Consultative Group on Internarional Agricultural Rcscarch Mailing Address: Off~cc Location: N.WOv..Washington. D.C. 1825 K Smct, N.W. Telephone (Am Code 202) 334-802 I Cable Address-IITDAFRAD 1818 Ii SWXI. 20433’ . U.S.A. From: The Secretariat May 2, 1986 Consultative Group Meeting May 19-23, 1986 Ottawa Agenda Item 6 Attached the West Africa is a copy of 6he Draftz Report of the Mid-Term Review of Rice Development Association (WARDA) (AGR/TAC:IAR/86/11). This Draft Report is for the consideration of the Group at the Ottawa meeting under Agenda Item 6, "WARJIA: Mid-Term Review". Attachment Distribution: CGPARMembers TAC Members TAC Chairman TAC Secretariat Center Board Chairpersons Center Directors CONSULTATIVE FOOD GROUP TECHNICAL AND ON INTERNATIONAL ADVISORY OAGANIZATK’ IN AGRICULTURAL COMMITTEE OF THE UNITED RESEARCH AGRICULTURE NATIONS Vie delle Terme di Caracalla, 00100 Rome, Italy Cables: FOODAGRI ROME - Telex: 610181 FAO I Telephonet 57971 . 5 May 1986 Dear Mr. Husain, We are herewith submitting to you the report Review of WARDA which was conducted jontly by TAC Secretariat between 14 April and 2 May 1986, under Dr. E,T. York. We wish to congratulate the Panel asse.ssment and constructive suggestions. of and the for the Mid-Term the CGIAR chairmanship of their thorough The review mission to WARDAcould not be mounted earlier for various logistical reasons. Consequently the report is being Qresented to the Group before TAC has had a chance to consider the findings of the Review Pane%. Accordingly there will. be no -commentary from TAC. The CGIAR Secretariat will. comment at the CGIAR meeting in Ottawa, We feel confident that TAC will, as a matter of principle, support the basic recommendation of having an independent, clearly focussed and integrated rice research program for West Africa. This view is reinforced by the fact that the Review Panel was largely composed of persons who are well acquainted with WARDA and knowledgeable about TAC's concerns e Furthermore, the pqsftion taken by the current Chairman of the Governing Council of WARDA left little choice to the Panel. Recent developments in WARDA have been fully taken into account, and in particular the uncertainty surrounding the validity of the pledge, by the Governing CouneiP of WARDAin December 1985, to delegate certain powers to the ScfentifI,c and Technical Committee. This led the Pane% to propose measures to ensure independence of the research program while maintafn$ng close links with WARDA. The report does not cover an additional important point, The Governing Councfl requested the CGTAR to assume responsibifity for administrative expenses of WARDA beginning in 1986. In out response at the time9 we made clear that a condition of the Group agreeing to this proposal would be a specific plan whereby member states would recognize their responsibility for the overhanging debt attributable to their account, and would provide funds sufficient to pay short-term debt and thus remove it as a factor inhibiting efficient operations. TAC and the CGIAR Zn view of the urgency of the situation, Secretariat would appreciate clear guidance from the Group on the In acting on the Panel report, proposals made by the Review Panel. Mr. S.Shahid Husain Chairman CGIAR World Rank %81S El Street., N.W. Washington, D.C. 28433 USA the 2 Croup should note that those recommendations and suggestions relating to IITA and IRRI are preliminary +n nature, pending detailed discussions with both Centers, And ft ts of course clear that extensive discussions to must be undertaken with the management and governance of WARDA determine their views on the proposals. 9 In conclusion8 we would like to* reieeraee our apprecfataon to the Review Panel artd comend the report toe you and through you to the donor comaunity. Yours sincerely, CL Parr ar Executive Secretary cc1Ax e. camus Chafrman TAC AGR/TAC:IAR/86/11 TRZ CONSULTATIVEGROUPON INTERNATIONALAGRICIILTURALRESEARCH TECHNICAL ADVISORYCOMMITTEE DRAFT REPORTOF TEIE MID-TERM REXIEW OF THE WEST AFRICA RICE DEVELOPMENT ASSOCIATION (WARDA) TAC SECRETARIAT FOODAND AGRICULTURALORGANIZATIONOF THE UNITED NATIONS May 1986 CONSULTATIVE FOOD GROUP TECHNICAL AND ON INTERNATI0NAI.a ADWIORY ORGANIZATION AGRICULTUFUL COMMITTEE OF THE UNITED RESEARCW AGRICULTURE NATIONS Via delle Terme di Caraealla, 00100 Rome, Italy Cables: FOODAGRI ROME - Telex: 610181 FAO I Telephone: 57971 2 May 1986 Dear Prof. Camus and Dr. Farrar, It is my pleasure to submit to you fole the consideration of the of the External Mid-Term Review on the West CGIAR the Draft Report Africa Rice Development Association (WARDA). This review was conducted at the request of the TAC and the CGIAR Secretariats as a follow-up to the Second External Program Review and the First Management Review conducted in 1983. Being aware that the TAC will not have the opportunity to give formal consideration to the report prior to its submission to the CGIAR, we have tried to take into account TAC's position with respect to rice research in West Africa. Also, the decision of the TAC and the CGIAR Secretariats to have the review conducted by one panel allowed us to cover in one report both the program and the management aspects of WARDAqs operations. . After careful consideration we have come to the unanimous sonclusiom that the interests of CGIAR and the West Africa region in rice research can best be served through uniffcation of WARDAand IETA's research work under a single organization, the West Africa Rice Research Institute (WARRI). Consequently, we recommend that the CGIAR, in cs%laboratfon with the Member States of WAKDA, establish WARRI as an autonomous international institution. We visualize WARRI's research to focus primasify on upland and secondarily on swamp rice. We estimate the annual &source requirements of WAXRI, when it is fully staffed, to be about US$ 5 million, excluding capital costs. This is equivalent to, about three-fourths of what is currently being expended by the CGIAR and the special project donors on rice work at WARDA and PITA annually. The recommendation for establishing a new rice center in West Africza in no way diminishes our regard for WAXDAand its aceomplishmeats, particularly during the last two years. We were most impressed with the way the STC discharges its new responsibilities and the many improvements Mr. Alieu Jagne, the Acting Executive Secretary of WARDA, and Dr. James Johnston, the Director of Research and Development, have brought to WARDA's programs and management. Frof. Guy Camus TAG Chairman c/o Wor%d Bank 66 Avenue d ‘ Iena 75116 Paris France Dr. Curtis Farrar Executive Secretary CGIAR 1818 H Street, N-%9, Washington, D.C. 26433 USA ii WARDA's financial situation does not look as bad as it did a year ago and implementation of many of the recommendations of the 1983 Iiowever, WARDA has external reviews has improved WARDA's effectiveness. been and still remains a development-oriented organization with political governance." The unanimous judgement of the Panel is that an institution engaged primarily with research should Rave independent governance. * We have taken the liberty in the report to offer the Pane19s thoughts on how WARRI could be established and on the potential relationships between WAXRI, IRRI and WARDA. Gur strong view is that CGIAR should join hands with WARDA in establishing WARPI. Panel colleagues and I were honoured to participate in this We wish to thank the Hon. Famara Ibrahima Sagna, important assignment. Minister of Rural Development of Senegal and current Chairman of WARDA's Governing Council, the Hon. Gilles Laubhouet Vally, Minister of Rural Development of C8te d*Ivoire 9 and the Hon. Poland S. Toweh, Minister of Agriculture of Liberia for receiving the Panel and for their open and frank discussions with us. We also wish to thank Dr. Moetar Toura the Chairman of WARDA's STC and his colleagues for their helpful suggestions. We would further express our special gratitude to l4r. Alieu Jagne and Dr. Yames Johnston for their cooperation and assistance during the conduce of the review* Finally, I wish to acknowledge the Panel's appreciation of the guidance and support it received from the TAC and the CGIAR Secretariae du~iug the review. Cur special thanks go to Hs, Marioara Lantini, Program Assistame, and to the TM Secretariat office staff for their invaluable assistance. I wish to thank both of you for giving me the privilege to work with such distinguished colleagues. I hope the results of our efforts meet your and the CGIAR's approval. Yours s%ncerely, . WARDA Mid-Term Review Panel iii TABLE OF CONTENTS Page vii 1. INTRODUCTION 1.1. 1.2. l.%. 1.4. 2. Background for and Purpose of the Review 1 1 2 Agenda a 2 4 5 Systems 5 5 The Mid-Term Review The Review Panel and its Achnowledgements RICE IN WESTAFRICA 2.1. 2.2. 2.3. Rice Production Production and Consumption Patterns Production Problems and Constraints Biological constraints 2.3.1. Chemical and physical constraints 2.3.2. 2.3.3. Weak institutional support 2.3.4.. Soeio-economic constraints 11 11 11 14 17 17 19 2% 2% 2% 24 25 25 25 34 3. STATUS WARDA- ITS CREATION, EVOLUTIONAND CDRRENT 3.1. 3.2. 3.3. 3.4. How WARDACame into CGUR. Involvement WARDA's Mandate Governance and Management 3*4.1. Govermanee Management 3.4.2. Research Programs The evolution of the research program 3.5.1. The Coordinated Trials 3.5.2. Plant breeding 3.5.3. An integrated research program 3.5.4. Constraint analysis 3.5.5. The current research program 3.5.6. Assessment of the research program 3.5.7. Being 3.5. iv Page 3.6. 3.7. Development Program Training Program Background 3.9.1. es of training' Facilities and staff i-E Typ . 3:9:4: Funding Achievements and past assessmenes 3.9.5. The Panel's assessment 3.9.6. 3.8. I, 3.a.2. 3.8.3. 3.9. 35 %7 37 37 38 39 39 48 41 4% 42 44 3.8. Evaluations of WARDA and the Responses Thereto The First Quinquennial Review (QQK) The Second Rxternaf Program Review CEPR) External Management Review @MB) Staff and Facilities 3.9.1. Staff 3.9.2. Facilities 3.10. Funding 3.16.1. Total funding 3.P0.2. Member State funds 3.10.3. Eiquid$ey problems 3.11. 52 $2 5% 54 56 58 59 59 60 61 61 $1 62 Financial Staeus %.ll.l. Payables at the end of 1985 3.11.2. Receivables at the end of 1985 3.11.3. General Fund deficit at the end of 1985 3.11.4. Deferred liabilities (long-term debt) nor fund balances (Trust Funds) at 3.11.5. the end of 1985 3.11.6. BBS5 budget performance 3.PL.7. Current financial situation %.%P.& The 1986 budget 4. COOPERATION AMONGINSTITUTIONS ENGAGED IN RICE RESEARCH IN WRSTAFRICA 4.1. 64 64 64 65 66 67 68 68 -7Q 71 -_ Cooperation Among WARDA, IITA, IRRI and IRAT 4.1.1. XITA's rice research program and collaboration with WARDA 4.1.2. I in Sub-Saharan Africa 4.1.a. The International Rice Testing Program - Africa 4.1.4. IRAT and other devel.oped' country institutions WARDA:sCooperation with National Programs 4.2. II. Modes of collaboration 4.2.2. Exzxmp%es of soI%aboration from Rokupr, ouake and Se. Louis 4.2. %. Some thoughts on modes of collaboration strengthening nationa% capacities c 4.2. V Page 5. OVERALLASSESSMENT AND RECOMMENDATIONS 5.1. 5.2. 5.3. WARDA Objectives Progress Towards Achieving Factors 5.3.1. 5.3.2. Objectives . , 74 74 75 al al 82 a3 a5 a5 $6 $6 86 87 $8 $8 a9 90 90 90 91 92 92 9% 9% 94 95 95 96 96 * 73 7% Limiting the Achievement of Objectives Production constraints Limitations related to WARDA itself 5.4. Conclusions 5.4.1. Progress by WARDA 5.4.2. Continuing uncertainties and difficulties 5.5. 5.6. Recommendations for Future CGIAR Support of Rice Research in West Africa The Panel's Conception of WARRI 5.6.1. WARRIss mandate 5.6,2. Size 5.6.3. Location 5.6.4. Governance 5.6.5. Relationships with WARDA 5.6.6. Relationships with IITA 5.6.7. Relationships with IRRI 5.6.8. Relationships with national 5.6.9. Staffing and salaries 5.6.10. Physical facilities 5.6.11. Costs and funding programs 5.7. Implementation of the Panel's Recommendations 5.7.1. CGIAR Task Force om WARRI 5.7.2. Funding for WARDAfor the remainder of 1986 5.7.3. Task Force activitfes in 1986 The Panel's Views on the Future of WARDA 5.8.1. WARDA's mandate and programs 5.8.2. A footnote on governance 5.8.3. Relationships with WARRI 5.8.4. Costs and fundings Postscript 5.8. 5.9. vi ANNEXES : Annex I Annex II Annex III Annex IV Annex P AnnexVI Annex VII Annex VIII Annex IX Annex X TABLES : Table 2.1 Table 2.2 Table 3.1 Table 3.2 Table 3.3 Table Table Table Table Table 3.4 3.5 3.6 3.9 3.8 Program and Itinerary of the Panel Rice Developene TAC Resolution on the West Africa Association (WARDA) WARDA Staff Statistics Current WARDA Staff Positions Funds Received by WARDA (1992-1985) Medium-Term Work Program Budget - Income - Expenditures (1985) ' Summary Budget Report by Donors for the 1st Quarter of 1986 List of Dosuments Glossary of Acronpas Types of Rice Iand by Ecology in West Africa Rice Production, ConsPnnption and Imports for Member States - Averages (196549, 1975-79, 1980-84) Funding of WARDA(1992-1985) Total Member State Funds Member State Funds: Assessments - Payments Expenditures Current Liquid Assets and Liabilities (%1.12..%985) Receivables from Donors (31.12.19851 General Rmi Balance (%1.12,1985) Tat8t pud Balances (31.12.1985~ Expenditure by Source of Funding vii SUMMARY I. The Report the Mid-Term Review of WARDA The report of the Panel charged with includes the following: The background and purpose of the review, along with the Panel's composition, its terms of reference and the process it followed (Chapter 1). A discussion of rice in West Africa9 including trends in production, trade and consumption, the nature of rice production systems, and the conseraints to increasing rice ourtput in the region (Chapter 2). A review of the history and evolution of WARDA, including the background of CGIAR involvement along with an assessment of the AssociationPs programs, personnel, facilities, funding and current financial situation (Chapter 3). An examination of the relationship between WARDA and other institutions, both national and international, concerned with research in West Africa (Chapter 4). An overall examination and assessment of the issues outlined the terms of reference for the review along with the Panel's conclusions and recon&endations (Chapter 5). rice in . The firse four chapters are primarily descriptive. This summary will concentrate on the Panel's overall assessment along with its conclusions and recommendations - all of which are treated in greater detail in Chapter 5. II. Gverall Assessment WARDA was created with the primary objective of reducing the It was region's dependency upon large quantities of imported rice. of millions of farm recognized, as well, that the economic well-being families in the region could likely be enhanced through improvements in rice production. The WARDA Member States are due much credit for their recognition in the creation of an of a major regional needs their initiative commitments organization to respond to the need , and the significant Such an interthey have made to support the WARDAprogram. effort is unique among Third World countries and governmental, self-help merits the highest praise. (a> Progress towards achieving objectives j To date, WARDAhas undoubtedly served many useful purposes. It has created a climate for regional cooperation which extends beyond viii matters related directly to rice production. The programs of WARDA have highlighted the complexity of the problems related to rise culture in the region and have helped to establish the basis for progress in rice production. * 16t should be recognized, however, that the primary objective of WARDA, the enhancement of rice self-sufficiency in the regionp has not been achieved. Indeed, the region is mush more dependent on lpiee imports today than when WARDA was established. For example, the WARDA three-fourths of the rice it consumed region was producing approximately in 1965/69 just before WARDAcame into being, but only one-half of its needs in 1980/84. During this period rice imports grew some 350%. The Panel recognizes the major difficulties imposed by biological, chemical, physical, aocio-economic , and.po.I.itical constraints to rice Indeed few, zI% any, areas of the world produczion in the region. present more serious problems. These problems serve to underscore the on a need for a concerted research program0 as well as other efforts broad front, to address the constraints faced. The need for such effort is greater today than when WARDAcame into existence in 1970. W Factors limiting WARQA's effectiveness The concept of an inter-governmental' r%ce $evelopmFt association It is clears however, that in West Africa would appear to have merit. WARDA haa not had the desired impact on rice production. This is due to several factors including the orientat%on or focus of WARJJA'sprogramS its.governance and management, and fts fumdfng. Orientation of the were very broad* 'Theaa development organization not, however, represent concarned with research, symtem. program. The original objectives of WARDA wera appropriate aims or objectives of a which WARDA was commissioned to be* They do the objectives of an organization primarily as are other member institutions im the CGIAR Although the need for a research component was recognized in the WARDAcharter, primary emphasis was placed on the adaptation of t echaology rather than its generation a This focus or emphasis was based on the widely held assumptfon at that time that there was available in the global community much rice technology whkh could be readily adapted Such an assumption has proved to be to West African eonditionm. apparent that specific erroneous s and it has become increasingly technologies need to be developed for the harsh environments and other diffieu%t conditions often encountered in the region. The absence of such a research orientation‘ or focus has limited WARDA's effectiveness and achievements. During the past two years WARDA has moved toward the development of a more sharply focuseed research program, consistent with the recommendationa ef the 1983 External Program Review. This program, however, $9 in its early stages of development, and other problems A#s governaocep management, and funding have limited assocfated with its itmplemer%tation and progresao ix Governance and management. The history of WARDAis replete with evidence of governance and management problems which have limited its effectiveness. Indeed, in the debate within TAC and the CGIAR before agreement was reached to fund WARDA, there was expressed concern that the political nature of WARDA's governance would pose problems in the operation of a research organization. In 1983 CGIAR External Program and Management Reviews focussed on various problems in the governance and management of the Association and' concluded that WARDA's inability to transform its considerable assets into more useful technology for the region was due, in substantial measure, to management inadequacies. The Review Panels developed a number of significant recommendations to deal with some of these more serious problems. In its 1984 and 1985 meetings, the Governing Council of the Association took a number of actions to address the recommendations of the Panels. Members of TAC have been encouraged by these positive actions. However, the Mid-Term Review Panel has encountered sireumstances which give rise to renewed concerns about WARDA's governance and management and raise serious questions.about the extent to which some of the key recommendations of the 1983 External Review Panels are being implemented, ._ Furthermore, it would appear that the leadership‘ of the Governing Council has intervened in management decisions which keep WARDA's management from taking needed actions relating to programs and budgets. Such intervention would appear to involve the Governing Council in operational matters which go beyond what would seem to be appropriate gives the functions of such a policy making body. The current situation Review Panel little assurance that the past problems in governance and management will be significantly improved. _..-. -. .-__._ The CGIAR and especially WARDA donors are acutely aware Funding. The Panel finds the of WARDA's continuing financial difficulties. difficulties are real, but the problems are not as acute as they appeared to be one year ago when the Association seemed on the brink of becoming insolvent. Several things have happened to make the situation appear better. First the current leadership of WARDAhas reduced administrative personnel and related expenditures to more nearly conform with expected budgets were significantly revenuesc For several years administrative higher than contributions from Member States to the General, Fund, making it necessary to use some US$ 5.0 million in Special Fund reserves contributed to support special research, training and development projects of the Assocation. Another reason for the more favourable current financial situation is the fact that in 1985 planned research operations had to be curtailed by some USS 700,080 in order to support the administrative budget of the Hence, there was a significant carry-over of resources Association. into 1986, However, the research program was severely hampered in 1985 by such "forced" reductions in program expenditures in order to meet administrative budgetary requirements which are the responsibility of the Member States. X A similar situation is developing in 1986. W ith one-third of 1986 now gone, no Member State contributions have yet been received for Consequently, to keep the Association operating, it is this year. necessary to use program funds supplied by donors to support the admfnietrative budget, with the hope that Member State contributions will be forthcoming to replenish the program funds. these difficulties, the Panel is convinced that the to meet their assessmemts does not result from a lack of interest or'commitment. In fact few, if any, Third World inter-governmental organizations have received better support than WARDA prior to experiencing the serious economic problems at the beginning of ~ the 1980s. W ithout exception, all the political leaders in the region interviewed by the Panel continued to express the strongest support for WARDA. failure of the Pfember States Despite all Despite such goodwill and desire, however, the fast remains that the current financial situation in WARDAhas been, and remains, serious. Accordingly, the Panel believes there is little hope for a viable, sustained ~%ee research program in West Africa, unless there is a different, more stable funding source than that being provided by the Member States fat the administrative budget. 1116. General Conclusions The Panel is in general agreement with the conclusion reached in the Second External Program Review that neither WARDA'e research effort nor its contributions to rfce development capacity is consistent with Indeed the Mid-Term Review Panel the level of resources it receives. concludes that after 15 years of effort and the expenditure of some US $67.5 millfon, WARDA's achievements and contributions appear, at best, Por'example, the research program has contributed little to be modest. to rice improvement or to building national institutions, and, even today, has the eharacteristies of a program that is in its very earliest stages of development. While arriving at such a conclusion, the Panel recognizes and These applauds a number of developments in WARDA since the 1983 review. include: (1) (2) The leadership Secretary; of an able and effective Actfng Executive The sonsolidation of the Research and Development Departmenes along with the appointment of a Mrector of the consolidated Department who meets the highest %wternational standards for such a position; A significant reduction in the administrative staff and budget along with the development of an integrated program. 