the US: 1) the potential for success using
    current community-based methods for beneficiary
    selection and food distribution in the commercial
    farming areas, where there are no traditional
    communities and where ZANU-PF party structures are the
    primary representatives of local authority, and 2) the
    limited access granted to the international community
    when unimpeded access is needed to assess the extent and
    degree of vulnerability and to monitor food aid
    operations.

    Compensating for lack of communities:

    ¶7.  To compensate for the lack of community networks,
    WFP and the NGO Implementing Partner (IP) staff will
    announce public meetings and display posters in numerous
    public arenas (e.g., schools, markets, shops, and
    drinking establishments), in all population clusters
    (i.e., both farmers' villages and farm workers'
    compounds) to be covered from a distribution point.  The
    announcements will emphasize the importance of
    attendance by a representative from every household.

    ¶8.  The entire process of beneficiary selection,
    registration and distribution will be conducted in these
    public arenas and will be closely observed by staff of
    the IPs and WFP.  All selection criteria will be based
    on economic or inherent vulnerabilities.  Only
    households identified as objectively lacking means for
    self-support (low/no income; low/no crop harvest; few/no
    livestock) will be eligible.  Among this broad group of
    eligible households, those with inherent vulnerabilities
    (e.g., the lack of able-bodied family members; support
    of a large number of dependents, particularly the
    chronically ill, disabled, or orphans; or the lack of
    land or income) will be prioritized.  WFP and the IPs
    explained that they will not explicitly query potential
    beneficiaries regarding occupational status (i.e.,
    resettled farmer versus farm work), to avoid any
    appearance of politicization.  They will, however,
    exclude from eligibility those conducting business or
    earning regular salaries, e.g., business employees,
    teachers and other public servants.  The implementing
    NGOs estimate that a substantial majority of qualifying
    beneficiaries (approximately 80%) will be former
    commercial farm workers.

    ¶9.  In order to ensure that intimidation and
    politicization do not result in the exclusion of those
    who are vulnerable, WFP will double its efforts at
    household verification.  Under the food distribution
    program in communal areas, the IPs conduct verification
    on 10% of the registered households.  For this pilot
    exercise, the IPs will examine a minimum of 20% of the
    registered households to confirm eligibility and
    vulnerability prior to any distribution of food.
    Verification of additional households will continue each
    month after the first distribution, such that 100% of
    registered households should be verified within a 5-
    month period.

    ¶10.  Before each food distribution, the list of
    beneficiaries will be read publicly, and those attending
    the reading will have the opportunity to affirm their
    agreement or to raise any objections to the list or to
    any name included or excluded from the list.

    ¶11.  The food distribution process will be managed and
    monitored by teams selected by the communities in a
    public forum overseen by the IP.  These teams will be
    assembled to fairly represent the various vulnerable
    segments of the community (with significant
    representation of former farm workers), and to not
    include individuals in any position of influence who
    could be in conflict with the program's impartiality.

    ¶12.  Throughout every food distribution, IP and WFP
    staff will be present to verify that the process is
    correctly managed and will make themselves available to
    receive feedback from any member of the community.  WFP
    emphasized that it has arranged for multiple channels of
    communication (e.g., through its own monitors, IP
    monitors and help desks consisting of beneficiaries) for
    any potentially aggrieved individuals to raise questions
    in confidence about the registration, verification
    and/or distribution processes.  If any problems or
    concerns arise with beneficiary selection or
    registration, WFP assured the donors that it would stop
    any distributions and recreate the lists from scratch.

    ¶13.  After each food distribution, a random sample of
    both registered and unregistered households will be
    canvassed during Post Distribution Monitoring.  This
    exercise will verify that food actually remains with the
    intended beneficiaries, that recipients meet the
    eligibility criteria and that recipients are indeed more
    vulnerable than the non-recipients canvassed.

    ¶14.  Additions and removals of names from beneficiary
    lists will be made only by the IPs after careful
    investigation of the circumstances of the households.
    However, any resident of the distribution area may at
    any time question the inclusion or omission of a
    household from the list through numerous formal and
    informal channels.   Save the Children/UK will organize
    a Children's Feedback Committee in its pilot area to
    increase opportunities for children's voices to be
    heard.

    Access by the international community:

    ¶15. WFP stated explicitly that unimpeded access to the
    pilot areas to disseminate information, verify
    beneficiary eligibility, monitor distributions, and
    conduct post-distribution monitoring is a necessary
    condition to a successful pilot program.  WFP explained
    that before entering a community, it will ensure that it
    has assurances of unimpeded access from national,
    provincial and district government structures.  WFP
    insisted, however, that if any of these activities were
    to be impeded, it would immediately suspend food
    distribution until the issues were satisfactorily
    resolved.

    ¶16.  As a next step to discuss issues of access, the IPs
    and WFP will present their plan at the Provincial,
    District and Ward levels.  Using the GOZ/WFP Memorandum
    of Understanding (which includes a flowchart of the
    registration, distribution and monitoring processes and
    places the IPs in charge of the process), WFP will
    explain the use of village assemblies to select
    beneficiaries solely on the basis of vulnerability.  WFP
    will seek written acknowledgement of agreement to the
    process at the Provincial level.

    ¶17.  WFP stated that the local political structures of
    the Zanu-PF party established at the time of the farm
    invasions (the "Committees of 7"), will have no role in
    the pilot activities.

    ¶18.  WFP invited donors to send 1-2 national staff as
    observers to the pilot activities.  USAID/Zimbabwe is
    arranging to send its FSN food monitor to observe the
    pilot at all stages.

    Conclusion

    ¶19.  WFP's plans for the pilot feeding program in former
    commercial farming areas demonstrates careful
    consideration of the difficult circumstances in these
    areas and puts in place a number of additional
    mechanisms to monitor the program carefully.  Consistent
    with the approvals WFP has already received from the EU
    and UK, post will inform WFP that the USG does not
    object to moving forward with the feeding program on a
    pilot basis.  Post will explicitly remind WFP that it is
    not authorized to expand the pilot program beyond the
    initial two districts without a full evaluation and
    concurrence from the major donors.  USAID/Zimbabwe will
    arrange for its Food for Peace Field Monitor to observe
    the pilot program and will keep Washington informed of
    developments.
    SULLIVAN

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