United Nations Public Service Awards Case Studies

Agriculture in Lebanon accounts for 5-6% of total GDP. The share of the sector in the economy has been gradually eroding since the mid 1990s with minimal public spending in the sector reaching only about 1.1% of the yearly budget. Agriculture employs around 7.5 percent of the total labor force with a high percentage of the population (at least 30%) directly or indirectly drawing income from this sector. The total cultivated land area in Lebanon is of 277,000 hectares (27 % of the total land area), of which about 50 % is irrigated.

Lebanon has structural trade deficit. In 2009, Lebanon’s agricultural and food imports amounted to US$ 2,471 million while agricultural exports were valued at US$ 437 million. Agriculture, together with the agro-processing sector accounted for around 13% of total exports and 15% of total imports.

The agriculture sector in Lebanon is facing an array of policy, structural, technological, financial and institutional constraints hindering its development and resulting in the low performance of the sector as a whole. The interplay of all these constraints has resulted in (i) low farmers' income with a high proportion of farmers being below the poverty line; inequality in ownership and access to productive assets, rural poverty, increased vulnerability of rural women, and decreasing food security; (ii) lack of farmers' access to infrastructure (irrigation networks, agricultural roads, marketing outlets for agricultural and agroprocessed products, etc.); (iii) rural–urban migration; (iv) degradation of natural resources; (vi) high production cost due to high costs of inputs, labour, and energy; (vii) insufficient knowledge of modern techniques and environment-friendly practices, excessive use of pesticides; (viii) low competitiveness of the agricultural products coupled with an increase in the agricultural trade deficit.

At the institutional level, the challenges of the agricultural sector were many and include (i) inadequate policies and weak implementation capacities; (ii) weakness of the legislative and regulatory frameworks; with a high, uncontrolled and unregulated use of chemicals (fertilisers and pesticides); (iii) insufficient agricultural support services: absent public extension services and advisory services, inadequate investment in agricultural research and development; lack of credit (iv) limited coordination, synergy and coherence among the different actors, fragmented decision-making process; (v) ineffective public expenditures; and (vi) absence of farmers' legal status and farmers’ registers.

In 2004, the Ministry of Agriculture (MoA) developed a draft strategy, followed by a five-year implementation plan in 2006. This strategy was never ratified nor adopted by the Government. In the absence of a clear cut agricultural policy, many of the interventions in the agricultural and rural sector were scattered and centralized with limited local government and stakeholders’ participation in priorities setting, strategies design and/or implementation. This generally has weakened implementation, created duplication and/or overlap of activities and services provision among the various actors operating in the agricultural sector, and most importantly, contributed to a decreasing level of stakeholders’ trust in government interventions.

What is the initiative about? (the solution)
In December 2009 and with the formation of a new government, MoA developed an Updated Strategic Framework 2010-2014. Given the institutional fragmentation and poor coordination among key stakeholders- creating bottlenecks in proper policy formulation and implementation, MoA has proceeded with the formation of 22 National Technical Committees (NTC) covering the major agricultural value chains with an advisory and consultative functions. Major achievements included. the creation of a platform where all actors could interact, exchange information/views and experiences for better design, implementation and monitoring of agricultural policies; in addition to strengthening capacities of practitioners and institutions, developing informal networks, creating synergies/avoiding duplications and optimizing interventions in the sector. The achievements of the committees focused on three main areas: (i) extension and technology transfer; (ii) reinforcing quality and safety systems; (iii) improving statistics and establishing a traceability system. About 20 extension programs were elaborated aiming at improving agricultural production and post-harvest practices (new varieties, integrated pest management…), targeting the following subsectors (a total of 20): olives and olive oil, grapes, citrus and banana, stone fruits, apple, potato, vegetables and greenhouse production, cereal and leguminous crops, honeybee production, medicinal and aromatic plants, milk and dairy products, poultry, livestock and animal products, agro-processed products, and forests. Extension materials are currently being produced and programs are expected to be launched early 2011 and implemented through the newly-established extension centers (around 26) across all geographical regions. More than 20 technical decisions were proposed and discussed at the level of the committees which have been later issued by MoA. The technical decisions aimed at (i) improving the regulatory systems for inputs (seeds and seedlings, registration/selling/import/processing and use of: pesticides, veterinary drugs and vaccines); (ii) strengthening the import control (decisions issued on import requirements for: wheat, potato seeds, livestock, meat and poultry products, milk, white cheeses, expiry date of canned products from animal origin…); (iii) upgrading food safety and quality systems (decisions issued on health conditions for dairy industries for sanitary registration, transport of milk and dairy products, packing and selling of white cheeses…); and (vi) ensuring sustainable use of natural resources (decisions related to forest management and use of fishery equipment...). Many of the above-mentioned decisions have effectively entered into force by end of 2010. Farm registers are being created for growers of three major crops: grapes, apples and potato in addition to operators of olive oil mills- including detailed information on the producers as well as their production systems. The collected data would form a solid base of information for devising and channeling appropriate government support policies and interventions to end beneficiaries. In addition, this would support the establishment of a traceability system which is currently being put in place with the support of the committees. Beneficiaries include all producers across the country. In addition to MoA technical staff (inspectors, extensions agents, agricultural engineers, laboratory technicians) and other involved institutions through the modernization of the regulatory and operational framework. Furthermore, consumers also benefited through the consumption of safe and high quality products.