'Eha reconstitution of the STC, with the apparent willingness the Governing Council to delegate certain functions to it. The appointment of a Cont~oUCr and an Internal (3) (4) (5) of Auditor. xi The Panel notes, however, that most of the improvements noted above are associated with extraordinary efforts of specific individuals. The Panel fully recognizes that, with time, these individuals will change; however, the.Association remains a political body, controlled by the Member States. Given WARDA's history under such governance, there is little assurance that these positive changes can be sustained. Furthermore, the effectiveness of the Association continues to be limited by many circumstances and problems outlined in the report. IV. Recommendations Despite the problems noted above, the Panel concludes that the need to increase rice production in West Africa - the primary purpose for which WARDA was created - is greater today than ever. It further concludes that a strong, sustained research program is needed to meet this need. Accordingly, (1) (29 the Panel recommends: a well-integrated rice research program in That the CGIAR support West Africa. That, contingent on assurance of cooperation and support of the countries in the region, there be created the West Africa Rice Research Institute (WARRI) as the primary entity for carrying out such an integrated program. That WARRI be constituted as an international organization with the basic operational characteristics of the IARCs in the CG System. That WARRI receive in the CG System. CGIAR financial support as a constituent center (3) (4) That, with the concurrence of WAR.DA,the desired research and training programs currently carried incorporated in WARRI. (61 elemetits of the out in WARDAbe That the desired elements of the rice research and training efforts at IITA be transferred to WARRI to constitute an important part of the WARRI program. That close ties or linkages be developed between WARRI and IRRI, That WARDAMember States be invited to join with the CGUR in establishing WARRI and that both IPTA and PRRP be involved in the process a8 well. (9) That, while WARRI should be an autonomous organization, there should be a close, complementary relationship with WARDA. Xii v. The Panel's Conception of WARP1 The Panel sees WARM as an institution engaged primarily in research. WARRI's responsibilities, as set forth in its mandate, should include, primarily, the following three inter-related elements: research; research-related the strengthening training; and e of national rim research programs. new These three elements would jointly be geared towards generating technology for rice in West Africa. In implementing its mandate, WARRZ should work closely with uational research institutions concerned with H.ceO These should include the current members of WARDA,plus the countries with similar ecologies which lie outside the WARDAregion (for example, the Cameroons) . WARRI should also work closely with regional and international institutions conserned with rice research or development in West Africa. In the Panel's view, WARRI's primary program focus should be on upland rice and its secondary focus on swamp rice. In the initial years, though, WARRX could play a catalytic function in linking IRRX's and other IAKCs' findings on irrigated rice to the national research programs in West Africa. Governance as an autonomous 9 im,ternational .- The Paxw.l places utmost importance on the establishment of WARS1 center governed by an international board of independent .members, serving as individuals. The Panel places with the full support and equal importance on the creation of consent of WAUDA'aGverning Council. is also essential that the I Board and Management have regular dialogue and links with WARDA's governing bodies and management. . (b) Size and location The Panel visualizes WARP1as a center with about 30 senior staff when fully operational and considers that WARPI's headquarters should be The Panel believes at or very close to its primary researck station. that the BouakelYamaseoukro area of G3te d'Ivoire is the logical first choice for WARRI's headquarters as the muclens of WARDA's current upland rice research effort Is centered there, and the area offers many other advantages o (cl Staffing and salaries In the Panel's opinion, the staffing of WARRI should be left or II’ EA staff entirely to the WARRI Board and management. No WARDA should be assumed to be transferred automatically to WARRI, although the Panel Bees potential for many WARDA and IITA staff to p%ay an important role in WARRI. xiii WARRI should establish salary standards similar to those in other CGIAR Centers, to enable WARRI to attract and retain top scientists and administrators. Salaries of locally-recruited staff should be competitive with local conditions and those offered by other . international organizations operating in the area. Cd) s The Panel envisages that WARRI, WARDAand the respective'host countries would reach an agreement on the terms of transferring the facilities and other assets currently used by the WARDAresearch program which would be needed by WARRI. In addition, there would be need to build, furnish and equip the WARRI headquarters. The headquarters complex would mainly inelude offices, laboratories, and training and research support facilities, The precise arrangements for building the headquarters would have to be negotiated with the government of the country hosting WARRI's headquarters. There would also be need to upgrade the facilities at Rokupr, and this should be addressed by the WARRI board. Rowever, the headquarter? facilities complex should be given first priority in the construction program. (e) Physical facilities . Costs and funding WARRI would be a member of the CGIAR family of IARCs and would receive its core funding from CGIAR donors. When fully staffed, WARRI's annual resource requirements for its operations are likely to be at the ~ US$ 5.0 million level. To this must be added resources required to cover capital costs, which can be roughly estimated at US$ 5.million for the headquarters complex over a three year period. Thus, if WARRI were to become fully operational in 1987, its total resource requirements for 1987 would be about US8 6.5-7.0 million, This compares with total CGIAR resources currently channeled to WARDAand to IITA's rice research and training program of about US$ 3.5 (This figure assumes funding of WARDAby CGIAR and the other million. external donors for the remainder of 1986). The total external donor resources (including CGIAR) being.channeled to WARDA and to IITA's rice research and training program in 1986 is close to US$ 7 million. Thus, if WARRI becomes fully operational at the beginning of 1987, the construction program starts in early 1987 and if the external donors (including CGIAR) decide to rechannel all of their rice-related resources from IITA and WARDAto WARRI, these resources would be sufficient to meet WARRI's 1987 operational and capital costsa This example is given not to suggest to external donors (excluding CGIAR) that they should rechannel all of these resources to WARRI. Instead it is provided to illustrate the point that the resource implications of creating WARRI are not beyond the current funding patterns of external .donors. But, more importantly, after the capital costs of building the beadquarters are met, the continuing operating costs of WARRI are likely to be about three-fourths of what ia currently expended by the donors on rice research at WARDAand IITA. xiv . w evolution Relationships with WARDA ~_. _- The Panel sees the creation of WARP1as a natural stage in the achieve its goal of of WARDA, WARRI would help WARDA self-sufficiency in rice through a well-focussed and concentrated *research effort ensured of stable funding. WARDA,on the other hand, uould help improve.the links between research results and farmers' In the report the Panel suggests several specific mechanisms fields. for linking the activities of WARRI, IRRI and WARDA. VI. Implementation of the Panel's Recommendations The Panel's recommendations are addressed not only to the CGIAR but also to the Member States and governing bodies of WARDAand to the As implementation of these recommendations boards of IITA and IXRI. requires the prior consent of all, four parties concerned (lee* WARDA, CGIAR, IITA and IRRI), the follow-up mechanisms must allow for full consultation with each of these parties. Of the four parties the CGIAR will be the first to consider ehe report formally, as the governing bodies of the others are not scheduled to meet prior to the Ottawa meeting of the CGIAR next month. If the CGIAR agrees with the PaneI's recommendations at its Ottawa meeting, as the Governing Council of WARDAis not likely to have eonsidered,the report prior to Ottawa, we suggest that the CGIAR as its first decision on.WARDA extend an invitation to WARDAto join the CGIAK in establishing WARRI. (4 CGIAR Task Force on WARRI The most common mechanisms used by the CGIAR in establishing new centers are either to ask one of its members to serve as implementing/executing agency or to set up a small CGIAR Task For-se to establish the new ezentere In the case of WARM., the Panel believes tkat a CGIAR Task Force would be more appropriate as it would be desirable to have all involved parties represented in the committee which will oversee the establishment of WARRI. The CGIAR should invite WARDA to join this Task For&e, IITA, IRRI and donors active in the region should also be represented. If and when WARDAagrees to participate, the name of the Task Force should be changed to "CGIAR-WARDATask Force for the Establishment of a West Africa Rice Research Institute (WARPI)". At its May 1986 meeting the CGIAR should also spell out the terms of reference of the Task Forces along with a provisional timetable and budget. These should be forwarded to WARDA for its consideration. At the same meeting, the CGIAR should also ask TAC to advise the Task Force on the sharing of responsibilities between WA!XXI, WARDA,IITA and IRRI on rice research and development in West Africa from a long-term, Similarly, the CGIAR should ask its system-wide perspective. secretariat to advise the Task Force on future funding praspects. xv Tb) Funding for WARDA for the remainder of 1986 -- -_ In the Panel's view, the CGIAR should continue to provide funding --to WARDAfor the remainder of 1986 and encourage the bilateral donors to of programs, some elements of do the same. This would avoid disruption which might be transferred to WARRI. It would also enable WARDAand IITA to wind down their rice research operations under current arrangements. In the Panel's view, the Task Force should aim to have WARRI begin its operations by 1 January 1987, even if this implies working with a smaff nucleus staff to keep going the programs transferred from WARDA and IITA. The Task Force should be in a position to present to the CGIAR in November 1986 a 1987 budget reflecting the most realistic _-expectations concerning WARRI activities in 1987. The involved centers should likewise be prepared to discuss alternative budgets for 1987, prepared in concert with the Task Force. VII. Postcript ---~-~-- The Panel's recommendations are based on two key assumptions: (I) that WARDA will collaborate with the CGIAR in setting up WARRI; and, (2) that WARRI will co-exist with WARDA. If the Member States decide to join hands with the CGIAR in establishing WARRI, but at the same time, the concept of WARRI outlined choose to discontinue WARDA's operations, in the report will need to be rethought in the light of the circumstances created by the absence of WARDA. Alternatively, if WARDA rejects the concept of WARRI or otherwise refuses to cooperate with CGXARin settting up WARRI, the CGIAR needs to explore alternative means of supporting rice research in West Africa, _. In the such as through an expanded IITA or an expanded IRRI program. Panel"s view these two alternatives are not likely to be as effective as a unified rice research programs particularly if the countries in the Under such a region do not welcome CGIAR involvement in rice research. scenario, the proposed Task Force, in collaboration with TAC, could recommend a course of action for CGIAR's support of rice research in West Africa or all of Africa. On this last point it should be noted that the terms of reference of the Mid-Term Review Panel are limited, geographically, to West Africa. the Panel recognizes the growing importance of Nevertheless, rice in other parts of the African continent and the related need for effective national research programs. The Panel, therefore, suggests tAat what it proposes for West Africa could well fit into an integrated rice research program for the entire continent, south of the Sahara, should the CGIAR wish to consider Such an Africa-wide such a broader scope of effort at a later date. program might be carried out by an African Rice Research Institute an integral part of (AR=) P with the West Africa program representing the total effort. .._ 1. INTRODUCTION 1.1. Background for and Purpose of the Review The West Africa Rice Development &sociation (WARDA) is one of the 1, thirteen International Agricultural Research Centers (IARCs) supported by the Consultative Group on International Agricultural Research ( CGIAR) . It is unique in the CGIAR by virtue of its intergovernmental status and primary focus on development rather than research. Its major objective is self-sufficiency in rice production for the WARDAregion, which consists of 16 member states. 2. The Technical Advisory Comm%ttee (TAC) of the CGIAR and the CGIAR Secretariat, respectively, periodically conduct external program and management reviews of the IARCs. WARDAhad Its second External Program Review (EPR) and first External Management Review (EMR) during 1983. A number of wide ranging recommendations were made by the two Review Panels. The reports were‘ discussed by TAC at its 32nd meeting in October 1983 and again at its 33rd meeting in March 1984. The Governing Council and the Scientffic and Technical Committee (STC) of WARDA, at their meetings in December 1983, agreed to all recommendations of the EPR and EMR except the one concerning the elimination of the post of Deputy Executive Secretary. 3. The CGIAR considered the External Reviews in May 1984 and endorsed the recommendations of the two Review Panels, as well as TAC's The CGIAR further concurred with the Commentary on the reports. procedures proposed by TAG and the CGIAR Secretariat to monitor WARDA's The strategy suggested by progress in implementing the recommendations. TAC included a Mfd-Term Revfew of WARDAduring 1986. Between June 1984 and March 1986, both TAC and the CGIAR jointly and separately organized several vis%ks by Secretariat staff and consultants to WARDAand participated at meetings The missions and meetings discussed of the STC and Governing Council. program, financial and management issues and reported to TAC and the Progress reports were prepared for discussion in TAC CGIAR Secretariat. and the CGIAR. On two separate occasions, namely November 1984 and October 1985, TAC found it necessary to advise the CGIAR to withhold a This was due in part to recommendation on WARDA's budget. non-complienee by the b3OCiakiOn with the recommendations of the External Reviews as well as a series of financial crfses caused largely by non-payment of assessed contrfbutions by some member states of WARDA. Secretariat 4. 5. At International Centers Week 1985, the CGIAR discussed WARDAand decided to approve its 1986 Program and Budget OR a conditional basis and agreed k0 disburse funds for the first half of 1986, pending the outcome of the WARDAGoverning Council Meeting in December 1985. The Group welcomed plans by TAC and the CGIAR Secretariat to mount the Mfd-Term Review of WARDAin April/May 1986 and decided to wait for the findings of this review before taking further steps on CGIAR funding to WARDA after Jume 1986. . 2 1.2. . The Md-Term Review 6. Ak its 39th Meeting, TAC and the CGLAR Secretariat confirmed plans for the Mid-Term Review of WARDAand decided to conduct the review joinkly from 14 April - 2 May 1986. The Committee noted that the financial situakion had improved considerably after the December 1985 WARDAGoverning Counsfl Meeting. However, doubts skill existed regarding the stability of future funding and a so%ukion ko the persistent problems relating to the m&mq$emenkand governance of WARDA. Therefore, the scope and purpose of the review were expanded to ensompass formulation of a strategy for a comprehensive rice research program in West Africa, including associated mechanisms for governance and program structure. The following terms of reference were agreed upon: "The Review Panel will assess the current status of WARDA's progrhm and management and develop recommendations for meeting, most effectively, the rice research and training needs in West Africa. 1x1 the course of its review the Panel will, address several major areas of concern, including the following: 1, 2. 3. 4. 5. 6, 7. 8. Response by WARDAto previous reviews; Status of WARDA's research program and its relation to rice developmenk in West Aft%=; Status of WARDA's training program; RePakionship between WARDAand other IARCs - 'progress towards a well-Integrated program for rice research in West Africa; Relationship between WARDAand national research programs; hnagemenk and governance of WARDA; Financial viability of WARDA; Alternative models for effectively meeting rise research and training needs in West Africa." Agenda . 1.3. The Review Panel and its 7. The Review Panel was composed largely of TAC members and Skaff from the CGIAR and TAC Secretariats*. The Chafrman of the second EPR, who fs also a member of khe STC of WARDA, and a spaeiaPisk on financial management issues were invited to join the Panel. The names of the Panel members are: Dr. E.T. York Panel Chairman, TAC Member and Chancellor Emeritus, Skate Llaiversity System of Florida, USA Chairman of,kha Second EPR of WARDA, Member of the WARDASTC, former Director of the National Center for Research on Rice and Beans (CNPAF'), Brazil Dr. A. Blumenschein c I 3 Dr. E.Q. Javier TAC Member, Minister for Science & Technol-ogy, former Chancellor, University of the Philippines at Los Banos Philippines TAC Member, Professor, Economic Geography, University of Abidjan former biinisker of Agricuiture C%te d'Ivoire Financial Specialist, former Professor of Financial Management and Business Policy, Gas1 University, Ankara Turkey TAC Member, Professor of Agricultural Policy, Technical University of Munich, Fed. Rep. of Germany Management Advisor CGIAR Secretariat Washington D.C., USA Scientific Advisor CGIAR Secretariat Washington D.C., USA Executive Secretary, TAC Secretariat Rome, Italy TAC Dr. A. Sawadogo Dr. D. Sindiren Dr. W. von Urff Dr. S. Ozgediz Dr. D. Plucknett Dr. J.W. Monyo 8. Dr. E.Q. Javier visited IRRI in 3 April and Dr. J.B. Monyo visiked IITA on 1% April to discuss with the managemenk and obtain quantikstive daks on resourfzes spent by those two Centers on rice research and Preliminary views of related training activities in or for West Africa. IITA and IRRI on the future of rice research in Wesk Africa and their perceived roles were also sought. 9. W ith the.exCepkion of one members the Review Pamel assembled in Abidjan, C8te d'fvoire, on 13 April and started its program the nexk day. On 15 April the Panel met with the Minister of Rural Development the Hon. Gilles Laubhouek Vally, and then travelled by of Ci3te d'Ivoire, mad to Bouake. En route to Bouake the Panel visiked a WARDAirrigated site which was being used for seed mulkiplicakion and rapid generakian sdvance at Tombokro, near Yamassoukro, the proposed new capital of C8ke d'Ivoire. 10. In Bouake, discussions were held with the man%gemenkand staff of WARDA's Regional Upland Rice Research Station, Institut des Savanes (IDESSA) and Centre Ivorien de Machinisme Agricole (CIHA). Research sites and facilities in the Bouake area were visited and reviewed. . 4 The Panel returned ko Abidjan on 18 April and travelled to Dakar, 11. Senegal. On 19 April the Panel met for a lengthy discussion with the Minister of Rural Development of Senegal, the Hon. Famara Ibrahima Sagna, currently Chairman of the WARDA Governing Council. The Panel khen proceeded to St. bulls to visft WA.RDA'sRegional Irrigated Rice Research Station. 12. On 22 April the Review Panel moved to WARDA Re%dquarkers in Monr&ia, Liberia, for the final phase of the Review. In Monrovia the Panel was joined by Dr. S. Oxgediz. Discussions were held wikh khe WARDA Management on 24 April and a visit was made to the WARDA Regional Training Center at Fendall on 25 April. Mr. R. Tadvalkar of the CGIAR Secretariat participated in the discussions and visiks in Monrovia and at Fendall. Panel Members also visited the Liberian Minister of Agriculture, the Hon. Roland S. Toweh, and other officials of the Ministry. 13. The Panel Chairman and Dr. D. Plucknett visited the USAID Hissiom in Liberia on 23 April for discussions with the Mission DirectorP On 23 and 24 April, Dr. Mary Rilgour, and other USAID officials. respectively, khe Panel Chairman held preliminary discussions with the Chafxkan of the ST6 and the whole STC. This was followed on 25 April by a joint meeting of khe Panel and the STC during which the major recommendations being considered by the Panel were outlined by the ChSd.~. In the ensuing discussion, the rationale for the recommendations was elaboraked and comments were sought from the ST6 members. 14. Finally, the Panel moved to FAO Headquarters in Rome, Ikaly on 26 April to finalize its repork. Mr. Jerry Wood, of khe Africa Bureau, Agency for International Development, Washington, joined the Panel on 1 May during the final stages of preparing the report. The Panel expresses its appreciation for his interest and input. Dekails of the review program and.the ikinerary, including persons met and instikutfsws visited, are shown in Annex I. 1.4, Acknowledgements 15. The Panel wishes to convey its sincere appreciation to the Acting Executive Secretary, Mr. Alieu Jagne, and the staff of WARDA for their cooperatioa and assistance during the course of the Review. Special recognition should be given kc Dr. J.E. Johnston, Direct& of the Research and Development Department, who accompanied and assisted the Panel during much of its work. 16. Tbe Panel was honoured 60 meet khe Ministers of Agriculture/Rural Liberia and Senegal and okher high Development in ake d'Ivoire, offisials in the three countries. The USAID Eiissioa in Monrovia kindly provided facilities for secretarial work, without which the Panel would not have been able to complete its program on time. 5 2. RICE IN WEST AFRICA 2.1. Rice Production Systems , 17. Africa has about 3% of the area devoted to rice in the world and aeczounts for less than 3% of production. The West African Region accounts for 1.8% of the global rice areaL and about half of Africa's production. 18. Upland rice constitutes by far the most important rice production system in the Region, accounting for about 58% of the rise area and occupying some 1.45 million hectares (Table 2.1). The upland rice zone of West Africa extends south of the 14' N latitude from the Gambia and Southern Senegal through Central Nigeria. The northern limit lies within the zone with 600-1,000 mm of annual rainfall. In Ghana, 97% of the rice area is under upland rice while in C8te d'Ivoire upland rice is grown on 93% of the total rice area@ Farmers in C8te d'Lvoire cultivate upland rice under two different conditions: savannah in the north and forest zone in the center and center-west of the country. Almost all _ rice in Liberia is grownunder upland conditions. 19. In most of the countries, upland rice is mainly grown under shifting cultivation and inter-cropped with other crops such as maize, cowpeas, yams and cassava. Rand tools are used for land preparation by the majority of the farmers. Seeding and weeding are done by hand. Fertilizer, insecticide and fungicide use is limited. Hand knives are the main tools used for harvesting. Storage is done in bundles or in Threshing is sacks9 pots, pans, tins or large bins after threshing. done manualiy. Upland rice is grown mainly for family consumption. 20. Other rice production systems in West Africa comprise irrigated rice culture (al%, including inland swamps), deep flooded and floating rice (16X), and mangrove rice (5X, including associate swamps). (Table 2.1). 2%. There has been a steady increase in the area under cultivation Between 1965 and 1969, some 1.7 over the last 15 years in West Africa. By 1980-84, this area had million hectares were planted to rice. expanded to approximately 2.6 million hectares (Table 2.2), According to FAC estimates the area under rice culture could reach 5.8 million hectares by the year 2000. p! 2.2. Production and Consumption Patterns 22. Rice production in West Africa has risen from 2.0 million tons in 1965-69 to 3.1 million tons in 1980-84 (i.e. by 55X), largely through area expansion. According to data from FAO, IITA and WARDA, the productivity of rice in West Africa has been historically low, Average yields have remained in the range of 1.0 to 1.3 tons of 1/ In-Depth Study of Agricultural Rome, 1986 and Food Problems in Africa, FAO .a 6 TABLE 2.1 - .----.- - - . TYPES OF RICE LAND BY ECOLOGY IN WESTAFRICA, 1981 (1000 Ha) l-/ (Sources : s WARDA1984, FAO 1985) a . - --- .-.- -.--_ - -.- -~ ._-- -._-_.-- UPLAND IRRIGATED MANGROVE INGLUDING INCLUDING ASSOCIATE SWAMP SWAMP Area (Xl DEEPFLOODED TOTAL AND FLOATING _. _ - _ __ .__- - - .--. --- _..__.__.- .._ COtlNT-RY Area (X9 Area (X9 O .O( 0) O .O( 0) ‘ O .O( 0) Area (Xl Area 9*8 Benin Burkina Faso 6te d’ fvoire Gambia Ghana Guinea Guiaea'Blsaau Liberia Mali Mauritania Niger Nigeria Senegal' Sierra Leone Togo TOT&d 5.3(54) 18.9(49) 430.0(93) 4.5(15) 59.0(97) 315.0(58) 16.8(40) 1?8.2(89) 7.8( 5) o.og 0) O.O( 0) 104.9(22) 52.0(71) 241.0(65) 17.$(72) 1,451.5<58) 2.4( 19.5( 30.0( 2.7( 2.0( 9.1( 4.2( 20.9( 25) 5B') 7) 9) 3) 2) 10) 11) 38.1( 25) 3.5(100) 4.7( 22) 265.0( 56) 10.9( 159 lOO.O( 27) 0.7( 39 513.6( 21) 22.4(73) O.O( 0) 63.7(12) 21.0(50) O.O( 0) O.O( 0) O*O( 0) O.O( 0) O.l( 0) O.O( 0) 20.0( 5) O.O( 0) 127.9( 5) 2.1(21) O.O( 0) O.O( 0) l.O( 3) O.O( 0) 150.9(28) O.O( 09 O.O( 0) 104.1(70) O.O( 09 16.3(78) 105.0(22) 10.7(149 12.ot.39 6.3(259 408.4(16) 38.4 460.0 27.8 61.0 538.7 42.0 199.1 150.0 3*5 21.0 485.0 67.2 373.0 24.8 2,501.3 L/ Chad, which joined WARDAjust recently, is not included. TABLE 2 .2 RICE PRODUCTION, CONSU?@T~ON AND IMPORTS FOR WARDA HEHBER STATES AVERAGES I 1965~49: 1975-79, 1980~84! l/ I- CONSUNPTION PER CAPITA (KC/YR.) AREA UNDER PICE I PAUUY PRODUCTION YIELDS OF I PADDY j ! NET :IMPORTS xfo) SELF-SUFFICIKNCK RATIO (X1 (‘ 000 NA) (‘ 000 IIf) (KC/RA) (‘ 000 LIBKPIA SIERRA 86 LEONE 02 60 122 95 91 135 326 25 282 40 -91 340 1 . . . ..-. 168 221 25 2 38 14 34 1142 + 198 425 23 415 43 84 439 2 1161.1. 110 249 25 10 41 21 68 2215 *49 220 395 23 363 129 66 541 4 148 4l;l 34 308 56 116 321 1 I I. 246 602 31 494 59 116 396 7 1.1. 194 441 22 20 34 26 b6 2754 +55 j 280. 406 32 386 100 107 451 13 I. 131 1015 23 8 ‘ 37 42 b3 3080 1096 1282 1346 1042 1390 1273 943 1382 . 931 1355 803 681 969 1240 1416 1336 1192 1332 1380 902 43b2 . 1142 1710 873 1963 820 1229 975 1243 . 1272 1028 1423 1056 177 1626 824 3503 . . 935 1803 1227 1025 1105 2024 095 1183 . . . 1.1. 37 21 9 58 11 165 35 9 52 28 21 102 16 214 0 36 c I 92 50 36 3D.2 22 337 16 58 -2 101 521 22 20 29 68 46’ 1782 -4 1.11.1.. 52 51 34 47 61 30 75 29 I SO 53 55 27 45 * 37 46 46 a GANmA ~.DII.....*~........I.~.......err~.aca.rr.rs...r.~.rrr~~r.r.r. COTE D’ IVOIUE 34 68 GUINEA BISSAU 127 48 49 7 64 59 42 42 . . 24 11 10 8 SENEGAL GUINZA MAURITANIA . . . . . . . . . MALI . 22 2 7 2 140 563 18 8 33 aa. 11 2603 -3 156 299 20 2 37 34 41 %990 e- 4 1 3 6 3 1 35 399 c I 16 285 9 15 20 10 40 !ps +a47 NlGEftLA TQGO BENIN BURKINA NIGEP GNANA WEST AFRICA PASO 4 2 9’ 12 a 8 7 21 2477 1203 1142 e--*3&, INCREASE Z + l 79 -+ * Grouped SOURCE : by inporcancc and PAO. of coniungtion per sapits. .: UARDA 1986. ! ! I ’ I I I / I I ~.j Chad. which joined WARDA j&St \ r+Xently. iS not included. a paddy per hectare only 3% in average However, it should severe droughts in 23, under rainfed conditfons. There was an increase of yields from 1965-69 to 1980-84 period (Table 2.2). be noted that the latter period was characterized by most of the WARDA Member Gountrfes. rice situation outlook for 1985-86 shows that The FAG world Africa is the second largest regional market for rice, In recent years, rice imports to the,WASDA region have arxounted for about 13% of world rice imports, up from 5% in the 1960s. *Net imports increased by about 350X, from 0.39 million tons in 1965-69 to 1.78 million tons in 1980-84. wgional self-sufficaency in rice, which stood at over 70% in 1970-74, dropped to 46% in 1980-84 (Table 2.21, None of the WARDA Member States Fs presently self-sufficient in rice. 24. Three West African countries (Liberfa, Sierra Leone and the Gambia) have rice as a major staple food (annual consumption of more In five countries rice is an important than 90 kg per capita). component of the diet (annual consumption 30-90 kg per capita) and in the other eight countries rice is a smaller component of the diet (annual consumption 7-36, kg per capita) (Table 2-2). 2.3. Roductfon Problems and Gonstraints The major problems and constraints-which are commonly observed in 25. rice production in West Africa9 recording to FAG snd WARDA sourcesp are either biological (dfseases, insects, birds, rats, weeds, etc), physical Qdrougkt stress and soil problems), iast1tat~onal (weakness of national research systems) or socio-economic. 2.3-l. Biological constraints 26. Attempts to increase rdbce product%v$ty in West Africa have been hampered by the prevalence of pests, such as weeds, inseets, diseases, b%rdrs and rodents. Diseases; %naect borers, termites; nematodes; birds and rodents; and weeds, have been, and continue to pose, serious problems. Results obtained from many field surveys by WASDAscientists show 27, that farmers regard weeds as the most important pests followed by birds and rodents. Serfous weed infestation occurs in the early stage of plant development at two-three weeks after germiaation under upland conditions. Mowever, most farmers usually remove weeds later than they should, mainly due to high labour costs and other on-farm activfties Yield reduction due to weeds is that compete for family labour. estimated 60 range between 76-100X under upland conditions and 35-75% for lowland rice. Traditional farmers control weeds mainly by shifting their farms to new lands and manual weeding. 28. Insects and diseases, are generally considered less of a problem than weeds, probably because most traditional farmers use indigenous Furthermore, the use of small varieties which have some resistance, farm units under shifting cultivation Most rice populations and diseaseaef2osystems o Stesborers and termites prevents the build-up. of insect Insect pests are CQUEUO~ to all are among the most important ones. P . 9 Birds and rodents are serious as high as 50% due to rodents pests in the region. Crop losses can be while birds can cause up to 100% damage. Crop 29. Important rice diseases include neck blast, leaf blast, leaf scald, sheath blight, glume discolouration, nematodes and viruses. losses due to diseases could be as high as 50% in some years and locations. There is an acute shortage of improved high-yielding varieties with resistance to the major pests and diseases. 2.3.2. Chemical and physical constraints 30. Soil fertility, soil conservation and water management problems are among the major constraints to increasing rice productivity. In the humid and sub-hum id areas of West Afrfca the soils are highly weathered and highly leached o They have relatively low base exchange capacity and low water holdJ.ng capacity. Upland rice is largely grown on poor soils under shifting cultivation and frequently suffers from drought stress. 31. ken toxirzity and lack of appropriate crop management practices also contribute to the low.average yields found in West Africa. 32. Moisture stress is a major lim iting factor in the growth and yield Climatic stresses affecting irrigated of upland rice in West Africa. rice production in the Sahel include temperature, (low temperatures of less than 15’ C occurring from November to February and high temperatures of more than 40°C occurring during May/June), dry winds, and relatively low humidity. 2.3.3. Weak institutional support Ihe hfstory of rice research in West Africa goes back to the 1920s 33. when researCh work started at Moor Plantation in Nigeria. In Sferra Leone% rice research started in 1934 at Rokupr, while in Senegal and Liberia rice research programs were knitfated in the 1950so Wowever, only a few national research organizations in the region have well-organized rice research programs with the necessary cri.tical mass Therefore, there is fnadequate of human and financial resources. indigenous’ capacity for research in the region. 2.3.4. Socio-economic ednstraints 34, Ihe findIngs of the first Quinquennial Review of WARDA indicated a rapid increase %n rice consumption relative to production in the West African region e The ultimate result was the tidening of the gap between production and consumption. 35, The second EPR considered the role of population and income substitution of other cereals by rice, and heavy growth, urbanization, subs%d%aation of retail prices aa main factors for the observed increase The WARDA Member Countries operate guaranteed producer in consumption. price schemes aimed at providing economic incentives. However, given the fast that farmers often produce rice primarily to meet thePr subsistence needs, because market channels are not well developed and 10 facilities largely inadequate, the Impact of economic bentives is limited. They may also be counteracted by over-valued exchange rates and lack of foreign exchange. Insufficient arrangements for farm credit may also be a severe coastraint to increased market production. 36. To overcome the existing constraints, a series of actions are These include the need to consolidate the market for food necessary. production in West Africa; promotion of a price policy for terms of trade which are more favourable to the*ressurce poor farmer; improvements in the supply of inputs, factors of production and consumer Increased credit facilities and provision of goods in the rural areas: greater access to farmers. 37. The following valid: “Whatever observation made by the 1983 EPR seems to be still the economics of rice production in the various member from a social or private economic viewpoint, the reality is that governments are going ahead Bn designing programs for fwsreaaed food pr iacRfgPnfweldi All the countries have rice. oa@aing special programs and projects to increase paddy production, but to date it is difficult to argue that these projects have made much csneribution to production." states, WABDA are far is important in West Africa but the objectives of achieved, A tide range of biological, chdsaf, physical and socia-economic constraints have hindered the The Panel concludes y attainment of self-sufficiency an rice production, that, despite all the research and development efforts which have gone into the improvement of rfee prsduetion in the WARDA region since the early 19%Os, f%ve major factors are stil% limiting rice production and lack of Improved varieties tith desired productivity in West Africa: characterfst$cs; high incidence of pests and diseases; s&A, crop and watar ~agement problems; weakness of national research programs; and ocfer=eeonmfe sonstraints. 38. %rom being In s-r-y, rice 11 3. WARDA- ITS CREATION, EVOLUTIONAND CURRENT STATUS 3.1. How WARDACame into Being 39. At an international conference held in Monrovia, Liberia, in September 1969, West African countries decided to form an association to improve rice production in the region. A number of meetings and seminars were held to define the program of the proposed organization. A draft constitution was prepared and an interim advisory committee was set up with the assistance of FAO. 40. A redrafted constitution was submitted to a conference of plerdpotentiaries representing governments of West African states held in Dakar, Senegal, from l-4 September 1970. Eleven countries were represented at. the Dakar Conference: Gambia, Ghana, CBte dsIvoire, Liberia, Mali, Mauritamfa, Niger, Senegal, Sierra Leone, Togo and Burkina Faso* The Conference established WARDA, adopted the Constitution, set up Credentials and Drafting Committees, and agreed that the primary units of WAEDAwould be: the Governing Counsil, a Sciewtifie and Technical Committee, and an Executive Seeretar%at. The members also agreed that the headquarters for WARDA would be located at Monrovia, Liberia. 41. The 11 countries that participated in the 1970 Dakar Conference were original members of WARDA. Benin, Chad, Guinea, Guinea Bissau and Nigeria have joined since the founding meeting, bringing the present membership to 16, 42. After the 1970 Dakar meeting, an assessment was made of rice in West Africa. The resulting document, "Rice in West Africa", gave the overall situation of rice production, research and extension in the region. FAQ, acting as the interim secretariat of WANDA, prepared a five-year mid-term work program which was issued in Mareh 1971. The firstmeeting of the Governing Council was held in September 1971, A draft research plan was submitted to an extraordinary meeting of the Governing Council in Mali in May 1972. 43. 3.2. WARDA's Executive CGIAR Involvement Secretary took office in December 1971. 44. meeting From its first meeting in June 1971, even before the first of the WABDAGoverning Council in September 1971, TAC was informed of presented a proposal the scope and activities of WABDA, In 1972 WARDA to TAC (4th meeting, Washington, 2-4 August 1972) which included a phased program of tern projects: Varietal Improvement, Training, Coordination of Eesearch and Development, Seed K%ultipl%eation, Fertilizer Experiments, Agrometeorology, Weed Control, Plant Rotection, The first proposal was deemed too Mechanfzat%on and Water Control. ambitious and expensive; a@sordfngly, a smaller, less costly proposal concerned with support of the Coordinated Trials (Reject W-l) was reviewed by TAC at its 6th meeting in Yuly 1973. (The Coordinated Trials had been started in 1973 using bilateral funds.) 12 45. July Considerable misgivings 1973 including: were voiced during the TAC'discussion'in whether the political, intergovernmental nature of WARDA would hinder the development of a viable research program; whether the inherent difficulties in conducting through cooperative management were too great; research whether WARDA was not, after ail, just too different from the other International Centers that it might not function effectively; whether the Mrsctor of Research would have full the trials (TAC insisted this was essential); whether the trials persome ; could be staffed control over - with adequately-trained could be obtained; with IITA, I whether adequata supervision and s of the trials whether there would he adequate cooperation IRAT, among others, TAC finally decided to endorse the concept of CCIAR support for that part of the WARDAeeseatsh program that pertained t6 the Coordin%lt'ed TAG did, however, draft a letter to the WANDA Executive Trialso Secretary, Jacques Diouf, listing its eoucerns and asking for a responsee (The letter from Mr, Diouf arrived before Centers Week 1973 and was used as the basis HOP the ICW discussions.) The CXXAReormidered the TAC recommendatLsn O'IBWARDA at its 46, meetfng QIP 2 August 1973 arka g Ecw, 1-2 ~~V~mbeK 1973, At the CC StPessea that several cjJqxmm~ me@g~~gb Aagmst, the TAC m A, including the weed cormai%I0 were necessary for SuppQKt ted eotxnd scientffie rn~sg~m~~t~ the appointment of a "Steerin mea" to twersee the progm3ms the need for a Direstor of he need for the Steering f.bumittee to select and nominate Director of Research. The CCIAR then agreed to conditional support for 9 provided research nagement was strengthened, im transsript of ICW (CCIAR Transcript of Proce International nte~s~ Week, 1-2 November 1973) refers often to A as a potential new member of "innovative" or "wovel* aatuxe of CGMO Kxdeed, one speakaz referred to the WARDA effort as a "nc~~el questions to TAC expePimat" 0 A.ftie~ sonsiderable discussion - insl~aimg frsa donors as tee whether fe eonsidersd the Diouf letter satisfsetory to meet TACoa eomx~ws (TAC responded that, in general, it did) - the CGIAR asked %OP%B &tow af hands Qtba~e were handa shown against the B .$ c~~s~~a~~~ tha%e was an idfA?aefon tbae: the kwqqxnzei-%3$ datisn 60 accept Ehe W-P pmgKam of W ‘ ARDA for c beem apprtaved, 47. 48, A matter The next TAC meeting (7th meeting, 4-8 February 1974) took the up again in sonsiderable detail‘ . The minutes Q7th meeting 13 of TAC, Rome, 4-8 February 1974, pasa. 82) state that the TAC Chairman told TAC that the Committee "had not so far been able to accept the proposals (of WARDA) and had sought further information on the nature and extent of the field trials.., the contributions to be made by member countries... and the precise nature of the relationships proposed with existing regional and international organizations with an interest in rice research, such as IRAT, IITA and 1RR.I.'" A new proposal had, therefore, been presented by WARDA, and the WARDA Executive Secretary was present TV discuss the new prapossl with TAC, 49. TAC Members again raised questions ineluding~technical level of the staff conducting the coordinated trials ; scientific direction of the trials as well as their supervision and coordination; handling and dissemination of research results; the nature of the proposed "Controlling Committee" for the W-1 trials; the clear need for a Scientific Director; the need for assurance "from the outset that the project w0td.a be under scientific and not political or administrative controlw* ) whether the number of committees reviewing research plans would slow the process; whether IITA would be involved; grave doubts about '"research being controlled and conducted by a committee""; and more. It was therefore proposed, and agreed upon, "that the regional coordinated research trials (W-B) should be supported, but only on a conditional basis..r*, one of the conditions being that TAC undertake an annual review of the project, for at least the first two years. 50. TAC then drafted a resolution on WARDA(the full text is given in Annex II) which includes such words as "the WARDAexperiment", '"its novel nature” and "the greater difficulties of providing control and It then listed six provisions as direction over the program". expansion of W-l should be conditional to CGIAR support, including: phased in line with scientific capabilities of member countries; high priority should be given to training; projects W-2, W-3 and W-4 should be considered as complementary to W-l ; active cooperation 0% IITA and IRAT must be assured; responsibility for the CGIAR-supported programs of “dearly and unequivocably WARDA(W-l and part of training) should be ‘ placed %n the bands of a Steering Committee"; ipna progress of w-l ~h~ia be reviewed am~ually by TAC. 5%. The first CGIAR funding of the W-l program was received by WARDA in 1974, and WARDA made its f$rst presentation at International Centers' presentation Week held on 29 July-2 August $974. In generalB the WARDA wss well received, but there were pointed questions concerning the role the somplex nature of WARDA's governance, 0% the Scientific Director, adequacy of supervision of the the scientific~quality of the W-1 trials, trials, and the nature amd beneficiaries of training. 52, Following ICW, because TAC was still not satisfied that the W-l mission was sent research was of adequate 6t8ndardp a joint Secretariat to WANDAto provide a basis for discussion o% WARDAfor the CGIAR meeting to be held three months later on 30-31 Getober 1974. The mission, consisting 0% the Scienti%ie Advisor of the CGIAR Secretariat, a program amd budget specialist from the World Bank and a representative visited WARDAand some 0% its field programs in of the TAC Secretariat, the Researck September 1974. Their report (Proposals for Strengthening and Financial Management of the West Africa Rice Development Association, dated 17 October 1974) was the first of a series of reports 14 of special reviews and missions sent to strengthen WARDA. The team made several recommendations relating to improved research management and coordination, the need for an integrated research plan, the need for critical examination of the training program for staff, and the role of the various committees, which were judged too numerous. 53. The CGIAR received the joint Secretariat mission report with eoncern~ It was learned that the Steering Cousaittee recommended by TAC had met, decided it could not fulfill izts complete mandate and had disbanded. The TAC Chairman stated the report confirmed some of.TAC's A long discussion ensued about the role and function of the worries. various committees, the need for an integrated research program, the need for a holding period until such an integrated program was planned and presented, and the ever-present worry about the governance of WARDA. Despite the misgivings, it was decided to provide CGIAK funds for the higher than that provided in W-l Project in 1975 at a level slightly 1974. 54. 3.3. WARDA was thus launched in the CGIAR System. WARDA's Mandate 55. In its Final Act (OP Constitution) g WARDA was charged with a number a% aims or responsibilities. None of these referred specifically to research. TAe aims were: "The Association shall assist the governments of Member States to achieve operational cooperation in the pursuit of the following aims: promotion of rice Afria; increase production within the countries ‘ of West of the quantity of rice 0% rice produced; improvement of the quality produced in West Africa; to encouragement of production and use of varie%ies suited the conditions of the countries in West Africa and to existing and prospective demand; exploration, introduction and extension 0% rational production methods adapted to the conditions prevailing the countries of West A%risa; promotion and implementation of measures for effective phytosanitary eontrols in relation'to rice; in promotion o% storage and processing, as we%P ss marketing of rice both within countries in West Africa and with respect to exfzemal trade in rice,” 15 56. In carrying follows: out the above-named aims, WARDA was charged as "With a view to achieving the aims specified in para. 2, the Association shall adopt or promote the adoption of the following measures: (4 encouraging, coordinating, and undertaking as necessary, basic and applied research programs in the scientific, technical, --~-r-4.. -3-A ""I... =-~fnlnofFaf tzc;"L‘ "uu.CCL&*.3 W," D---- fieiljs; analyzing and disseminating information on collecting, methods applied, experience gained, and results obtained within and outside West Africa; both (b) Cc) organizing OK arranging for conferences, seminars and training facilities, securing of fellowships and establishing, of assisting in the establishment of, advisory services amd training and extension facilities; elaborating requests for special financial and technical assistance and.receiving and administering separately such %inanc%a% and techn%cal assistance gineluding movable and immovable property, services and loans), as map be made available under the appropriate programs of the United QP Nations, the Specialized Agencies, other organizations governments desirous to support the aims of the Association; providing, as appropriate, development facilities; regional rice research and at by Cd) (e) (f) carrying out or promoting any other measures or activities the regional as well as the national level, as determined the Governing Council, for the purpose of developing rice production and marketing in West Africa. 57, Qf the above-listed seven aims of WARDA,and the six measurea given to carry out those aims, only measure (a> contains any reference to research, although measure (e) makes reference to regional research Apparently the creators of WARDA did not accord as high a facilities. priority to research as it did development activities. From 1974 to 1978 it appears neither TAC nor the CGIAR made any 58, Perhaps the lack of covnuent statements concerning the WARDA mandate. was due to the "'novel'" or experimental nature of WARDA; perhaps it was due to the fact that WARDA had, in reality, two mandates, one from its Member States and another from the CGIAR. 59. The Quiwquennial Review (GQR) of WARDA in 1978 did not comment but did discuss organizational aspects directly on the mandate itself, Essentially, the QQRdecided that the original of its implementation. srgan%aaeisna% units of the Assoe%atl%on - the Governing Council, the Seienti%%c and Technical Committee (STC) and the Executive Secretariat to establish an were still its main operating units, despite efforts Advisory Committee, and a Steering Committee proposed by the CGUR/TAC, both of which were abandoned because of overlap of responsibilities, 16 with the STC. The QQR Panel concluded: “The programming and decision-making process of WARDA,therefore, enables the needs of the countries concerned to be taken into account, along ws$th the advice of competent scientific authorities.