Who proposed the solution, who implemented it and who were the stakeholders?
The Ministry of Agriculture (MoA) is the institution responsible for setting the agriculture strategic framework, formulating and implementing policies/programs for the development of the sector in Lebanon. MoA is responsible for developing a suitable legal and regulatory framework, and enhancing infrastructure development to promote investment and improve agricultural production and marketing. MoA also plays an important role in the management of natural resources (agricultural land, irrigation water, forests, fisheries, pasturelands) and contributes to rural development programs. The Minister of Agriculture has decided to effectively work with and engage all stakeholders in the process of redefining MoA strategic objectives, reorganizing and aligning its functions around services it would provide the most important of which are related to various dimensions of food quality and safety, agricultural infrastructure (including marketing infrastructure), extension, and research. In order to implement this, and following thorough consultations with key stakeholders, MoA took the lead in putting in place this initiative in coordination and collaboration with all various actors in the agricultural and rural sectors. The Minister of Agriculture has appointed members of the 22 NTCs representing all concerned stakeholders- which were recognized as an important asset for sustainable agriculture sector development mainly for the design of a participatory strategy as well as for its successful implementation. NTCs- each according to its scope of work- included representatives from all concerned public institutions, organizations, NGOs, private sector... NTCs comprised representatives from all related technical departments under MoA, the Lebanese Agricultural Research Institute (LARI), Ministry of Economy and Trade, Ministry of Environment, Ministry of Health, The Lebanese Standards Institution (LIBNOR), Ministry of Industry, Industrial Research Institute (IRI), The Investment Development Authority of Lebanon (IDAL), National Council for Scientific Research, Ministry of Transport and Public Works, Ministry of Interior, Ministry of Defence, Ministry of Education, Ministry of Justice …In addition to representatives from the Chambers of Commerce, Industry and Agriculture in the different geographical regions, Universities (American University of Beirut, Lebanese University, St Joseph University, Kaslik, Balamand), International Organizations (FAO, UNDP, OIE, ICARDA), Syndicate of Engineers, Veterinary Syndicate, Consumers Association, and the Non-Governmental Organizations (NGOs) operating in the agricultural and rural sectors. A number of representatives from agricultural and agro-processing associations, syndicates and cooperatives, individual farmers, producers, exporters as well as private agriculture service providers were also represented.