“ ’ me,QQR did not comment directly on the mandate as it pertained either to research or its conduct, a&though R Panel eaPled it did comment on the structure of WARDAresearch, The special attention to the fact that the I&search Department was then the largest department at WARDA,accounting for almost half of the budget. The second External Program M&w (EFR) of WARDA(1983) stated: “WARDAis charged with rice researeh and development work by its Member States and the CGIAR.” The second Review then quoted the objectives of WARDA, as given to the Panel by WARDA: 60. "The main aims of the Association are to promote rise development and trade through sub-regional cooperation to achieve sol%ective self-reliance and food security in the shortest possible time. The ultimate objectives inelude assisting tke Member urktries to reach9 as near as possible, self-suffkiencg in rice and improving the esonomic and social well-being of the Large number of rice farmers %X-I the sub-region", -' 6110 The statement of objectfves is remarkable III that 16 doea not mention research. The Em Pane% noted that the sbgectives stated dealt mostly with achieving self-sufffcieney in the member countries, 62, The 1983 EPR Panel took care to point out that WARDA's mandate was uanique because it was responsible to its Member States through the Governing Co~ancil , as well as to tzba CGU discussed the mandate from two viewpoImts: (2) the CGIAL Thus the EPR Panel donors, (1) the Member States, and 63. The EfP%B Panel made two major statements concerniwg the mandate: "WARDA F%rst, that WARDA's recognized respons$bility was as bo%lows: clearly haa the mandate to conduct adaptive research on rice in the 15 statess” 0 Second, the Panel, stat "The team believes tba6 has and, indeed shou%d have, the mandate for the rice eco.Iogies that are fmportant in the 15sWest Afr%can Member:States ta conduct a complete rke research and development program. This in&udes determining what technologies are required, discovering and testing those technol.ogies, and helping Member States in their efforts to transfer those technofogfes to farmers’ f%ePds gw 64. In surumary, the origfnal mamdate of WAUA placed primary emphasis on serving t&e rice self-sufficiency of its Member States, with almost no emphasis B$Bresearch. lgt ia striking thati research $6 seldom mentioned an the vatdous statements u3f what A %s all about, esgeeially since the WAIUA program for several years has, ifb fact, expended more money for a category called research than any other activity. The Hid-‘ Eerm l%ev%.ew Panel considers that L+heproblema of t%ce cmmgh 2ma suff%cfa-,e.ly dffferent ftom %n west Africa by design, was operating like a center within a center and a serious need for better coordination began to be felt. The 1974 CGIAR joint Secretariat mission reported that the eodttees "exacerbate the difficulty of deciding on research priorities because each meeting tends to come up with new recommendatfons and new projects, themselves worthy, but impossible to institute with the existing resources~. Similar sentiments were expressed at the July-August 1974 meeting of the CGTARby Prof. Guy Camus, the present Chairman of TAC, who pointed to the need to raticnalize WARDA's governance structure. 69. It became clear im succeeding years that WARDA was being over-managed. The Steering Cormnittee and the Advisory Committee were later abolished. Functions of the Steering Committee were merged, in part, w%th the STC, and the Advisory Committee was replaced with a short-lived consortium of donors at the suggestion of the first Quinquennial Review. 70, In 1983, at the time of the External Reviews, WARJIA had fewer committees at the apex of the Assosfation, but the decision-making structure remained complex. The STC continued to serve as an advisory group of nat%onal sc%entists with no authority over the Secretariat and no advisory role in financial and administrative matters. The Governing Council sonserned itself mainly with administration of aetivlties funded by Member States and not the whole WARDA program. A third committee, called the Committee of National Experts, began to serve in 1985 as a %Bnk.between the Governing Coune%Pand the STC, providing further advice to the Governing Council on the proposals of the STC and the Executive Secretariat. 91, Despite the existence of three co there was an important : no single body was vacuum in the ~e~~~~~n~~k~ng structure respoms$ble for overseeing the whole WARDA operation and providing policy guidance to the management on program, administration and finance matters. Technically, this was the responsibility of the Governing Council; in reality, with frequent turnovers (which averaged 85% from year to year between 1980 and 1985) and an overriding concern with po%itieal and administrative matters, the Governing Counsfl was never in a pos$tioa to provide sustained policy guidance ou program matters. The ST6 provided some fnstBtutiona1 memory, but its mandate was too narrow and it lacked deciabon-makfng authority. The fragmented nature of the donor-funded projects and the politfcal nature of the appointments to the poets of Executive Secretary and Deputy Executive Secretary further compounded the problem, 72, The 1983 CGXAR Management Review found the solution in creating in WADA a governance structure a%miPar to those found in tRe VURCs. nsequent%y, $n its central recommendation, the Panel urged the Governing Council to turn the STC into a body of international experts (by expanding the STCsa membership to include seven individuals 19 nominated by the CGIAR and seven by the member states) and to delegate to the STC a broad range of managerial responsibilities, including the selection of the Executive Secretary for approval by the Governing Council. 73. The formal response of the Governing Council to this recommendation was positive; the STC was expanded as suggested by the RMR Panel, and it was delegated managerial authority in several areas. Informally, however, many members of the- Governing Council did not %ind it easy to accept this new mode of management. ft took WARDAabout two years to begin to adjust to the idea of having the STC play a policy-making role. The rapid turnover in the membership of the Governing Council did not help matters. The Panel is convinced that many members of the Governing Council still do not accept the idea of devolution of powers, i,e, that the Council not be the ultimate authority to decide any and al1 matters concerning the Association, from the hiring and firing of staff to the manner in which the funds should be used. 74. Herein lies the current WARDA paradox: the ST6 has begun serving in the mould of the board o% trustees of other centers, with competent and dedicated members committed to improving rice production in West Africa; yet uncertainttes loom over the real authority of the STC. WARDAremains as much a polftical organization as it was at the beginning. eJfth frequent changes at the apex of the Association, WARDA's management challenge continues to be the following: how to conduct objective, impartial and value-free scientific research in a subjective, value-laden and political governance environment. 3.4.2. Management 75. The managemerit e%fectiveness of WARDAis influenced as much by the quality and efficfency of its internal management systems and processes as by its governance structure. The most important among the former are WARDA's systems %or planning, internal management, staffing and financial analysis. la) Planning 76. Until very recently has never had a systematic mechanism for program planning, priority setting and strategy determination. This was due in part to the somplex$ty of the governance structure, the and fragmentation of %ts program, the absence of a planning tradition, The absence of a sound planning system uncertainties in funding. prevented WARDAfrom using budgeting as a management tool. The lb974 "The mfss%on CGIAR Secretariat mission commented on this as follows: regards the absence of a sound budgeting system, leading to an annual budget for a%1 0% WARDA's activftfes approved by the Governing Council, as a major weakness in WARDA's financial management system.'" 77, The %brst give-year plan was prepared eight years after Assoc%ation was %ounded, upon the recommendation 0% the first Quinquennial Review. This plan was presented to a conference in 1981. fn 1983 the STC undertook a review of the five-year the of donors plan and 20 later that year the Second EPR examined the results of the planning exercises carried out by WARDA. The Second EPR noted that funding problems had forced the Association to engage in a series of re-planning exercises e 78, The reconstituted STC has provided WARDA an opportunity to engage in more effective planning. But the financial difficulties of recent years have prevented WARDAfrom carrying out its plans. Annual and longer-term plans and budgets were replaced with crisis plans and budgets of one or two months. One positive development is the newly-instituted annual internal program review, which provides an opportunity for key staff to discusa program priorities and provides a %orum for exchange of views among scientists. of funding have is not likely to. i.mprove without some degree 0% stability in future %unding, Excessive reliance on special project funding distorts programs. More importantly, uncertainties in the levels and the timing of member state and. a %ew dmo~ contributions pre 's managers Prom ~~~~~nt~ng the Research tbcir annual plans and budgeeso fat ex%mp%e$ and Development Department could got fully implement the planned program of funds, because some of these funds had to be in spite of availability diverted to keep the Associatfon’ s administrative operations going until .the Member States paid some of their assessed contribut%ons at the end of the year. This meant the curtailmentOo% planned research and BeveLopment expenditures to tke tune o% about .us$ 1 miU.iom. (b) Internal Management 79, It is clear that availability, type and timing dictated WARDA’ splans in the past ) and the sftuation $0. Under the al@e and dsdicated leadership of the Acting Rxecutive Secxsbary , Mre AUeu Yagna 9 and the Director 0% Research and Yames Yoh~ston, the $ntemal managemsnt system 0% WARDA ~Q~s~~~~%b~~sine the 1983 Em, Notable among the weK@ehe %o%lotin - ecutive C~unaittee, sonsisting of the Acting Executive Secretaryp, the D%reetors 0% the Departments 0% Research and Development and Training, the Financial Controller and the . Chie%s of Administration and Comunications, began to Eunction as a management body, steering WARDAthrough several dffficult The pa~fmentx of Research and Development were merged, g to ful%er $wtegoat8on 0% the research and development quartets ad in. ehe %ield. - Thei sear& and Development Department decentralized its operatBons %rom the ~~~~~~~~~srs to the field. This involved ~~%~~en~ 63%&a%% and delegation of greater management ~rn~~~~~~~ !33 seaeifm d%re!eeors 0 me age~ent took bold measures to terminate the appointments o% several senior and support sea%fp particularly at the Tbua the number of senior staff not including - 21 those seconded directly funded 1986. The drop was from 119 to from other organizations but including those by donors, dropped from 79 in 1983 to 54 in in the number of support staff based in Liberia 69 over the same period. The management was able to avoid the collapse of the Association in 1985 by finding temporary solutions to its cash-flow problems and by avoiding mass staff resignations. Staff remained on their jobs in spite of not receiving salaries for five consecutive months during 1984 and 1985. accomplishments of the WARDAmanagement Panel, the members of WARDAand the 81. These and other similar deserve full praise from this external donors. (4 Staffing and personnel management 82, WARDAis'primarily staffed by the natPonals of West African countries. At the time of the EPR, 9 out of 65 (14X) senior %nternationaP staff members, excluding the seconded and donor-funded staff, were nationals of the countries outcsfde the region, In April, 1986, 7 out 0% 47 (152) were in this category. Thus, the natfonality mix of the staff remains about the same, and the wide geographic representation among the senior staff of other CGIAR centers is not seen in WARDA. 83. As a result of the 1983 EMR, the STC established new standards and procedures for fnternational recruitment. However, the financial di%ficulties faced and the stringency measures adopted prevented the In one instance, the inexperience management from applying these rules. of WARDA's personnel manager in internatiooa% recruitment led to considerable delays in fflling the position of financial controller. 84. Performance appraisals at WARDAremain a problem and the current system needs to be reevaluated if it fs to be useful as a management tool e 85. WARDA's saiary system also remains an important issue. Por most staff, WARDA offers one a% the best employment opportunities in the region. While the Panel is in no pos%tion to pass judgement on the approprfatenesa of the sa%aries of individual staff, the restricted nature of the recruitment praetises before 1983 and the degree 0% politicization of recruitment noted by the EMR suggest that WARDAmay have been able to attract the same SW%% at a lower salary levef, or, alternatively, more qualif8ed eta%% from other parts OS the world at the exceptions to this. same salary. There are, 0% courser many individual Nevertheless, it appears to the Pane%.that, a%ter 15 years of operation, WARDA's governing bodies should begin examining the appropriateness of WARDA*s salary and beneffts system, (a> PlenaneiaP management 86. I The financia% di%%%eulties experienced by WARDA were in large Rut WARDA measure due to di%ffeu%t%es and uncertainties of funding. could have coped with these dffficultfes better had it had a better 22 The absence of a sound financial financial management framework. management system at WARDAwas noted as early as 1974 by the CGIAR A comparison of the recommendations on financial Secretariat mission. management in the 1974 report tith those in the 1983 ENR suggests that the situation had not improved In the inter%me One reason for this is that WARDA,until after the 1983 DIR, emphasized the *accountancy*’ Finance rather than the “management” aspect of the finance function, was seen largely as an administrative, book-keeping role, as compared way of mobilizing with a funst$on aimed at finding the most effective and allocating financial resources. The situation has improved in 1985 with the appointment, after a 87. controller who was able to clear most of two-year deliy s of a financial the backlog of unprocessed recorda and establish a useful financial responsibilities assigned to reporting sysEem. However, the additional the financial eontroller as a result of the departures of the Cl%ief of has until recently prevented Administration and the Personnel Officer) him from devoting his full attention to the finance function. 88, The f~~~Q~ng examples illustrate financial rn~~~~emg at WAROA: the current state of fmproved A qualified $nternaJ auditor (employed in October 19g5> has prepared an internal audft program and has started to implement it both at the headquarters and the research stations. Most of the booklceepfng backlog has been cleared. chief aesoumtant has been hired. A budget performaneo report %or the been prepared with the expectation 01%a monthly basis for the rest of budget officers are designated for fuads p respectzLvely, A qualified - first quarter of 1986 has of preparing budget raports ‘ SW0 assistant the year. restricted and unrestricted - en6 is prepared by the treasurer A daily cash axal bank stat ad skpMtt& to the financial controller, who provides the Acting Executdve Secxeeary tith the $nformation required. A cash-flow forecast statement is planned to be prepared for the following two months $ to be revised on a monthly basis. Same - of the accounts will clai be computerized. Fund reimbursement the cash afhation. are prepared on time, thus helping St least one of the research etatfons (the ome in Eowke) is praeticQ~g a commendable book-keeping and reporting system, - Fixed asset Delegation of specific an exnanded STC management responsibilities to 220. The EMR recommended that WARDA's Governing Council (GC) should reconstitute the Scientific and Technical Committee (STC) to include, in addition to the members from WARDA"sStates, seven individuals from outside the region selected by the CGTAR to serve in their individual. capacities, plus the Executive Secretary (ES) as an ex-officio member. The Pane% further recommended that the GC should delegate to the STC specific responsibility for revlbevltng integrated financial, and program plans, approvimg the appointments of seneor professional staff, and constituting the Search timmittee to select candidates for the ES to recommend to the GC. 221. The GC agreed that the STC sh0ul.d be enlarged as proposed by the EMR, and the expanded STC first met in Monrovfa in June 1984. 222. With regard evolution was less while agreeing in extended, stressed advisory body, to the responsibilities of the enlarged STC, the straight-forward. In its first reaction the GC, principle that the Committee's mandate might be that the Committee should remain basically an 223, The enlarged ST6 in its first meeting decided to recommend that the GC shsuld delegate to it the responsibility to review, comment upon and amend, if necessary, the annual integrated WARDAprogram and budget prdor to submissiow'to the TAC, C and the GC, Moreovers the STC would evahate the past year"s wor program and arrange for external scientific and management review of WARDAevery five years, in and evaluation, cooperation with TAC. With regard to staff recruitment the STC proposed that it be entrusted with establishing procedures and standards for the recruitment of senior staff, reviewing on a continuing basis es professional compensation structure, and approving the of senior professional members. In the area of financial 23pp0in management, the STC proposed es establish a small Finance and Audit Committee for the purpose of revieting annual budget and longer-range financial plans, internal and external audit controls, and adequacy of the financial, management system. 224e The GC was somewhat reluctant to delegate all these States rejected any involvement Kespons~bil~ties to the STC. sf the STC in the selection. of a new ecutive Secretary, based on the argument that this would require a change of the Revised Constitutions 225, At the Governing Council Meeting fn Dakar, IS-20 December 1985, under the %nfluence of the acute financial crisis amd a possible loss of - ..- 46 CGLAR funding, the Council decided to comply with the essential recommendations of the PIR. The Council decided: "to DELEGATE to the STC the authority: (a) (b) (c) to eonsfder budget; and approve WARDA's annual program of work and e progress to monitor the Association's activities and its towards the achievements of its mandate; to ensure the Association's integrity in financial management and accountability and to select a forum of accountants for appointment by eke Governing Council to conduet the auditing of the Association's accounts; to consider of salaries and approve personnel and other benefits; policies including scales (d) (e) tea select and appafnt on the basis of objective criteria, candidates to the pssie%on of Executive Secretary and Deputy Executive Secretary and to submit the appointment for confirmation by the Governing Councils" 226. With regard to its own role9 the GC limited itself to biennial meetings to conslbder and approve long-term work programs, to confirm the appoinemenf of the EIxecutive Secretary and his Deputy, to appraise ehe progress in ehe ~rnplerne~t~~~o~ of W ss programs, to alloeate Member States eontr%butioas, to coordinate and harmonize national rice research and to consider arrangements aimed at development and training policies, facilitating the fmplementaeion of WARDADs research results in member countries. 227, Ftom the above resolution it could be coneluded that the GC age the WOKkof decided to delegate to ehe STC the bas%s authority to fi%ZU%FV~ the Association, and this was indeed ehe Mxrpretation of tha Secretary of the CGIAR who attended the meeting as an obsarver. A careful reading of the final report of the meeting reveals, however8 some ambiguity wfth regard to the role of the GC fn the appointment of The exact ehe JZmecutzLve Secreeary and the Deputy Exerxtive Secretary. wording of the des%siou reads as fo%lows: "The Council also agreed to meet biennially sessiorl.. . (b) to confirm the appointment Deputy Executive Secretary reeommended by STC; . e sR in an ordinary and the of the Executive Secretary from among the candidates 228. .While the f%rst port sf the statement Ss fully eoasiatent with the pam1.a n~$%mod ..-a- .aI .-~^-.s- to s-ha om*- FTP! -.mup the late,er paKt fs unP_lear, ftt ceu"xndbe fntarpreted to mem t t the Executive Seretary wLll$, in faetp be appoieeed by the Gewe~aI. Coumcil and not by the STC, 229. The Panel was unabPe eo clarify fully the point. The Chairman of the GC, when asked about the role of the GC in the process of seleceion 47 and appointment of the Executive Secretary, declared that the appointment should be the prerogaeive of the GC and ehat the role STC should be advisory. (b) Elimination as currently of the position defined of the of Deputy Execueive Secretary 230. IQ o-Tder to strengthen WA&DA's leadership and to avoid divisive groupings along Anglophone vso Francophone lines, the EMR recommended the elimination of the position of Deputy Executive Secretary, as it is currently defined, and to authorize the ES to recruie a senior staff officer to assist in performing the duties of his office. In reacting to this recommendation, the Council pointed to the fact that when the recommendation was made, arrangements for the selection of a new Deputy Executive Secretary had advanced too far, and that eliminathon of the position was, therefore, not feasible. This argument was accepted by TAC and the CGIAR under the assumption that WARDA would comply with the recommendation in a process of orderly change. It appears, however, that some Member States are concerned about maintaining linguistic balance at ehe top of the management structure. The new Constitution reeains the position of Deputy Execueive Secretary and reaffirms its present political character, from which it may be assumed that the recommendation has been rejected. 231. It should be recognized, however, that a series of subsequent events have influenced further actions with regard to this matter. In December 1984 the Executive Secretary was dismissed due to financial mismanagement and failure to implement EMR recommendations. The incumbent Deputy Executive Secretary cook over as Acting Executive Secretary and has been running the Association since, apparently better and more efficiently than his predecessors, A USAID Review Team, which visited WARDAin June 1985, summarized the situation as follows: "For the first time, WARDA has a talented, international class manager at the helm, dbeie on an acting basis," (cl Establishment of standards and compensation for international recruitment 23%. Following the guiding principle that scientific work at WARDA should not be inferior to that of other international agricultural research veneers, the EMR recommended that WARDA should establish standards and prbsedures of recruitment and compensation for senior seientifie and professional staff, as required to attract and retain personnel of international caliber. 2%%, w '8 response was positive. The STC has assumed responsibility and initiated the necessary steps to comply. The Panel regards this Ke~o~en~%eion as largely implemented. However, with WAXDA's serious financial problems, there has been little or no opportumity eo apply these standards in the recxti%tmen$: process, Cunsequently, ehe new standards and procedures have, as yet, had little impact. 48 _- Cd) Strengthening of the financial management system 234. In order eo strengthen the Association's financial management system, ehe EMX recommended that WARDA should create and fill the position of Chief Financial Offieer why. would report directly to the ES, improve internal and external audit controls, and take immediate measures to overcome its present liquidity problem. and Internal Auditor were 235. The positions of Financial Controller filled in October 1985, in both cases-through international recruitment. This means that the recommendation can be regarded as implemented, but considerable time elapsed before implementation it should be noted that took place. 236. The STC proposed two names to the GC for the External Auditor position* However, the GC at its Dakar meeeing took no astion and requested the SIC to submit only one name. Since the next meeting of the ST6 was scheduled for April 1986, and the CC Secretariat insisted on $IJbate auditing, cretary d~~~d~d to reappoint %he Acting Executdve 6ke pravimxs External Auditor, despite the reservations raised by the l2fR in 198%. 237. In efforts to reduce the liquidity crisis, fund-raising trips to the Member States were organized as well as negotiations with donors to pre-finance the activities they support. Some reductions of staff were made and expenditures against budget were reduced. In total, Member Seaees contributed US$ 0.92 million in $984 against an assessment of US$ 3.32 millioa. 238. Since WARDA had failed so far to implement many of the EHR pecoaunendations and sinee the semmitments of the Member States to the Association gave rise to serious doubts, TAC in its meeting in W~shlag~on in Cetober 1984 recommended thae CGIAR fnnding for I985 be w%%hhald unt%l met the reqn~~~ments stipulated by the CG meee%ng of June 1984. s r~~o~@n~~tion was approved by the Group, 239, When it met in Lome in December 1984, the GC decided to take action to comply with ehe CGIAR requirements, and the CGIAR ban on the release of 1985 funding was lifted, following a recommendation of the TAC Chairman who had attended the meeting. 240. In spite of the encouraging signs, WABDA's financial situation deteriorated over most of 1985. Daspiee pressing appeals made to Member States to pay speedily their 198.5 contributions and part of eheir arrears, onBy US$ 280,OCO had been received as of May $985. When TAC met in Cetober 1985, US$ 600,000 hsd been contributed by Member States0 lhe administrative budget of WARDA which had been trimmed down to US$ 1.3 million by the GC in its tima meeting, was therefore further reduced %a a continge%y level of US$ 1.1 million. 241, Sy the end of 1985, eight of the 15 dues-payfng Member States had provideti US$ 1,48 milliom. %n additim, WARDA received USS 0.73 m%%lian An January 1986 and payment orders amounting to US$ 0,35 million from two of the Member States - all to be credited to the 1985 account. 0ne amber State is said to be pursuing the offer made by the World Sank to finance its contribution to W A tkrsangh 11985, but eo the PaneP's 49 knowledge those funds have not been received by WARDA. As of 1 January 1986, the remaining WARDAshort-term deficit to be finaneed by the Member States appears to be about USS 0.63 million. WARDA management has taken steps to reduce further its costs, particularly those at headquarters. 242, In this context it might be of interest Panel which reviewed USAID-financed activities to quote the finding of a at WAkDA in June 1985. "Contrary to an almost universai ierception that Member State (P%) support of WARDA has been dismal and declining, our view and analysis concluded that not on%y has MS support been sustained during an extraordinarily difficult time economically, but in absolute terms Member State contributions through 1984 covered the administrative budget. l-1 The significant amount of WARDA books is primarily assessment schedule over 0% arrears that represents considered as active debt arrears in MS contributions shown on a result 0% a drastically escalated the past four years. Only that portion real unmet commitments should be by Member States."' 24.3, In retrospect, it becomes quite clear that the increase in Member States' assessments coincided with the world-wide economic recession by in Africa, were which all developing countries ) partisularlythose severely hit, thus making the increase unrealistic from the very beginning. 3.9. Staff 3.9.1. (a) and Facilities -Staff Developments since 1983 of WARDA, the limited time available 244, Given the complex situation and the fast that the team could not visit Rokupr made ft impossible to get complete fnformatiom as to how WARDA*s personnel pattern, including general servise staff at Headquarters and at the Regional Research The following considerations therefore Stations, developed over tfme. For the general sonsentrate primari%y on the professional staff, Detailed service staff only the Liberia-based staff is ineluded. figures covering the period September 1983 to April 1986 are given in Annex IV. Y It should be recognized, however, that this was Panel observation: possible sn%y through the use, for administrative purposes, of a signifisant Spesia$ Fund reserve% intended to support special research, developments or training projects of the Association. 50 245. Retween September 1983 and September 1984, a period which for prastisal purposes can be considered as the first year after the Second EPX and the RMR took place, WARDA's professional staff was reduced from 79 to 68 (i.e. by 14%). Headquarters staff was reduced from 58 to 32 (lee. by 36%) whereas staff at the Regional Research Stations was insreaeed Zrom 14 to 25, WARDA has thus responded to the resommendations of the EPR and made a major shift of personnel from Headquarters to the Regional Researsh Stations. Also, following resonunenation of the EPR, three positions of Assistant Sub-Regional a Coordinators were discontinued. 246. Pt should be noted that the above figures refer to WARDAstaff only. They do not include personnel seconded by national programs. Seconded personnel numbers remained prastisally constant during the two years a%ter the reviews, Details are given in Annex XV. $47. * service Polloting the 1983 reviews WAXDA reduced its staff from 119 to 116, Liberia-based general to 248, up tco rsh 1985 the professional sta%% was further decreased 54, sonstita%ing a 32X total edustfon from the base per8od, ~edustfoas took p%ase at Head arters whereas staff at the Regional The offices and positions of Research Stations remained constant. Sub-Regional Coordinators were discontinued. Within this period alao the Liberia-based general service staff was cut from 116 to 92, riP 1986 WARDA's professional staff Between Marsh 1985 aid e redustions, however, were made in the ined constant e ieneral eervise staff to a level of’ 69, 249. . Cb) Current status status of WARDA's profesefonal since January 1985 %5%$. Betai%a sonsernfng the surrent ex vo sea%% are given in .&quarters the Rxesutive Sesretariat, Linked to that Department are seconded by Prensh tesbnisal assistance). &a Post-EM-vest Unit with two food prosessing engineera (one of them aesonded by Japanese teshnical aassistance) and the Germpfaem Unit with two plant breeders (one of them being the IXTA Liaison Of%iser who also The Communicatioas and Dosumentation works within the Germp%asm Unit). Div%sion sowaists of a Bivis$on Chief and five collaborators insluding three %ransiaCors. 252, The ~~s~n~ng Center at Fen&%.1 fs headed by a Chief who also and two activeiy partisfpates in tra%ningg supported by three trainers interpret~rs%sransao6QPao 253. me uake Regional Researsh Station has a staff of 12, including one sea%% member sesonded from C&e d'%voire and two staff members he Astfng Rxesutive Secretary, has been enlarged by the poeition 0% an XnternaS, Auditor in somplianse with a recommendation of Department is sompoeed of a f&g EMR. The Pinanse and Administration ntroller and a Chief Assountant, the Research and Finatxsial Development Department of a Nrestor and six sollaborators (one of them 51 seconded by French technical scientist, has been recently assistance. transferred One staff member, a soil from Mopti. 254. The Rokupr Regional Research Station has a total staff of ten, but only four 0% them are WARDA staff, the others being seconded by Sierra Leone. One deep-water rice breeder has been recently transferred from Mopti. . 255. Total &a%% working at the St. Louis Regional Researsh Station is i5. included are two staff members seconded by the Relgian Government and two spesiaPists working within a special project on water management financed by the Dutch Government. An agronomist supported by the French technical assistance funds has been recently transferred from Mopti. A rise processing engineer is outposted to the Gambia. Three of the staff members are seconded from Senegal. 3.9.2. Fasilities . 256. On April 21, 1986 the day before the.Mid-Term Review Panel was to arrive in Monrovia, a serious fire occurred in WARDA"sheadquasters. The building was severely damaged, and when the Panel left MonKovia it was doubtful whether WARDA would be able to use it again, A complete and up-to-date assessment of WARDA's facilities was therefore not possible. 257. WARDA's headquarters are located in the center of Monrovia in a building whish formerly was the headquarters of Liberia's ruling party. WARDA occupies the first to the sixth (top) floor. There is a spasious entapanse hall and two floors below the so-called Eirst floor occupied by others. 258, The building is designed in sush a way that access to the upper floors should take place by using two elevators located at its center. The etaiKsase on one side of the elevator shaft was apparently meant for Since the elevators have been out of order sinee emergency situations. February 1985, the stairs must be usedo This is cumbersome and even dangeKous besause it is dark and mosE of the steps are damaged* 259. The first floor used by WARDAcontains a large office room used by the accounting sestions, several offices, a spacious, well-equipped The othef floors contain eight to ten sonferense hall and a lobby. come as stoKes9 and one rooms each. Most of them aKe used as offises, in size, several of them honses the PibKaKy, The offfses are different For the present staff, father spasiouep and most of them well-equipped, If the building were not in spase seema to be mote than sufficient. run-down condition, offise fasifitfes could have been considered satisfactory, 26G. The fire whish may have been set according to public repotts, caused very severe damage. Lt broke out in a room on the third floor which was used as printing room. This toom and the rooms adjasent to it, one o% them sontainfng WARDA's documentation burwed complete%yo The same part of the building on the fourth and fifth floor also burned. In eash 0% these flos~s appsoximately one quarter of the rooms burned out, one quarter was severely damaged by the fire and the rest was damaged by 52 water and smoke. Concrete walls in the area on fire are showing cracks, tesulting from the intense heat. 0nly easeful inspection can reveal whether or not the stability of the building has suffered and whether it can be used again. At present Ass haadquaKteKs is homeless, and the Liberian Government has been asked to furtisb other suitable %asilities, 261. Facilities at the Regional. &search Stations and at the Fendall Training Center are dealt with in the respective sections of this repott (see sections 3.5-l. and 3-5.3.). These assessments indicate that facilities are inadequate at most sites; At Bouake, there is essentially no usable laboratory space, and office assommodatione are quite inadequate. A newly constructed house may soon be converted to Screenhouse %asilities are rather offices to provide some relief. At St. Louis, good o%%ises have been made available to the %imited. station within an ISRA fesearch center sompleted only in 1984 under a World Bank-IDA loan, but laboratory fas%lities at Richard Toll are totally inadequate and the old screenhouse can hardly be used at all besause it has no water aad is exposed to freqnent sandstorms. In Rokupr, office as well as laboratory %asilities are inadequate and Water available %a untreated and screenhouse fasildltjies non-existent. Eabestt%sfty 1s also limited and unreliable. limited in quantity, reover , tha seatd.ou su%%ers Prom co unisation problems, sush as lack of tePephone/sable/taBex/radio sommunisatioa, long distanses to Freetown Fasilities at the Fendall and to the airport and bad road conditions. Training Center sari be considered sufficient for present and future training needa262. All in. all, WARDA's %asi%ities are sonsiderably below the standard operation, of other TAXa. To meet the requirements of effective additional investment will be needed* This wU.1 include reconstruction. at heidquarters, or mc~re probably the nesessity to move headquarters to Whether the Liberia Government will be able and another buflding. tilling to supply another building is an open question. In any case, %asiXitPee at the Regfowal, Xesearsh Stations need substantial. additiona if programs are to be carried out without su%%eKing from SefiOUS sonstradntsc 3.10. Funding 3.10.1. Total fundfng funds in 263. Since 1972 and through the end of 1985, WARDAutilized Of this, US$ 15.9 million (24%) was the amour& a% US$ 67,5 mi%lion. provided by Member States and KJS$51.6 million (76%) by external donors (T&de 3.1) m US$ 23,7 milblion (35%) of the total funds was reseived prior to 198Cs wheteae %unds reseived duKBng the six years between 1980 and 1985 amm.mted to US$ 43.8 m$ff$on (65%), Annex VI gives a sumnary of the funds Keseived by WARDA on a yearly basis. 53 Table 3.1. External Funding of WARDA- 1972 Through 1985 (US $000) Donors Total. Payments 50 1,186 352 18,725 S-T 1,s;; 30 2,215 59 58 1,020 1,974 59 1 980.9 150 206 16 309 1,665 577 2,992 15,133 119 1,095 51,593 15,950 67,543 Abu Dhabi BePgitnn Canada CGIAR CICP EEC Ford Foundation France Germany, Fed.Rep. IBRD PDWC IFAD IITA . Japan Kuwait Netherlands Rockefeller Foundation Saudi Arabia Switzerland United Kingdom UNDP (Total) USAID World Bank Miscellaneous Total Total External Donors Member States - 76% 24% 100% 3*10.2, Member State funds 264. Member States provided funds for two purposes. The General Fund was to be used for administrative expenses, whereas the Special Fund was raining and research projects. earmarked for special develbo A with a total of almost USS 16.0 Although Member States provi mi%%fan, the amount contributed annually seldom equalled assessment KY& levels o Accumulated arrears by the end of 1985 were approxfmately ‘ LO,0 m!fPlion, 39% of their assessments (Table 3.2). 54 Table 3.2. Member States Benim Burkina Faso Ci%te d'Ivoire Gambia Ghana Guinea Guinea Bissau Liberia Mali Mauritania Niger Nigeria Semega% S%erra Leone Togo l/ Total Total Member State Funds (US $000) Total Payment Arrears 239 693 169 411 276 134 479 345 189 812 496 5,013 308 415 391 10,371 39% Assessment 957 841 2,468 938 2,960 679 699 1,095 969 1,012 1,000 9,221 1,291 1,079 1,112 26,321 100% 0 . 718 148 2,299 527 2,684 545 220 750 799 200 504 4,208 983 664 721 15,950 61% . 265, Until recently, WAI?DA administrative budgets were based more on assessment levels than on realistic expectations of payments, despite the fact that arrears were the rule and not the exception. Accordingly, expenditure levels, espesidbp fn the 1982-84 period, e%gwif%eenrfy exceeded contributions to the General. Pund, resdting %m the need to use Special Fund resources to support the administrative baadgat. The cushion provided by Special Pund resources postponed the inevitable cash crisis until the end of 1984, at which tine this fund was also completely exhausted (Table 3.3). 3.10.3. Liquidity problems 266. Many factors contributed to the serious cash flow crisis of 1984-1985. In addLEion to overspawd$ng by the management, some of the donor funded projects had to be prefinanced by WARDA,as WAEUA had no working capital set aaide far this purposes As the Special Pund cushion disappeared, Rack of working capita’ % created a major cash raroblem. Delays SW. the preparatian of reimbursement claims also affected WARDA's ,. uquidicy pssitiorn nega.ti~~Ly. l/ No contributions are shown for Chad as it and no assessments have been made. is a relatively new member Table 3.3 MEMBER STATE FUNDS -Assessments - Payments ~__-.-- Expenditures (US $000) 1972-79 .------_Assessment Assessment Total -______-__-___Gen e Fund Spec. Fund 1980 1,148 ’ 1,207 2,355 1,570 2,442 4,012 -1/ y y 1) 334 2,678 2,245 1981 1,859 1,207 3,066 912 1,016 1,928 1,873 55 2,300 1982 1983 1984 1985 _-~- 1986 -- 4,916 4,599 9,515 4,055 1,415 5,478 5,903 (433) 2,051 2,537 442 2,820 503 3,323 833 82 915 1,865 (950) (488) 2,528 503 3,031 964 512 1,476 I) 531 (55) (543) ‘ / 17,859 8,461 26,320 10,311 5,639 15,950 16,493 (543) z Assessments 2,501 1,419 23 1,442 2,060 (618) 1,682 2,979 558 149 707 1,927 (1,220) 462 Payment Gen. Fund Payment Total Spec. Payments Fund Expenditures Balance Cumulatfve Balance (4331 -l/ 2/ -- Computed from the 1984 audited deficit. USS 886,000 and of US$ 630,000. 1985 negative cumulative balance should be increased by “other deflcits’ ” of to give the 1985 year-end deficit decreased by “other bncome” of US$ 99,000 56 267. Furthermore, a subatantial portion of the contributed by Member States, were available to times, and mostly towards the end of the year, other hand, were required throughout the year. transactions also contributed to the difficulties. funds, especially those WARDA at irregular Expenditures, in the Delays in banking 268. Until 1985, the management of W@UA did not take meaningful remedial actions to solve these recurring problems. Cash budgets were not prepared, and budgets were not realistic in terms of probable funding expectations. In 1982-84, Gen'eral Fund expenditures exceeded Member State contributions by US$ 2.8 million. In addition to the overspending of Member States funds, some donors did not provide for termination cysts, causing in effect, a further long-tens deficit of almost US$ 0.5 million. By the end of 1984, the total termination costs , consisting of repatriation grants and accrued leave pay (but exc%uding termination benaf’ its, transport of household effects and terminal travel costs) were slightly more than US$ 0,6 rssillion, Only US$ 0.138 million of this is associated with Member States funded activities snd is already included in the General Fund deficit, external 269. 3.11. Financial Status 270. The 1985 unaudited statements show a healthier picture . (Table 3.41, especially in the liquidity position of WABDA. This is principally due to: (1)' significant financial and managerial support by the external donors (including the temporary secondment of a qualified financial controller); tztaeefforts situation, of the present WARDA asuagement to improve the especially by reducing costs; (2) (3) (4) reduction in research expenditures in order to cover costs throughout the year; and, administrative sudden infusion US$ 1.7 millioa of cash by Member States and some donors of about towards the end of the year. the 271. At the end of 1985, the total cash balance of WAEUA,including "impress accounts" of the outlying staE%ons, was more than US$ 2.2 million, and realistic receivables were a%oaost vS$ 6.8 m.ilPion. 272, total Againss: the total current asseta of mote than US$ 3.0 million, %fab%ffties of WARDA were USS 2.5 million, including the provisions I) 57 Table 3.4. Current Liquid (31.12.1985 Assets and Liabilities USS 000) Current Liquid Assets 238.1 1,632.a 377.4 Current.Liabilities Accounts Payable: ko Staff to Provident F'und to Vendors Staff Salaries Okhers Total Accounts Imprest Accts. Cash in Banks Time Deposits 401.6 644.2 514.2 177.9 170.7 r/ 1,908.6 Total Cash 2,248.3 Payable Accounts Receivable: from Donors from Staff from Insurance Co. others Total Accounts Receivable Total Liquid Assets 570.1 26.0 197.8 2.7 ProVfSiOn Provision Provision Provision for Audik h3tS for Termiaation Costs for Repatriation for accrued leave pay 32.0 166.6 44.2 93.7 796.6 3,044.g Total Provisions USAID Advanee Toea% Liabilities Ret Current Asseks 336.5 243.3 2,488.4 556.5 l-1 0% khis smounk USS 106-3 thousand is a contractor@8 account settled by USAID, and US$ 6.3 khousand is a legal case. to be 58 ratio of 1.2 to 1. compared to the negative ratio of (3.97 to 1 at the end of 1984, this is an improvement in WARDA's sol;rency. -I/ 3.11.1. Payables at Cke'end of 1985 payables of USS 2.5 million the most notable items 274. Of the total were the following: (1) USS 0.4 million owed to the staff-consisted of amounts due for non-payment of education claims, travel ciaims and termination costs. (2) (3) US$ 0.65 million owed by WARDA to the provident fund. This Is the amount accrued but not yet paid Co the fund by WAXDA.21 USS 0.5 million owed to venders consisted mostly of sccounes payable to three major groups; medical institutions and phgs%eians 9 travel agencges and skatFonery shops. US$ 0.18 mflliom of December salaries not paid until Jamuary PPS6, (4) . 275. A logical question based on the 1985 year-end financial stakements is why WARDA management chose to carry its current debt of fess khan US$ 2.0 million (excluding the provisions and USAPDadvance) when it had a cash balance sufffcienk enough ko pay off a subskantial part of it. Such debts, obviously had adverse effects on WARDA by causing dissakisfacCion and low morale wikhin the staff and by creating .a Furthermore, it has negative image of the Association in Eke region. influenced opportunities to KecrUik qualified personnel. 276. The main reinsom for the management's decision not to pay off part "s debt %s tkak a majoK porkion (w$ 1.7 million) of kh@ cash of was received by w w%kMn khe last forty days of the year, bal DA without amy prior indieaC%on hy khe to some of %t transferred Member Statzes. A second imporkank reason is the underskandable desire of the aanagemenk, afCer several recent cash-flow problems, to preserve the srganfzadow’ s liquidity, especially in the light of uncertainties in khe kiming and amounC of funds available for 1936. 3.11.2. Receivables ak the end of 1985 277. The three major receivables at the and of 1985 were from external Table 3.5 shows :he amounts due donors, an iastmawce company and staff. to WARDA by the external donors. / The staff provident fund W A, rcepeck%velv, is a fund towards which the parsonnel conkribute 7I and %4 of salari+s. and 59 Table 3.5. Receivables from Iionors (31.12.1985 - US$ 000) USAXD UNDP,‘ F.40 Belgium IBRD Rockefeller Netheriands World Bank IDRC IITA Total 236.4 6400 120.4 58,3 0.4 12.4 28.9 6.4 42.9 570,l s 278. USAID, UNDP/FXOand a part of IITA receivables were collected in the first quarter of 1986. Netherlands, World Bank and IDRC receivables were carried on the books from 1984. 279. Of the USS 0.129 million in receivables from staff shown on the year-end statements submitted to the STC, US$ 0.072 relates to a travel advance for the GC meeting; settlement of travel expenses will reduce this amount and increase expenditures by the same amount. Of the remaining balance, approximately USS 0,031 should be considered doubtful debts as the persons owing these amounts have left the Association and Therefore, the realistic have no funds due them to balance their debts. receivables from the staff are approximately US$ 0.026 million (Table 3.4) * 280 m There was a US$ 0.093 million medical claim from the insurance company not collected at the end of 1985. In addition to that, medical claims in the amount of USSO. million were being processed l-/. It is quite possible that' part of these will not he collected due to-time and personal coverage iimi,ts. Assuming 10% of the claims may be denied, the total of claimed and “cfaimable” insurance ter'unds amounts to approximately US$ 0,2 million. 3.11-3, General Fund deficit .at the end of 1985 28%a The deficit of the General Fund can be defined as overspending on funds provided by I%ember States, plus expenditures not funded by external dof,ors, and therefore expected to be covered by Member States. This amount was USS 0.63 million at the end of 1985 (Table 3.6). J-f and Personnel, Due to the negligence 0,+ the Chiefs of Administration both of whom have left the Association, many medical, educational and travel claims had not been processed since 1983, These documents were subsequently foun% in the office of tRe Chief of Administration and are now befng proeessed. 