Describe how and when the initiative was implemented by answering these questions
a. What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
The objectives of the initiative were to engage all key stakeholders in the development and implementation of an integrated agriculture and rural development strategy at the national and local level and particularly developing the major value chains. The initiative was given high priority at the level of MoA. The work of the NTCs was interlinked with all on-going/planned interventions in the sector in order to ensure coordination and foster coherence and that the different activities do not overlap and are complementary to create synergies. The Minister of Agriculture has presided the first meetings of all the NTCs clarifying its role, functions, responsibilities and time frame proposed for the completion of the work. Generally, the role of the committees was expressed in the Terms of Reference as: (i) to compile/ review available documentation and strategies and existing technical literature and conduct a value-chain analysis; (ii) review/appraise all related executed/on-going/planned programmes; (iii) assess status and identify major challenges, opportunities and potentialities related to sustainable enhancement of the sector; (vi) analyze new approaches/strategies and policy options and actions to overcome challenges and to exploit emerging opportunities in regional and global markets through improving production and marketing; (vii) propose economic and financial incentives; (viii) assess training needs for the different groups of stakeholders and develop a programme for capacity building and technology transfer; (ix) propose measures and design programmes/projects with setting possible targets and results to be achieved/activities, to be incorporated into the 5-year MoA implementation plan, with requirement of funds (available budget, additional resources required); and (x) revise and develop appropriate legal and regulatory framework. Most of the NTCs worked along these directives; and regular progress meetings have been conducted with a number of the NTCs in order to follow-up their actions and re-align their proposals with the MoA strategic vision when necessary. At least two general coordination meetings were conducted (March and September 2010) in order to present the progress/findings of the work of the committees and exchange and share experiences among all committees. In order to ensure the effective involvement and collaboration of all concerned actors and increase ownership, MoA has constantly and adequately disseminated and publicized the outputs and achievements of the NTCs. In addition, MoA has made available any useful information or documentation to the stakeholders and to the public at large. MoA has organized a number of meetings with stakeholders, donors, service providers in order to present a brief overview of the updated MOA Strategic Plan for the period 2010-2014 and a summary of the outputs of the NTCs. The meeting also discussed ways to enhance coordination and ensure synergies among donors operations and other interventions in the agricultural sector in Lebanon. At least one large conference was conducted for launching the establishment of farm records system for grapes growers (June 2010). All actors along the grapes value chain have effectively participated in the conference and expressed their commitment to support the implementation of the NTCs recommendations for the development of the sector.

b. What were the key development and implementation steps and the chronology? No more than 500 words
In order to successfully implement the initiative in a timely and efficient manner, MoA embarked on a two-month consultation process with the key stakeholders (November-December 2009). Following this, 16 NTCs were formed during the first month of 2010. Those include committees for: veterinary drugs and vaccines; livestock and livestock products; poultry sector; milk and dairy sector; vegetables and greenhouse production; citrus fruits, banana and exotic fruits sector; olives and olive oil; honeybee production sector; agricultural pesticides; developing the potato sector; forests; organizing the fisheries sector; organizing ornamental plants and cut flowers sector; organizing medicinal and aromatic plants sector; and grapes. In February 2010, two NTCs were formed, one for chemical residues and the other committee for the stone fruits sector. The NTC for apple was created in March 2010, followed by the committee for agro-processed and food products (April 2010). In May 2010, committees for cereals and legume crops; and for fertilizers were established. NTCs, following their establishment, were meeting at least on a bi-monthly basis. The Minister of Agriculture chaired at least two general meetings for all NTCs (March and September 2010). The objectives of the meeting were to present the progress of work in the various committees and discuss main problems in order to proceed with the implementation phase. MoA was able to issue and put into implementation a number of technical decisions starting as early as February 2010. The bulk of the issuing of the technical decisions took place towards the end of 2010 (September-December 2010). These have been proposed/discussed in the framework of the NTCs. After a four-month period, NTCs were able to present a first draft of programs/projects and propose mechanisms for developing the value chains. The proposed interventions are expected to be launched early 2011 with the mobilization of the required financial and human resources. MoA was able to increase its budget two-fold for the implementation of the strategy; at the same time, more than 200 technical staff have been newly recruited during the second half of 2010.

c. What were the main obstacles encountered? How were they overcome? No more than 500 words
Main obstacles which were encountered during the implementation of the initiative relate to: (i) the composition of the committees: in some NTCs, the membership of the committees lacked specialized expertise needed to provide advice on specific technical and scientific issues and ensure that all aspects of a decision are considered before final decision; in addition, a few members of NTCs tend to have dissenting views and propose decisions/actions in their own interests; (ii) commitment, availability of the members and lack of incentives: the involvement and commitment of the members of the NTCs were different across members and committees; members were not getting any compensation for the effort they were putting in the work of the committee; in addition, members had many other responsibilities in the organization they represent in addition to those as a member of the committees. (iii) insufficient time required to the completion of the work of the NTCs: the time frame had to be extended in order to allow NTCs to come up with well designed programs. Many of these obstacles have created some delays in the completion of the work of the NTCs. MoA took a number of actions in order to speed up the process. These include: additions/replacement in the selection of the memberships of NTCs when necessary; regular meetings with the Minister in order to discuss and resolve the conflicting issues; coordination meetings to share information among NTCs.