60 Table 3,6. General Fund Balance (12/31/1985 - USS 000) Report) (before . (488.4) (136.5) (624.9) Deficit, Deficit, Total end of 1984 (Audit on USAID Operations Deficit, beginning 1985 m 1985 Exchange Loss 1985 Provision for Terminations 1985 Doubtful Debts (not yet provided In the accounts) 1985) 0 s for (3.0) (87.2) (45.9) (761.0) 1985 Positive Balance 11 1985 Other Income 1985 8ad Debts Recovered 1985 Exchange GaBa Total 31.5 41.9 24,6 32*7 (630.3) GF Deficit End of 1985 3.11.4. Deferred liabilities (long-term debt) 282. Provisions for repatriation and accrued leave (US% 44.2 and 93.7 thousand, respectively) shown in the 1985 unaudited finansial statements In tke 1984 external were oaly for the Member States funded activities. audit report, provisions were also made for the same purpose for other donor. funded activities o This prastfse was not used in the 1985 these are expenditures which wfll accrue in the statemexate e Actually, future and which sho d have been provided for by external donor funds. At ttaa end of 1985, tRe balances of these prov%sfo~s were: Repatriation Grants US$ 285.4 thousand USS 226.11 thousand aCcrueB Leave Pay a provision of USS 511.5 thousand must be made to cover 283. Therefore, costs the above. To this must be added provisions (for other termination of household effects such as repatriation travel costs B traasportation and termination benefits whkh are mot provided in the budgets. This debt of WARDAto about US$ OS7 milliomm would increase the long-tam Udess donors agree to provide funds to cover this debt, the long-term deficit of the General Fund woufd need to be increased by U8$ 0.7 miL%ion, to bring the total loug term and ourrent General Pund deficit 8x3 uss 1.3 tillion. .-. - .- ..___ --._ 1/ Bkmbet Staees Pumda recd.ved in 8985, minus 1985 General Pund expend%tures , excluding provisions e Y . , 61 3.11.5. Donor fund balances (Trust Funds) at the end of 1985 284. WARDA Trust Funds are the balances of external donor funds not used by the end of the year. It is not a cash balance, but rather the difference between donor commitments, whether actually recefved or not, and the accrued and obl%gated costs, whether paid or not. At the end of 1985 these fund balances were as shown in Table 3.7, Table 3.7. Trust (31.12.1985CGIAR F&d Balances US$ 000) 705.9 Switzerland IB PITA Japan France UNDF (RAF 175) Total 121.1 3.4 11-O 189.1 101.2 24.9 12*8 5-4 8,5 12.8 --I---1,196.1 285. W tth the exception of the CGIAR balance, these funds are restricted, in the sense that they can be used for only certain projects The last four balances were carried agreed to by the donors concerned. in the books from the previous year. % .%1,6. 1985 budget performance In 1985, total WARDA expenditures were W$ 6,2 m illion against the eted amount of US!? 7,4 m illion and actual income ~~o~~trnents~ of There was overspending fn Member States, SEC, IITA US$ 7eo2 tillion. and Netherlands budgets, whereas CGIAR, IJSAID, UNIX?, France, Yapan, Belgium, Switzerland, and IBRD expenditures were less than the respective budgeted amounts (Annex VII). As mentioned earlier the reason for the low spending levels was that all available funds had to Member States and some be used, until late in the year, for prefinancing other donor-funded activities. 286, 3.11.7, Current financial situat%on financial statements submitted to STC quarter 287, The 1986 first indicated the following L/: l-/ Due to the fire at the WARDA Headquarters on 21,4,1986, one-day-before the arrival of the Panels more detailed ffnancial information was not made available to the Inane%, ~--..- ~~~~~~~ 62 (1) (2) l’ %e total including of bank balances USSO. million on 31,3.1986 in time deposits, was USS 1.297 million 1/, Of and Budget commitments for the same period were US$ %,24 million. this amount USS 0.860 million was for "accrued expenditures" the rest for "deferred commitments" (Annex VIII). (3) In the first quarter of 1986, US$ 72.0 thousand was received from one Member State (Togo) as part of 1985 Member States funds. With the US$ 881.0 thousand received from other external donors, total funds received by WARDAin this quarter were almost USS 1.0 million. has paid US$ 87.0 thousand In the first quarter of 1986, WARUA towards its debt to vendors and USS 10.0 thousand to its debt to staff, Zha arch salaries of the staff were paid in late April. (4) 3.11, 288. Table 3.8 shows the budgeted amounts for for 1983-85 by source of funding* 1986 and the expenditures 289. The total budget for X9.86 is set at USS 6.3 million and the budget for the first half of the gear at US$ 2.9 million. The funds expected for the first six momths are USS 2-7 milIion, of which USS 1.03 million is to be provided by CCIAR, 290. With a cash balance of USS 1.3 million, and a further US$ 0,3 axpasted tsom external donors by the end of June 1986, WARDA is not likely to run into serious cash problems in the first half of the pear. Ikswever, the funding of WARDAin the second half of P986 could still be a problem, The CGIkLRami cather donors need to act on the CX reeommendatioa that donors fund the administrative budget while Member State ~on~rib~ti~ns are used to cover the accumulated deficit. So far bag State funds have been received, with the exception of in 1986, no expenditures have US$ 0.07 million from Togo, whereas administrative four months of the year. been accrued for the firat J-! USS %,%67million on %8,4,%986. 63 TABLE 3-8 EXPENDITURES BY SOURCEOF FUNDING 1983 CGIAR USAID EEC France Belgium Japan UNDP Switzerland World Bank IITA Netherlands Others Member States Overhead Financed TOTAL Consisting A, of: 7.39 (5,34) .44 .05 .26 '2.05 7.73 7-83 .25 .05 .15 .37 2.44 1.73 .35 2.05 2.50 .%8 .04 .%4 .31 @%5 .%6 .07 .02 .04 .08 1.90 _ 1985 1.93 ly 1986cbudget) 1.70 -a/b/ P.73 a/ 2.04 .04 -06 .15 -15 .%4 .09 .05 .03 .15 .20 .%8 .46 .25 .07 .02 1.53 .38 c/ 1,15 21 6.20 6,29 Operations (inc%uding Personnef Costs) capita% 6.08 (5.07) .%5 6,14 (4.21) .%4 B, a/ US$ 1,7 mi%%ion amd USS 1.7% miflion do not include overhead, is shown as US$ 1.15 mi%%ion to be shared By all donors. which- k$.BIn 1985, of the US $%.9% M, US $8-36 H was used for overhead costs, US $%.57 M was applied for programs. This figure is comparable to the US $%.a0 M in 1986. c/ UncontroPlable costs, emanating from policy Governing Council Chairman. decisions by the , * 64 4. COOPERATION AMONGINSTITUTIONS ENGAGED IN RICE RESEARCH IN WEST APRICA 29%. This chapter reviews the current PITA, IRRI and IlUT in rice research in that has been achieved in establishing It also highlights program for Africa. research systems national agricultural state of cooperation among WaDA, West Africa and the progress an integra%ed rice testing WARDA's collaboration with the (NAM) in the region. 4.1. - -._-_.-.._ Cooperation 4.1.1. IITA's Among WARDA, IITA, rice research IRRI and IRAT with WARDA program and collaboration 292. IITA's rice research program comprises 13 senior rice scientists, In 1986, not including the IRRI liaison scientist stationed at IITA. IITA's financial resources for rice are estimated a% USS 2.2 million. 29%. IITA has focussed i%s atten%ion om three of %he I&S~QK rice ecologies in Africa, namely upland, hydromorphic amd swamp. In addition to its activities at IITA headqUaKteKS in Ibadan, it maintains reseaKeh stations at Ikenne and Onne, in Nigeria, and a special project in the Camerson. 294, acidity, Screening nurseries have been set up for cold temperatures and iron toxicity. tolerance to drought, Similar screening progKams are.undeKwap for reaction to leaf blast, neck blast, rice yellow mottle virus, grain discolouration and leaf scald among the diseases9 and pink borer, diopsis, gall midge and storage pests, among the insect pests. Ou%standing breeding materials and selections with tolerance to drought, s&,1 acidity and blast have come out 0% IITA's breeding 295, programs in recent years. Otbea: aspects covered by IITA"s research include %ise grain and the coordinated va~8ety evalaraation, agronomic stUdlea, %ria%s mnducted jointly with WARDAand IRRI - the IRTP Africa. Moreover, XITA has a strong farming systems program, which includes as an important component. quality rice 296, Apart from the International separately discussed below, IITA's RLce Testing Kale in Kite and selections for Program which is in West Africa includes: (1) (2) (3) providing pKOgKaBU3 genetic materials to WARDA's breeding and in selected eeolsgies; tramsfet providing basis $nfoKmation technology assessmen% and WAEDAfs on-faraa trials activities (TAT>; providing production training and some research training -----.^-..-9rS -_ Hbd% r.- VP. ^I -sJxAxm fir ogporeun.A?iaes W18L nat%ena%is. iiTA has reported having trained abou% 270 Wese African nationals over the years in rice production gKoUp coubses and about 30 individual trainees in various aspeces 0% rice research, 65 297, An PITA liaison scientist based at WARDA headquarters serves as the IRTP-Africa Coordinator for West Africa, conducts a breeding program to develop high yielding varieties resistant to iron toxicity (in cooperation with the WARDASwamp Rice Research Station at Rokupr) and serves as a communication link with IITA. He has also participated in other WARDAactivities and served as Acting Director of the Research and Development Department for a few months during 1984, with the approval of the IITA Director-General. 298. WARDAscientists responsibie for HMXiich on upland rice based cropping systema are coordinating their work with the IITA cropping ILTA and have been provided seed systems program. They have visited supplies of cowpeas, maize and leguminous tree and cover crops* as well in this area as advice on how to initiate their program. Collaboration is planned to be a continuing effort to avoid unnecessary duplication and to allow for routine exchange of information. _.. 4.1,2. Qd IRRI in Sub-Saharan Africa IRRI in West Africa a 299. Rxcept for the IRRI liaison scientist stationed at IITA headquarters, PRRI does not have a physical presence in West Africa. Nevertheless, IRRI has been making significant contributions to the rice Over the period 1984-1986, IRRI devoted resource e%fort in the region, and average of US$ 238,000 annually from its core funds for West Africa. 300. %RRf sends genetic materials to WARDA, IPTA and to some West African countries under the IRTP. Some IRRI materials have been found promising, particularly under some A%rican irrigated environments. However, most of the Asian materials tested so far have not stood up under A%rican stress cond%tions, e.g. drought, acidity, iron-toxicity and blast infection. 301, LRRI offers training opportunities to West African nationals. Thirty-eight participants hawe attended short courses on Genetic Evaluation and Utilization (GEU) and PRTP at %RR%, Forty West A%riean students have undertaken research-oriented training (H.Sc., PhsD. or post-doctoral fellowships) at IRRI and the University of the Philippines at I&s Banc95. A few of these former IRRX-UP Los Banos scholars are now contributions to West on the W A staff. However, %RRI's training A%rica, unlike in Asia, Rave been -ad hoc in the semse that the training opportunities were not designed to develop a critical mass of trained rice research seientists in target national programs. 302. % publications are widely distributed in West Africa and are claimed to be the major source of in%ormat%on on r%ce scfence and KRRP believes, however3 that the technology for national programs. effectiveness 0% their publications could be further improved with better distribution and translation of major publications into French. 303, Several national rice programs in West Africa and WARDA collaborate wi&h IRRI in the International Network on Soil Fertility and Fertilizer Evaluation (IMSFFEX), while others request and receive IRRT. also ships sample rice machinery and equipment evaluation trials. to IITA, WARDAand natiomal rice programs on request. 66 304. IRRI collaborates closely with WARDA in several other ways. Dr. T.T. Chang of IRRI visited WARUA in 1984 to advise on modifications required to improve the performance of the Fendall Rice Germplasm Storage Unit and to arrange %or routine transfer of seed of selected varieties to IRRI for long-term storage. XRRf: has also assisted the upland rice program in making di%%icult crosses and in rapid generation advance. Samples of IRR.1 designed equipment have also been provided for testing at the Upland and Irrigated Rise Research Stations. WARDA staff members have been invited to participate in the IRRI Internal Reviews during 1985 and 1986, and an IRRI staff member participated in the WARDA Internal Review in 1985, The Rice Primer was co-published by IRRI and WARDA in French and Engl8sh in 1985, and another co-publication on Arrangements for the visits to post-harvest taehnology is in process. Ghana and Guines by the IRRI Constraint Analysis Survey Team were made by WARDA. A senior WARDA economist also participated in the entire West A%r$eam tour 0% the Survey Team- for EC part 0% the broad agreement reached by IXRX, IXTA and %olloting a visit o% the IRRI Board to Tanzania in October 1983, a collaborative agreement between IRRI and Tanzania was signed. A project 1 %or S~~~~gE~en~ng rice research in Tanzania has beem developed and the Tansanian Agricultural Research Organization (TAR01 and ~~~~t~ed to for ftimding, 305e eoordiQator 386, Itn a parallel effort, IRRZ initiated in February 1984 a joint ~~d~~tak~~g with the Malagaseg Republic to improve the pro%essional skills and i~st~tu~~o~a~ capacity for research of FQFPFA, the Malagasy The OSAID ~%t~o~al agemq %or ss;%entiffe research for development. a support 0% US$ la2 f&ABon Par two and hal% years %ot Ehe Lw a&lit&m to 1oca.l txrremzy sapptx~ through s Pigs 480 gr I sefeneists bava been rkiwg h Malagasy since Se~~~b~~ 1984, se of the project extending to August JL988is now under consideration. %(97, As with West Africa, IRRE has extended training opportunities a%%s in specialized training courses at IRRI as well as under tke mR%-uP Los B%mosprogram. to %Q& More recently, the IRRE Board with GTZ support commissioned a ~s~~~~ to chart E&RX's role in rice research and production in East and Ssathem ri6ae 40 $,3.x REC. Recognizing the need to rationalize the rice testing activities West Africa and in the rest of Sub-Saharan Africa, the three institutions agreed to pbol their resources into a unified testing program under the IRTP. in 310. The IRTP-Africa program was formally established in January 1985 at a planning conference held at %ITA with participation by IITA, WARDA, ICRRI and several Sub-Saharan African countries. The program was initiated during 1985, with IITA responsible for production and distribution of seed, and with WARDAresponsible for organizing the trials within its Member States, except Nigeria where IITA is iocated. The program is continuing, and a second planning conference was held in Tanzania during March 1986. 311. In 11985, 115 nurseries were sent to West Africa, out of which 67 went through WARDAand the rest were dispatched directly to the national programs from IITA. Sixty-six (66) sets were sent to ECSA, The seed stocks were multiplied by PITA in cooperatf.on with the National Cereal Research Institute of Nigeria. Field books and three IRRP publications on how to conduct rice trials were sent with the nursery sets* 312. The global IRTP administered by I condusts 2% nurseries for However, for XRTP i6aq only two ecologies were various ecologies. lowland conditions. initially to be covered - upland and irrigated For Screening Sets (PS) each ecology, three sets are prepared; Preliminary Observational Nurseries (ON) with 100 entries, and with 150 entries; Advanced Variety Trials (AVT) with 17 entries. 313. The breeding materials come from African national programs, IITA, The entries for the PS may be direct WARDAand global IRTP nurseries. introductions from breeding programs anywhere in the world, while those for ON and AVT are only those which have been tested and found promising The sites for the PS sets are chosen on the basis of ecology in Africa. as well as the presence of interested and capable researchers who will AU the nurseries are sent only upon the request of conduct the tests. interested national programs. 314. The data from the first year operation 0% XRTP A%r%ca are just observationa have been made on the test beginning to come %n. Initial results from Nigeria and on the report of a monitoring tour by WARDA, IITA and national scientists to Gate dqIvoire, Liberia and the Cameroon, Some of the problems noted include late submission of entries, poor choice 0% entries, poor quality seedsp delays in dispatch of nurseries, la& 0% trained natiomal staff, insufficient resources of the NARS to in the results and delays in the czonduct tr%ais p extreme vaipfability return 0% results. of 315. The IR -Africa program has begun to suffer from insufficiency funds in 1986, IITAes commitment of DS$ 300,000 in 1985 has been scaled down to US$ 180,000 in 1986 due to Zinanefal constraints. Consequently, ehe 1986 budget for IRTP-Africa had to be aa to W$ 480,000. 4,%,4, IRAT and other developed country inseitutions -. - 316, XRAT is the fourth major institution engaged in rice research in ‘ Its contributions can be gleaned, at least in part, from West Africa. 68 the scientific publicaeions authored by IPAT staff and from an assessment of the varieties adapted to West African condieions it developed through the years. 317. The Review Team’ s contact with IRAT was seconded eo IDESSA at Bouake, CZee d’ %voire. eke IPAT staff were integrated eompleealy with IRATIIBESSA rice team at Bouake was considered has limited to the IRAT staff Since eke ace%v%t%es of the naeional program, the a nae%onal institution. 318. The French agricultural research presence in ehe West African seaees has umdergone a number of changes since independemce. It appears now ehae IRAT’ s major rice research efforts are based and coordinated A and oue of Monepellior, France. IRAT’ s role, eherefore, as far as ehe Member Seaees are concerned may be considered as similar eo that of other research laboratories and instieueisns of higher learning in the developed countries. 319, There are other aseors fn this Unfversfty ae Wageningen, The Netherlands water managaene researek with the a%: St e kxds D Senegal.. The cathol%e The Agr%cu%eura% un%e engaged %w Xrrigaeed R%sa &search Seaeioa th%vers%ty at uvaia p Belg%m 0 category: has a research a%ss has an active collaboraefve project on azolla w%eh the St e Louis sEae%ow B ICIPE and IPDC, wb%eh are both fnternae%ona% centers, play similar hue relatively minor roles. 4.2. WARDA”s Cooperation w%th Natfan& Programs 320. The Second EPR (1983) described in detail the nature and scope of W ‘ s collaboration a linkages w%h the national research and d wever, afeer the Second EPR, the Association opmene programs o has undergone a number of major changes which affect the manner in which %t eollabsrates tieh national programs0 The mose notable amoag these were : the merger of the I?.esearsb and Bevelopmene Beparemenes; the teYmfnat%oa .f ehe Sub-Reg%orial c.2xm3%aaeor pssit%ons; B$?g$resupirag and ~e~r~~%zae%~~ of the special researc%a projef2ta under 6he reggional Kesaarch stafz$ons; the txansfer 0% sevaral headquarecrs seaff to the research stations; a&. the merger of reg$onal variety triALa with those of IITA and IRRP ehrough XRTP-Afr%ca. 321. As a result, tha regional research seaeions have become the Al though seneral foeua of WARDA8seoneaces w%eh the wae%oaaa% programs. a nmber of aetfvfties continued to be coordfnaeed ehrougk Monrovia and Fendall, ehe deceneral%zae%oa enabled WARDA to gee physifcally and psycholog%eally closer to the users of its programs. As a resule, WARDA is beeeer rece%vcd and appraeiated by the naePona1 programs. 4.2.1, i%dc?s of @ollaborae%on A’ s effort-23 %n support%wg and re%nforc%ng national al tes%esech Emd exeem%m pPfigK~s kave beeri %a. %ha $o?low%ng lam col%ect%oa and ue%l%zae%on; technology development ; ssessment. an?%Eras%eK; training; provisimx of breeders seed 0% selected var%et%es; eechn%caa%ass%sCamze; Bnformatiow cslleetion, eolPa%%on and d%ss~%~~~%~~; rev%ewa g conferences, seminars, workshops and meet%qs u 69 323. The germplasm collection activities have been carried out in collaboratfon with national research institutions as well as other international research agencies such as IITA, IRRI, IRAT and IBPGR. Samples of the collections are kept in the short- and medium-term germplasm bank at Fendall, Liberia, They are characterized either at the Reg%onal Rice Research Stations or at the Seed Nursery Farm at Fendall. Pro&sing varieties are used either for hybrid%zat%on in varfety development programs or made available to national programs through the IRTP-Africa varietal eest%ng programs. Thus far, collections have been made in Nigeria, LiZer%a, Pal?., Senegal* Guinea and Guinea BPssau. 324. Technology development has been carr%ed out at the four regional rfse research stations: Bouake, Rokupr, St. Louis and Mopt%. (The Mopti Station was closed on 30 March 19S6 with transfer of deep-water and Ploat%ng r%ce research responsibility to Rokupr.) Each of these research stations is operated fn collaboration with the natfonal agricultural research organtzation of the country in wh%ch ft is located. While WARDAprovides the funding for the stat%ons, each employs professional and technical staff seconded to it by the national prog%amea 325, Most of the nations% professional staff at these stat%ons have been educated at the Masters or Ph.D, level. The national technical staff members of the stations have had e%ther %n-servfce train%ng or training at the WARDATraining Center. WARDA's approach at these statfons is that if it terminates its support, trained and experienced The value of this national staff should be able to operate the seatfon. policy was demonstrated when the natfonal staff took'over operation of the Mopt% Station when WARDA withdrew its support in 1986. Sfnce only one of the four countries in which WARDAResearch Stations are located carrfes sue its own rice research program independently, this is an important consideration. 326, Technology Assessment and Transfer (TAT) %s an important element of the program of each Reg%onal Research Statfon. 16 is through this component that constrafnts to rice produst$on are identified, research results are ver%f%ed in 8'om-%arm* tests %n the various ecologies, and technology packages are assembled end tested for transfer to nat%onal programs e During 1985, the TAT programs of one or more of the stations conducted astfvitfes in 12 of the 16 Member States of the Assoc%at%on~ 327, Each of the stations1 %n addition to its variety testing programp %s prepared to provide breeders seed of.%ts nest promisfng var%et%es to national programs. Xn exceptional eases stations have also provided foundation seed to natfonal programs unable to produce et themselves. A number of donor funded special projects are carried out wh%ch %nforwation and technical assfstanee &o Member States, Examples are the Water Management Project carried out at the RegPonaP Irrigated R%ce Research Stat%on whfsh works w%th XSRA (Agricultural Research) and 328, / provfde SAED QAgrfealtural Development) in Senegal and w%th SONABER(Rural ~eve~~p~~~t~ in Maar%taw%a and the Azolla Project earrfed out %n These eooperat%on w%th natfond agencies in sfx member countries. projects are based at the Irr%gated Rice Research Statfon in Senegal. . f 70 %29, Training of natfonal scientists and technicfans has been an %mportant component of the WARDA program for many years. The Training Center at Fendall, Liberia, has recently been expanded to double its capac%ty to handle up to 64 resident students at one time. Non-degree, short-term (two weeks to six months) courses are offered fn a range of subjects dealing with rice research and development topics. Over 1,400 students from Member States have been trained thus far. 330. Information, collection and dissemination on rice production, ecowomics of rice and other technical subjects, continue to receive attention, although shortages of funds during recent years have delayed publication and distribution of a number of items. The same problem has fareed cancellation of the (intended) biennial rice review and other meetings and conferences during 1984-1986. 4.2.2, Examples of collaboration from Rokupr, Bouake and St. Louis 331, The Ragfonal Mangrove SwampR%ce Research S%at%on at Rokupr, Sierra. Leone is located on the site of the S%erra Leone ~~~%~n~~ Reaearpch Center and rks very closely with the nae%onal program in r%ce bre~~%ng~ soil and crop management seud%.es and constraints analysis through the TAT program. The first improved varieties of the Rokupr Station are now being released by-the Sierra Leone and other national new technologies such as programs. The staff have been introducing Bertif%zer injection, use of tise hulls for soil conditfon%ng, use 0% aseollaa, and modified transplanting methods with the natfonal extens%on agenc%ese 332, The Rokupr Station haa active cooperative programs with the b%a, Guinea and Gufnea-Bisaau in TAT studies, in variety adaptability and demonstration trials, seed multiplicatfon and training of f%eld assistants. 33%. Infzensive research on upland r%ee at the Regional Upland R%.ce Research Station at Bouake, te d'Ivoire commenced only in 1985, %ollewf.ng the 1983 EPW. Fac%P%t%esand exper%mentaH land are peov%ded by %DESSA,the Ivorian nationa% agr%cultural research agency with wh%ch eke staefon maineaims close eies. 334, The Bouake Stat%on plays a major role %n the supervision and cosrdfnaeion of upland rice nurser%es under %RTP-A%r%ca,. Bouake d%str%buees, follows up and monitors the conduct of the nurseries by the nat%onal agencies that part%c%paee in the program. ft also multiplies anci d%stribuees seeds of adapted upland varfaties identified prev%ously in 6he CVT trials conducted all over the reg%on. Recently the seatfon has begun to conduct constraints analysis through TAT surveys in Sierra Leone, Gu%nea, Ghana and in the hoot sountryi 335, The Review Panel visited a demonstration farm for the use of .fPaQ.9 s-s*+-* 9 ~.wre%~v=i~~. %p*rsra'8 .pwAapad i?p-fgg$-:ed .nya-a~r" lnwlrra& p4_ce PI*tf-IwP+lfl-m -"I--m* ----oIm-w.= 8gr.&bMICYB68L w,ae*rsaa~bg and observed thae eke i3ouaka staff work slosely w%tk thefr Ivor%an counterparts from CIXA, the agricultural mechanization agency. 336, The Regional Irr%gated R%CXResearch Station conducts TAT studies w%th &%nea Bfasau and Sierra at Se. Louis, Senegal Leone. Pe sends 71 varietal trials to the Gambia and Guinea Bissau and provides seeds to Mauritania, Burkina Faso, Mali., Guinea Bissau and Niger. It conducts azolla adaptation trials at Burkina Faso, Guinea, Guinea Bissau, Mali and Sierra Leone and has a post-harvest technology program based at the Gambia. The station also offers training courses for national researchers and extension agents on rice breeding, post-harvest technology and seed multiplication, 337. In Senegal, fts host country, the WARDA Regional Irrigated Rice Research Station has been entrusted with the national Irrigated rice research program for the Senegal River Basin in cooperation with ISRA, the Senegal agricultural research agency. It likewise cooperates actively with SAED, the national agency responsible for the development of the Semegal River Basin, in the conduct of TAT studies, varietal introduction, testing and multiplication and water management. 4.2-3. _ Some thoughts on modes of collaboration national capacities and strengthening ._’ 338. The strengthening of national capacities to conduct rice research and development is, and should remain, a primary objective of WARDA, In Asia and Latin Amerfcza, where most of the natfonal agrfcultural research systems (BARS) have attained a certain degree of maturity and mass, the IARGs did not feel compelled to adopt, formally, institution building as But the extreme weakness of the NARS in the WARDA a key objective. region (and elsewhere in Sub-Saharan Africa) calls for a dffferent interpretation of &he role of the IARCs operating in this part of the world. As generation of new technology becomes almost meanfngless in the absence of institutions that can effectively utilize and carry such technology to the farmers, there is urgent need to define how the IARCs could best carry out an institution building role in Africa. To ie is "how'" e re-emphasize, the question is not "whether"; 339. Clearly, the task facing WARDA(and other single-commodity centers) is a difffcufe owe, as the rice research program component cannot easily be isolated from the rest of the NARS. However p this should be no cause for con.cerno The experience of the older IARCs fndicates that marg%nal improvements in one commodity area can serve as A concerted effort in several eommodfty a bui%d%ng block for others. can have a significant multiplier effect. areas, therefore, is the extent to which 346 0 One of the critical questions facing W though substitution is it should substitute for a national program. often presented as a mode of collaboration, such a strategy can be counter-productive for the developmeat of national capacities in the Substitution has some immediate advantages: it gets the But when substitution ceases, ft job done more effectfve%yo leaves behind a vacuum that must be filled by the national agency, often by starting from scratch, 34%6 The answer, actually means: one party, there and only one acts no collaboration, therefore, lies in making collaboration what it If there is only joint action by two or more parties. If there are two parties is clearly no collaboration. and the other plays only a token role, there is still To serve a useful purpose, both parties should play 72 meaningful roles in the collaborative effort, The key lies in ensuring that collaboration does not resuLt in excessive dependence of one on the other, Leading to atrophy of the dependent party, Thus, if the new technology gets transferred to the domestic produetion system but the technology and the science that goes with it do not get internalized by the receiving country, the country undergoes technological change (a short-term objective) but there is no authent%c national technological development (a Long-term objective), a 342. WARDA's links with its collaborating countries is variable, as could be expected. In the case of Mali, the effort led to some joint action and learning by the national scientists. As a result, when WARDA's station at Mopti was closed, the national scientists continued research activities. hn St. Louis, Senegal. The 343. The case appears to be quite different national. research agency, ISRA, has seconded three of its staff to work with and to be paid by WARDA. (The seconded staff are technically paid by their own gov ent, but WARDA reimburses their saLaries to the government). IS aas not have ax-8irrtgatied rice program of its own ver Basin and does no% consider the WOX+Z of the three for the Senegal Instead, it seconded staff to form the nucleus of a nationaL effortB delegated Its research respowsibi%ity for irrigated rice to WARDA. As a result, ISRA missed an opportunity to create a small national research capacity in irrigated rice, with its own distjbnct identity. 344. The sjttuation at Bouake shed yet another collaboratdon mode. Here, there is a relatively matus and Large national research organization with a sfgmiffcant expatriate component. There is considerable overlap between the activities of WARDA on upland rice and the work of L'RAT/ZDESSA. However, the present WARDAeffort at Bouake consists 0% at Least some astivfties typfcally expected of a NARS, while the XRATIIDESSAwork has some st~ategie research dimensions, which are S but rather with the not asudly assocfat.ed with a examples ~~~~~ESSA supplbiaa b~eeai~~ materials and finished varIetiles Ko oebar ~~a~~~~~~~~ ccwatriea ~es~o~a~b~~~t~ &or the genetic in the region characterization am! has assumed soimz and csnservatiow of West African rices. 345. There is clearPy a need for WAXDAto define better the role it shoufd play at Bouake vis-a-vis the role of IRAT/IDESSA. Recognizing this, and aware of the meed for better coordination, the WARDA and ~~T~~~ESSA staff have recently initiated an intensive diabogue to sort The Pamel regards this to be a out their respeefzive respons%biP%tbes, most welcome deve%opment if f%: can be implemented. The three examples gives above show that the circumstances of each 346. The country are plfilQp~~and, as sucke need to be addressed PmdivBdually. Lessoa %sr w A is to def%na better sts own roL.a in eoL%aborat%on tith the Pane%'9 view, as a genera% ea6h na nal Qrog%am in the region, over- rice resear& in the %rm "talci tu%e:, w A sboksld %Bfb8%E1 ate%% however tempt%ng tkfs ht be. Instead, ftz should de~~be~a~e~y attempt to separate its own iden%%ty from that of the national. program, however we& the Latter might be, in order to aLPow the nation& program to build a separate identity of its own, . ,, . , 73 5. OVERALLASSESSMENT AND RECOMMENDATIONS 5.1. WARDAObjectives was established in 1970 through actions by eleven West 347. WARDA The decision to create the organization grew out African countries i/. of the recognized need to expand rice production throiighout the region. In the late 196Os, West 348. This need was quite apparent at the time, African countries were importing, annually, approximately 0.4 million Local production metric tons of rice at a cost of US$ 80,O million. which was reaching 1.2 million tons/year had been growing at an annual rate of 1.69X, while population was increasing at a rate of 2.8%. Without a marked increase fn production within the region, it was estimated that foreign exchange ewpeaditures for rice imports could rise to US$ 180.0 million by 1980 and IJS$ 540.0 million by 1990 /. 349. WARDA was thus created with the pr%mary objective of reducing the It was region's dependency upon large quant%ties of imported rice. of farm recognized ) as well, that the econom%c well-being of millions families in the region could likely be enhanced through improvements in rfee production. 350. The WARDA Member States are due much credit for their recognition in the ereation of an of a major regional need, their initiative commitments organization to respond to the need, and the significant Such an interthey have made to support the WARDAprogram. effort is unique among Third World countries and governmental, self-help merits the highest praise. 351, To date, WARDAhas undoubtedly served many useful purposes. It has ereated a climate for regboual cooperation which extemds beyond The programs of WA.RDA have matters related directly to r%ce production, highlighted the eomplexity of the problems related to rice culture in the rag&on and have helped to establish the basis for progress in rice ~EQd~~t~O~. 352, IfIt should be recognized, however, that the primary objective of W A8 the enhancement of rice self-sufficiency in the reg%ons has not region is much more dependent on rice heen achieved, Indeed, A was established. For example, the WARDA fmpo~ts today than when regCon was producing approximately three-fourths of the rice %t consumed %n 1965/$9 but only one-half of its needs in 1980/84, DurJ%ngthfs period rice Imports grew some 350%, and expenditures for rice imports today far l-j 3 &mbership port has since grown to 16 countries, Quinquennial Review, CGIAR, 1978. of First 74 exceed the projections, at the time WARDA was established, of what import cos%s might be wlthout substantial increases in production. 353. Total. rice production in the region during the 1965/69 %o l,980/$4 period increased by some 50X, due primarily to an expansion in area devoted to rice culture. Although yield levels improved in some countries during this period, average yields for the region were essentially the same in the early 19808 as in the late %96Os. (It should be recognized there was severe drought in some parts of the region during the latter period). 354. Population growth contributed ts a substantial increase in demand for rice in the region during the pas% 15 years. However, growth in production associated wi%h the increased area devoted to rice more than accommodated %his element of expanded demand. Other major factors contributing es the decline in rice self-sufficiency have been the rapid growth in per capita rice consumption, along with the failure to improve overall rfce productivity. 355, The Revp%ew Panel recognizes %ha%%he decline in regional rice self-suffkkney might have been greater had WARDA no% been in axiseence fob. the pas% 15 years. A% %his poi~%~ however, %he importane consideration is the face that: there is a more critical need today to improve rice produc%ion in West Africa than when WAPDA was created. 5.3. Pactors Limiting the Achievement of Objecrives . 356. Many factors have, unqueseionably, iimited the achievement of WARDA obj ee%%ves e They relate both to ex%ernal production constraiwrs as well as to internal problems and limitations of the organization f%Sd.f * 5.3. lo Productioan eonstrafats 357. The produceion of rdee in the region is impacted of bioLogica%, chemical, physical, socfo-economic, and sonstraints e Many of ehese are addressad in chapter 2 and are considered in grea%er detail in a recent warda by a wide range political of this report publieation if 0 358. The Panel recognslzes the major difficulties confronting effor%s to indeed few, if any, areas of %he improve rice production in %ha region, these problems serve to pnnderseore worid preseae more serious problems. &he need for a concerted research program, as well as ck%her efforts on a broad front B 66 address8 and %o thn ex%en%possible remove, the serious The need for such am effor% cot~atraiw%s %s progress in rise produc%ion. is greapter %oday %han when %he Assoeia%fon came into exis%enee in 8970, Y “Cons%radn%s 60 &Land Rice Produc%ion in West Africa’ *, DA, 1986 75 5.3.2. Limitations related to WARDAitself 359, The Second External Program Review of WAkDArecognized that the Association had achieved "some of its program objectives" but expressed disappointment in the efficiency with which its resources were used. The Review Panel pointed out that "WARDAspends nearly half as much annually as the largest of the other IARCs, but neither its research output nor its contribution to rice development capacity is consistent with that level of resources". The Panel concluded that the low productivity can be attributed to a number of factors9 including a lack of clearly stated and appropriate program objectives geared to the needs of West Africa, and to the lack of an operational strategy and performance criteria. 360. The concept of an inter-governmental rice development association in West Africa would appear to have great merit. It is apparent to the Mid-Te'rm Review Panel, however, as it was to the 1983 Panels, tha% WARDA has not had the desired impact on rice production. This is due to several factors, including the orientaeion or focus of the program, its governance and management, and its funding. (a) Orientation af the program 361. As indicated in Section 3.3, the original objectives of WARDA were very broad. These were appropreate aims or objectives of a development organization which WARDA was commissioned to be. They do not, however, represent rhe objectives of an organization primarily concerned with research, as are other member fnstitueions in the CGIAR System. 362. Although the need for a research component was recognized in the WARDACharter, primary emphasis was placed on the adaptation of This focus or emphasis was based technology rather than its generation. on the widely held 'assumption a% that time that there was available in the global community much rice technology which could be readily adapted to West Afrieam condi%ionsO Such an assumption has proved to be apparent that specific eKroneous, awd i% has become increasingly teshnologfes need to be developed for the harsh environments and other dffffcuit conditions often encountered in the region, The absence of such a research orientation or focus has limited WARDA's effeesiveness and achievements. 363. Under the leadership of %he Acting Executive Secretary and the current Director of Research and Development, along with the guidance of a newly-consti%uted Scientiffo and Technical Commitgee (ST(Z), the Association hasp during the pet two years, moved toward the development of a well-conceived and more sharply foeussed research programs consistent with the recommendations of the 1983 External Program Review. This programB however, is in i%s early stages of development, and other problems assoeia%ed with WARDA's governance, management, and funding have Pimi%ed f%s impfementa%$on and progress. (bl Governance and management 364, The i983 External Program and Management Reviews focussed on various problems in the governance and management of the Association. , 76 These have been detailed in the reports briefly summarized as follows: of the Panels and some are The Panel recognized WARDA”sconsiderable assets and sonsluded thae %he Associat%onqs inabi%i%y’ to sransform these assees into more useful technology for the region was due, in substantial measure $ to management InadequacJes. Despite the considerable WARDA f$ancial resources devoted to coordination and administra%ion, the essential contributton of charting the course for the Association had been largely missing. A major cause of WARDA’ s inefficiency is the absence of accoun%ability for overall, InseitutionaP performance, starting eke level of the Governing Council and descending through the organization. at Serious dffficulties have been experiensed in the area of overall finansial managemen%and control, inc%uding ascount%ng and b~~~%~ng~ as well as internal and ex%erma%aud$%inge The personnel function is no% used effectively managing WARDAps human resourcesa The linkage and performance is minimal, The Pane% eoncI.uded that lone missing well-developed sense of Ins%i%u%ional s%a%% %end to work for their own gain one does not sense that the in%eres%s %hese very often”. tions as a mechanism for between inceneives ingredient for success is a loyalty. WARDA headquareers or for ocher individuals but of the Association transcend The Review -Pane%s developed a mumber 0% significant resemmenda%o deal w%th some of the mope ser8ous governance and management prob%ems sonfroaeing the Asso~%a%lon~ The reporra ~2%the Panels were in tam endorsed by bo%h TAC and the CG u The Governing G~nc311 and their aseeptance of %he key elements o% etxt%ve Secretary indicated the Pane7bs@ recommenda%fons. However9 Ln the ensuing months, there was unmBs%akabfe evidence of ac%%ons by %he Pxeeutive Secretary that were directly contrary $0 the Panels’ proposals. %66, Moreover9 the Executive Secretary, wi%hou% conferring with either %he STC or donors, proposed major changes in the WARDA~eonstitutiom which, Ibf implemented, would have changed %he entire character of %ke eocfatioa. Inclbuded was a proposal that WARDAqs manda%e be broadened to ine~ude crops other %ban rice. 367, ese sircums%ances prompted TAC to tithhold f%s endorsemen of ebe A progr and budget, pending %he ouecome of %he December 1 rn~e%~n~of %he Governing Council and the ava&,fabili%y of evidence thae sa%%sfae%ory progress could be expec%ed in %he impI.emen%ation of the review Kecemmenda%%ans i. 368. The Governfng CeunciB. in its December 1984 meeting dibsmissed the Executive Secretary and took a number of actions aimed a% addressing the ~e~~~enda%~~na of eke Pa The Chairman of TAC then soneluded that %he Gwenming Cmmc$%, ehmugh stxch a.c%1%ons8, had taken the essemtfal 77 steps established by the CGIAR as conditions for continued support and The Chairman of recommended that CGIAR funding be resumed forthwith. the CGIAR concurred and urged donors to proceed with WARDA funding for 1985, 369. In its 1985 meeting, the Governing Council took further actions to abide by the spirit of the Review Panels' recommendations, delegatfng certain governance functions to the Scient%fic and Technfcal Committee. 370. Members of TAC were encouraged by-these positive actions taken by t&be Governing Council. However, the Mid-Term Review Panel has encountered circumstances which give rfse to renewed concerns about WARDA's governance and management and raise serious questions about the extent to which some of the key recommendations of the 1983 External Review Panels are being implemented. 371, First, at the December 1985 meeting, the Govern%ng Councfl approved the delegation of a number of responsibilities to the STC, including authority to: (19 "select a forum of accountants for appointment by the Governing Council to conduct the audfting of the Association's accountsnp and "select and appoint on the basis of objective criteria, candidates to the position of Executive Secretary and Deputy Executive Secretary and to submit the appointment for comfirmation by the Governing Council'". (Emphas%s added). - 429 372. At the same meeting, the Governing Council agreed to meet biennially in an ordinary session and, as necessary, in extraordinary sessions 9 to take various actions, fncludfng '"to confirm the appointment of the Executive Secretary and Deputy Executive Secretary from among the candidates recommended by the STY. (Emphasis added). 373. In exercising the authority delegated under (1) above, the STC recommended two aud%t%ng firms to the Governing Councfl, but the Council failed to appoint either of 6hem. The Acting Executive Secretary then proceeded to appoint an auditorI different from either of those recommended by the STC. 394, With regard to (2) above, the Governing Council seemed, on the one hand, to delegate clearly to the ST6 the authority to select and appoint the Executive Secretary and his BeputyP, subject only to confirmation by the caunc%l* On the other hand, the Council indicates it would confirm by the STC but rather from STC0 There is obvfouslv sPgnif%cant differewee in the two positiona. 395, In the Panelpa visit to the reg%ong two promfnent members of the Govetnfng CounePl %~de~~~d~~~~y %nd%cated that, %n their opinion, the Executive Secretary should be selected and appointed by the Governing counciP e This, along wbth the ambiguity of the Council's position taken at its last meeting, raises real doubt whether the Council %ntends to allow the STC to "'select and appoint'" the Executive Secretary, subject only to Councif conf%rmationo . . 78 376. Second, it would appear that the leadership of the Governing Council has intervened in management decisions which keep WARDA's management from taking needed acttons relating to programs and budgets. Such fntervent%on would appear to involve the Governing Counci% in operationaP matters which go.beyond what would seem to be appropriate functions of such a policy making body, a 377. Specifically, when WARDA management received an approved 1986 budget from the STC, it was necessary to reduce the scale of its operations, especially within the headquarters staff, in order to conform with anticipated revenues* This resulted in decisions to terminate personnel whose annual. salaries and benefits amounted to some US$ 600,000, Shortly after those decisions were announced, the from the Chairman of the Escecutive Secretary received a directive Governing Counci% to reinstate those persona being terminated. The Panel was informed that this order was followed by a similar directive from the Governing Council representative of the Executive Secretary's homa eou~try, When the tiecutive Secretary explained the circumstances to the leadership of the Governing Council, and after the Chairman had dent his personal representative to WARDA headquarters to review the situation, the Chairman rescjbnded his reinstatement order* At the same time, however, he directed WARDA management not to terminate anyone else9 but rather to pay them from Member State funds. Since there were no 'Member State funds ava%%able (in fact there is a significant deficit), management has not been able to make the needed termdnations and finds ft wecesaary to use donor program funds to cover administative costs 0 378, The Review Panel has been informed that further terminations are deslbrable and, im fact, necessary, to conform expenditures with aneic%patetR revenue3 o Yet the d%rectLve from the Chad.rman of the f%mm.