d. What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
There have been no major financial and technical costs directly associated with the formation of the NTCs. The implementation and success of the initiative relied primarily on human resources (members appointed in the various committees) for the completion of the work. More than 200 technical team members are actively contributing to the work of the NTCs including permanent technical staff from MoA and the Lebanese Agricultural Research Institute, representatives from other public agencies, subject matter specialists, academicians and researchers, practitioners, producers, exporters and their associations- with no additional compensation provided by MoA. MoA made available venues and facilities for the meetings of all NTCs, provided adequate communications channels and support services; and facilitated to committee members effective access to required information and documents. The costs of the events which were organized by the NTCs (Conference for Grapes) were covered by the regular budget of MoA.

Is the initiative sustainable and transferable?
The institutional sustainability of the initiative is ensured as NTCs were formed by ministerial decisions. A number of committees were formed for a limited duration others are envisaged as permanent committees. The formal as well informal networking and increased coordination among all stakeholders would contribute towards the sustainability of the initiative and ensuring a maximum transfer of knowledge and institutional ownership. Sustainability will also be assured by improving MoA’s operational capacities and by increasing transparency and accountability and building trust between MoA and key stakeholders for high impact interventions.

What are the impact of your initiative and the lessons learned?
The Strategic Framework 2010-2014 revolves around eight axes setting forth interventions at the central and local levels, using a combination of interventions and policy measures aiming at decreasing cost of production and improving quality of Lebanese agricultural products. The eight axes of the strategy include (i) updating the regulatory/policy framework; (ii) developing MoA’s new organigramme and improving coordination with the public, private and civil society sectors; (iii) upgrading agriculture infrastructure; (iv) re-activating extension services; (v) enforcing quality/safety control over all agriculture products and inputs; (vi) developing agricultural value chains, focusing on better quality, production, marketing and export; (vii) establishing a credit scheme for SMEs; and (viii) managing natural resources. The creation of about 22 NTCs was a new approach in fostering participation in policy-making decisions and engaging the various actors in the process of developing the sector strategy based on a prioritisation exercise carried out with all the sector’s main stakeholders. The work of the NTcs covered all axes of the strategy with a more focused value-chain approach. In the long-term, this would also help ensure sustainability of the various ongoing/planned interventions and achieve a greater impact. Since several other projects are implementing similar and/or complementarity activities, NTCs helped ensure a greater coordination and harmonisation between all interventions being implemented in the agriculture sector, sharing information, lessons learnt and aligning their activities and timetables whenever possible. Given the similarities in problems across major value chains, and the difficulties which were encountered in managing such a large number of NTCs, a number of NTCs could be merged, institutionalized and made permanent as Boards or may take any other form. The role of the NTCs limited at this stage to an advisory and consultative role could be further developed to encompass a wider range of responsibilities in relation to follow-up on implementation and monitoring of interventions with proper allocation of financial, technical and human resources. A greater involvement and commitment of the members to the work of the NTCs could be ensured through provision of compensation/incentives to members for their effective contribution in NTCs meetings. Furthermore, the establishment of a Management Information System (MIS) with appropriate data bases and the creation of a network among members of NTCs could further enhance participation and responsiveness in policy planning, implementation and monitoring and improve government service delivery procedures. In conclusion, NTCs have contributed to improving institutional and operational capacities of MoA and upgrading food and quality systems through encouraging greater collaboration and linkages with concerned institutions and other public and private actors involved in agricultural support services, agricultural knowledge, and technology. The contribution of the work of NTCs to the development of the sector will be further monitored and assessed (indicators of achievements) following the entry into force of all technical decisions and the start-up of interventions expected in early 2011.


Institution Name:		Ministry of Agriculture
Institution Type:		Government Agency
Contact Person:		Mohamad Khansa
Title:		Adviser to the Minister of Agriculture
Telephone/ Fax:		00961 1 821 900
Institution's / Project's Website:		00961 1 823 900
E-mail:		mkhansa@agriculture.gov.lb
Address:		Beirut- Embassies Street
Postal Code:
City:		Beirut
State/Province:		Beirut
Country:		Lebanon

The Problem

Solution and Key Benefits

Actors and Stakeholders

(a) Strategies

(b) Implementation

(c) Overcoming Obstacles

(d) Use of Resources

Sustainability and Transferability

Lessons Learned

Contact Information