=ming Couns%l~Ps sti.U in effect9 preventing the Executive Secretary %rom taking needed management act$ons which could have s%gwif$cawt %%nanc%all imp&cations Lor donorae 379, Th%rd, a meet%ng tith the Chairman of the Governing Counci% provided the Panef with Little assurance or encouragement concerning the likelihood of a substantially improved governance and management env%rcmmewt within the Association. Xn fact, it raises serious questicans concerming the desire or intent of the Governing Council to sb%de by some of the co tmenta it has already made relative to changes retzommendedin the Second Review, 380, The Chairman expressed appreciation for past danor support and fndicated a desire to resolve any problems which might limit fu",ure per%omanc32 ot the Assoc%ationo Re %urther fnvited specific ~eemimenda~fana %rom domars csmeam%ng the operations of WARDA. At the same time, %mwever, he stxessed the "swvereignty" of the Member States, Iurther :nd%cated tzhae ""the STC role 2 advisory" and that it is rtant thae %t csnt%naea as advkmry 2363 that 66s actions w-2.13not interfere w%th naff%onal f,nterasts" 0 I-k ales suggested i3-m donors t-m ‘ “esn%use ~~~~~Kat%~~~wl.eh management” a 381, fn ~e~~~n~e $0 a questfsn, the Chairman %ndicated that it was his vfaw tzbae the Executive Seereeary of U DA stmuld be chosen by the Governing Councf?, and that he shou%d be a "poXiticaf type" since his 79 primary role would be to work in the political arena of the Member These views do not appear to be consistent with the position States. already taken by the Governing Council which would delegate'to the STC the responsibility of either appointing or recommending to the Governing Councfl individuals for the office of Executive Secretary. Tine Panel believes it is unlikely the STC would recommend a "political type" for this top leadership position in the Association. The attitude expressed by the Chairman raises the possibility, if not the likelihood, of a stalemate between the STC and the Governing Council, if the Council is unwilling to accept the nomination of the STC; 382. The Review Panel is of the opinion that some of the governance difficulties may grow out of the rapid turnover of the Governing Council membership, along with the related lack of continuity and institutional memory. This difficulty is illustrated by the fact that from 1980 to 1985 there was an average turnover in Governing Council membership from from the one year to the next of 85%. Zn one year, the turnover previous year was 100%. The problem may also result irm part from the fact that the Chairman is chosen as the representative of the country serving as host for the annual meetings of the Association, irrespective of his background or experience with the Association. This may result in the office being filled by someone who has had no previous experience wfth WARDA- as is the case tith the current Chairman who has apparently never attended a Governing Council meeting. 383. At any rate, the current situation gives assurance that the past problems in governance significantly improved. the Review Panel little and management will be 384. The Panel recognizes and applauds, however, the conscientious and dedicated efforts of the Acting Executive Secretary who appears to have given effective leadership to the Association for some 16 months under extremely difficult circumstances. (cl Funding the Member States agreed to assess 385. When WARDAwas created, themselves on a formula basis to support the General Fund, designated In 1975, the for the purpose of financing fts administrative budget. Governing Council establfshed a Special Fund to be used exclusively for the "planning, impfementation and maintenance of special development, As with the General Fund, the Member training and research pro?eets", States are assessed according to a formula. 384, Through 1981, the record of most. Member States in meeting their in the region, Wfth depressed economf:: conditions assessments was good. however p contributions to both funds dropped sharply, and in 1982, 1983 by and 1984, expend%tures of Member State funds exceeded contributions USS 0.618, 1.220 and 0.958 m illion, respectively. the General Fund became so great that, Fund had to be used to make up the By 1983, however, the Specfal deficit Zn the administrative budget. Fund was also exhausted, and in Late 1984, WARDAwas essentially insolvent with salary and vendor payments several months in arrears, in time, the reserves of the Special 387. The decline in support for 80 388. In a message to the CGIAR Secretariat in early 1985; the WARDA Executive Secretary indicated that the Association debt at the end of 19g4 was US$ 2.74 million, with US$ 1,9 million of this amount owed to staff as salaries and other benefits and as contributions to the Staff Provfdent Fund. It was recognfzed, however, that "'against these amounts owed by WARDA at the end of December must be set the amount (totallfng llS$ 1,306,339) due to it for activities it has already ffnanced but for which it has not been reimbursed by external donors." The Executive Secretary concluded: -By my reckoning, operations will come to a complete halt by 1 May 1985, unless WARDA is g%ven a massive infusion of funds." The CGIAR Secretariat responded by encouraging donors to take va~fous steps to meet the emergency. A positive donor response enabled the organization to weather the immediate crisis and continue to functfon. 389. At the tfme of the CGXARCenters Week in November 1985, the problem was agafn vfewed to be critical. Despite fntensfve efforts to to the General Fund, only US$ 608,000 secure Member State contributions had been. contributed by the end of October 198% - less than half of that required to fund the administratfve Budget. 390. The circumstances prompted TAC to w%thdraw its recommendations for budgetary support to WARDA,pending the Plember States meeting their 1985 itments to WARDA,in full, by the time of the Governing Councfl meeting in late &ceder. The Chairman of. TAC noted at the time that unless the Member State obl%gatIons were met, WARDA could no longer function in its present form as a viable organization. In its November meeting the CGIAR recommended that donors cont%nue to fund WARDA through Juae 1986, pendfng the Hid-Term Revfew in Aprfl. 391, The Member State contributfons for 1985 were slightly in excess of that needed to fund the 1985 administrative budget - although such c~~~~~bu~~~~s were stffl far short of meet%ng the total Member State 392, At the end of 1985, the Member States were some US$ %Q,4 m%ll%on %n arrears fn terms 0% meeting their assessments for the General and Spesial Funds D Xt should be noted that only two of the fifteeen dues-paying members were current in their contributions at the end of 1984, The arrears, expressed %n terms of 1985 assessments, amounted to four years or more in the case of nine countries. 393, It should be further noted that, despite the critical financial condit%ons of tke kasociation fn 1985 as well as the all-out effort to only eight: states contributed genarare mber State contribut%ons, anyth%ng durfng the year, with more than 50% of the total contributions com%ng from oue eoulatry g cate a 1Ivs%re) a 394, With one-ehird sf 1986 now gone, na Member State contributions have yet: baem received Par this yeas, Consequently, to keep the soe$i3tzion operaeLm ffz has been necessary to use program funds a by aoaors t snppettz the adrn~m~sgra~~ve budget, &th the hope mber State ~~~~~~b~~~~~~ w%ll be forthcoming to replenish the pg"ogram funds B Experiencas in 1985 $l%ustraea the eensequences of having to use PmlT~ funds to support the admiwAst~rafive budget due to tRe failure of 395. 81 the Member States to meet their commitments. During the year, it was necessary to reduce research expenditures some US$ 700,000 (out of a budget of US$ 2.5 million) to accommodate necessary administrative functions of the Association, budgeted for support from Member State contributions. Although these research funds were replenfshed by end-of-year payments of the Member States, the effect was to fmpose serious restrictions on the research effort durimg the year l-f. 396. Despite all these difffculties, the Panel is convinced that the faiiure of the Member States i0 meet ilkii assessments does COt result from a lack of interest or commftment. In fact few, %f any', Third World %nter-governmental organizations have received better support than WARDA prior to experiencing the serious economic problems at the beginning of the 1980s. Without exception, all the pol%t%cal leaders in the region interviewed by the Panel continued to express the strongest support for WARDA. One of the Panel members observed: '"There is much poP%t%caP goodwill that cannot be translated into monetary support.'" 397. Despite such goodw%.ll and desfre, however, the fact remains that the current financial situation %n WARDA has been, and remafns, serious. Accordingly, the Panel bel%eves there is l%tt%e hope for a viable, sustained r%ce research program Pn West A.fr%ca, unless there fs a different, more stable fumding source than that befng provided by the Member States for the administratfve budget, 398. This view is apparently recognized and accepted by the Governing Council in light of its action fn December 1985 to ask donors to assume responsibility for WARDA's administrative budget. 5.4. Conclussions 5.4,1, Progress by WARDA 399. The Panel is in general agreement w%th the conclusion reached in the Second EPR that neither WARDA's research effort nor its coatrfbutions to rice development capac%ty is coosistent with the level the PaueE recognizes and 0% resources ii receives, At the same time, These applauds a number of developments in WARDA sfnce the 1983 review. %nclude: (1) (2) The leadership Secretary; of an able and effect%ve Acting Executive The conso%%dat%on of the Research and Development Departments along w%th the appo%ntment of a Director of the consolidated Department who meets the h%ghest %nternat%onal standards for such a position. ;a/ It should be recognfeed that the problem was further compounded by the long delay by a Spec%a%Project donor fn reimbursfng WARDAfor expenditures associated w%th the Project0 82 (3) A significant reduction in administrative staff and budget, as wePI as a shift of some headquarters persoranel. to the research program in the field; The reconstftution of the STC, fnvolving the appointment of outstanding members from the region and the global CCIAX community. The STC has given dedirated and effective guidance to the &Association and merits the highest praise; (5) (6) The d%spl.ay of an apparent willingness of the Governing Council delegate certain functions to the STC; The development of an integrated program and budget along with a more sharply focussed research effort; The appointment of a Controbler and Internal Auditor, alloting Association to begin to address some long-term financial, management difficulties. 5.4.2, Contfnuirng uncertafnties and difficulties to (7) the 400 * While these developments are quite positive, the Panel has difficulty in assessing their long-term signbficance, given the fact thajz: (1) (2) the Executive Secretary is servping in an acting fs much uncertainty about h%s successor; capacity and there there is also much uncertainty in the minds of the Panel concerning the extent of the authority delegated, or likely delegated, by the Governing Council to the STC; and to be t-3) by the the Director of search and Development, seconded to WARDA Ebckefeller Foundation, is currently scheduled to complete his assignment there in August 1986. 401. The fmprovements muted above are associated with specific The Panel fully recognizes that, with time, these individuals. individuals w%lE change; however, the Association remains a political Given WARDA"shistory under such body, controlled by the Member States* governancep there is little assurance that these pos%t%ve changes can be 9% the Association continues sustained. Furthermore9 the effectiveness to be limited by many c%rcumstances includ%ng, the following: (11 (2) An abbap a% management and govermance problems; F%nanc%al d%ff%cu%t%es associated wieh the Knability States to meet their commitments to the Associatfon; of Member (4) A fafluafe of WARDA in the past- to apply %nternat%onal standards in (‘ The Panel recognizes that some fhe receua%baent 0% key personmel. DA personneFb meet such standards). 83 (5) Salary and benefits levels substantially higher than trafning and experience in salar%es and benefits may recruited by international of WARDApersonnel which appear to be those of professionals with comparable associated national programs. Yet be lower than those for personnel standards in other ZARCs. (6) After 15 years of effort and the expenditure of some US $67.5 million, WARDA's achievements and contributions appear% at best, to be modest. For example, the research program has contributed .a. 1-J to rice improvement or to'building 11cu.e national institutions, and, even today, has the characteristics of a program that is in its very earliest stages of development. Panel believe that these and other circumstances have kept achieving desired objectives and from making the most use of the extensive financial support it has received. the Panel eoncliudes that these problems are substantial, and continuing. for Future CGIAR Support of Rice Research in West 402. The WARDA from effect%ve Moreover 9 pervasive 5.5. Recommendations Africa 403. Despite the that the need to purpose for which further concludes meet this need. Accordingly, problems set forth in this report, the Panel concludes increase rice production in West Africa - the primary WARDAwas created - is greater today than ever. It sustained research program is needed to that a strong, the Panel recommends: That the CGIAR support a well-integrated rice research program in West Africa. The need &or a cohesive, integrated effort is apparent, given the involvement of three CGIAR-supported centers fn the Region. That, contingent on assurance of cooperation and support of the countr%es in the region, there be created the West Africa Rice Research Institute (WARRI) as the primary entity for carryimg-out For such a program to succeed there such an integrated program. must be active support and cooperation from the West African States o That WARRI be constituted as an international organization GPith the basic operational characterisr%cs ot! the IARCs in the CC model of proven effectivenz, and System0 This is an apolitical. the Panel belteves it is appropriate for the West African program0 That WARRP receive CGiAR finanefa% support as a constituent center in the CC System. This would help assure stability of funding, the lack of which has been a major problem with WARDA. The Panel believes that CGIAR objectives would be better served by directing fts support go a research organization, such as WARRI, rather than continuing to support an organization with such broad development objectives as WARDA. , l 84 currence-- of That, with the con-----~ _- WARDA. ~~~-~-, the _.__ desired _______ elements _________of the research and training orograms currentlv out --------- fn -__ G .rARDAbe - -- - -----I carried incorporated in WA.E tic' The --- ---Panel emnhasizes that the implementation of this recommendation must have the support and blessing of the Governing Gouncil. The Panel hopes that such support will be given since the recommended action would ensure a continuation of many of WARDA's current programs. That the desired elements of the rice research and training (61 efforts at IITA be transferred to WARRI to constitute an important --. part of the WARRX program. There are many obvious reasons for integrating the efforts for the region. of the two centers into a cohesive program -~- That close ties or linkages be developed between WARRI and IRRI. This should help assure the CGXARof a well integrated rice -program in West"Africa involving elements of the-three IARGs now working in the region. The Panel believes an expanded and more diraet involvement of IRRI in West Africa can make a significant contributLon to the effectfveness of the overall rice program in the &gisee The Pzmef also believes that WARRX,in time, could contribute to the effeetiveaess of IRRI’ s program b.x other parts of the world, especially work tith upland ecologies. That WARDA Member States be invfted to join with the CGIAR in establishing WARRI:and that both IOTA and IRRI be involved- in the process as well. _-._.- That, while WARRX should be an autonomous organization, there should be a close, complementary relationship tith WARDA. The Panel's proposals concerning such a relationship are considered in Se.eticm 5.6 of this report. It KS no~e~~~hy that a high o%%ic%a.l of a WARM Member State s~~~es~e~ U-m6 a distir%st%om be made between the research and “general” funastiowe 0% in a marmeg"noe unlike what is being proposed by the Pane% 0 Speeiffeally, he suggested that one way this could be a~~~p~~shed would be to separate WARDA's general program and "political" headquarters from the research program and headquarters. This concept would involve maintaining the "political" headquarters in nrovfa and esgabXKsb~n~ the research headquarters at another site that cotid better seme the research program. Re further. suggested that under such a scenario it would be mm the standpoint of ""Nember States' sovereignty", for the a responsfbBlty for the appointment of the I%%ecutiwa the other hand, he indicated that the donors sehsalgflcoetml the resaaKch. pKsgK appoPnt its director, and guide its affstes u This proposal was a clearsrecognition by the official of the need %or en apolitical research organ%zation aeparaeed$ rdm4w-di apPPsl+i +r4rs-i $&p SUpprR g$ the p*spem-ing C-&W~Qr_fl, ------ --- wr'l I --~w ) fpQm 1 mnll r-c‘ Y--a"aThe Panel Lully endorses the need for such a separation. the? same time, howeve!lg, the Panel visualizes many opportunities A to contribute to the re .&on@% development objectives, and b~~K~wes that w A could carry out a range of development-oriented 406, 85 activities which could generate support from the global donor community. Accordingly, the Panel sees opportunities for a productive and meaningful future for WARDAin the region, working in close concert with .a revitalized and sharply focussed research effort which WARRLcould -provide. These opportunfties are dfscussed in a later section. 5*6. The Panel's Conception of WARRI recomendations of trhe Panel on CGIAR's support of 4Q8. The ptincfpal rice research in West Afrfca are summarized in the preceding section. The Panel has deliberately limited its recommendations to those noted- '. - . _...- .the broad elements of a CGIAR above. As these cover essentially the Panel has refrained from strategy for r$ce research in West Africa, putting forward further and more detailed recommendations on ways of implementing this strategy, before the WARDA member states and the CGfAR have had a chance to reflect on the overall approach suggested. For this reason, this awd the remaining sections of this chapter contain no Instead, they include a summary of the Panel's vfews recommendations. on the main issues emerg%ng from the recommendations under the concurrently. _ assumption that both WAUDAand WARP1would be functioning The first set of these views concern WAXRI and its operations, 5.6.1. WARRI's mandate 409. The Panel sees WARN as an institution engaged primarily tith Its mandate should be stated in as simple and clear language research, as possible, in order to avo%d difficulties in interpretation of the three mandate. WAK.RIesmendate should mainly %nclude the following inter-related elements: to conduct research; to conduct research-related to s%rengthew national rice training; research and systems. new These three elements would jointly be geared towards generating technology for r%ce in West Africa* ahould work closely with 410, In implementing its mandate, WARP.1 These should national research institutions concerned with rice. include the current members of WARDA, plus the countries with similar eedogfes whPek Ife outside the West Africa region (for example, the cameroons 1 e WARP16 should also worlc closely with regional and international Pnstitutfons concerned with rice research or development ia West Afrfca, 4P%o Xn the Panelss view, WARRI's primary program focus should be on years upland rice and %ts secondary focus on swamp r%ee. In its iwitial % should coneenerate its research program on upland and swamp rice in order to bufld rapidly a reputable knowledge base in a manageable ehe initial years, though, WARRI could also play a number sf crease .%r% eaEalytic function fm linkfmg XRRI's amd ocher IARCs' findings on irrigated rice to tke national research programs in West Africa. , . 86 5.6.2. Size 412. The Panel visualizes WARRI as a center with about 30 senior staff when fully operational. The distribution of these staff could be roughly as follows: Upland rice Swamp rice Liaison scientists at IITA 0 Training Library/documentation/information Administration and finance 12 8 1 3 2 4 413. It should be noted that these are very rough estimates which can only be used as broad guidelines on the make-up of WARRI. More precise figures in size will, of course, depend on the decisions of WA%UA and the CGIAR on WARRI. f-6.3. Loeatfon 4%4. The Panel considers that WAiU%*s headquarters should be at or very close to its primary research atat%on, As the nucleus of WARDAws current upland rice research effort is centered at Bouake, the Panel considers that the BouakefYamassoukro area of C&e d'fvoire is the logical first choice for WARRXws headqua&ters. This area offers many advantages: there are a number of research sites in the area offering the potential for working with all of the major rice ecologies of the regbionp and there is access to good housfneg, schools (Zag9bish and French languages), roads, tranapsrtation, communication (including direct access to CGNET, the electronic messaging system which links many CGIAP Centers aud donors) and well-supp%fed markets. The Panel is unaware of any other site in‘ West Africa which would appear to be more advantageous XnfoKma%. quartera sf the prop ed institute. el with a bigi-i gover ent official was qu.&tc positive in tams of the %ikely attgtude of the Government of the C&e d'%voire towards such a pos~ibility~ 415. The program fn choice; at Leone, the Panel has no firm views on the location of the swamp rice the %ong-term- It would appear that the logical first Ieast fog the initial years of WARRI, would be Rokupr, Sierra site of the current WARDAeffort on swamp rice. 416. The PanelBs suggestion on the Prrfgated Rice Research Station at St. huis, Senegalw is eo turn its management to IS& Semegalvs rmt80md agrfcs.tBtura% reaeateh agencyc The Panel reco@.zes that there are actfvi?zLes eusrsntly under way whfeh may merit continued support from bilateral donoraB I should play an important eatalytie and advfso o%e on the work earrfed out at St, Louis, but dt should mot be ixlvolv n Bgs direct&m, This ts cons%atent with the PanelFs view to IfBELt, XFs mandate pri r%ly to upland and secondarily to swamp rfee. 417, The Panel places utmost importance on the establishment of as %?.I a~~onQm~~s~ fnternatSona1 center governed by an international I I . , 87 b o a r d o f i n d e p e n d e n t m e m b e r s , serving a s individuals. This is i d e n tical to th e g o v e r n a n c e m o d e l u s e d b y o th e r C G X A R C e n ters a n d h a s , in general, p r o v e d to b e m o r e e ffective for m a n a g i n g international research c e n ters th a n o th e r alternatives. 4 1 8 . T h e P a n e l places e q u a l i m p o r t a n c e o n th e creation o f W A R R Iwith th e full s u p p o r t a n d c o n s e n t o f W A R D A 'sG O V ~ K IIIR ~Council. Such support s h o u l d n o t e n d with W A R N 's creation; it is desirable th a t th e W A R R I's Board a n d M a n a g e m e nh t a v e regular d i a l o g u e a n d links with W A R D A 's g o v e r n i n g b o d i e s a n d m a n a g e m e n t. S u c h close links will further b o th organizations' p o te n tial for i m p r o v i n g rice p r o d u c tio n a n d fa r m e r T h e s e links w o u l d also reinforce W A R R I's i n c o m e s in W e s t A frica. a c c o u n tability a n d c o m m i tm e n t to th e rice fa r m e r s in th e region. H o w e v e r , th e y s h o u l d in n o w a y j e o p a r d i z e W A R R I's a u to n o m y a s a n institution. 4 1 9 . T h e P a n e l visualizes th e W A N ? .% Board as having 12 - 15 members, with n o m o r e th a n th r e e m e m b e r s serving in ex-officio capacity: th e chief e x e c u tive o fficer o f W A R R I, a representative o f th e c o u n try b o s tin g W A R R I's h e a d q u a r ters, a n d a representative o f W A R D A " s Governing c o u n ~ i P . T h e r e m a i n i n g m e m b e r s s h o u l d b e selected from across th e world, with th e a i m o f b r i n g i n g to g e th e r th e individuals w h o a r e m o s t qualified to p r o v i d e policy g u i d a n c e to W A R R I:. 4 2 0 . T h e P a n e l s e e s merit in h a v i n g s o m e o f th e current S T C m e m b e r s , including s o m e from th e region, serve o n th e W A R R IB o a r d . This w o u l d introduce a n important e l e m e n t o f c o n tinuity from W A R D A to W A R R I. T h e s a m e m e m b e r s c o u l d c o n tin u e to serve o n b o th th e S T 6 a n d th e W A R R I B o a r d , a t least initially, in o r d e r to p r o v i d e th e o v e r l a p necessary for closer coordination o f th e activities o f th e two organizations. 5 .6 .5 , Relationships with W A R D A . 4 2 1 , T h e P a n e l s e e s th e creation o f W A & R Ia s a n a tural stage in th e A a c h i e v e its g o a l o f evolution o f W A R D A . W A R R % would help self-sufficiency in rice th r o u g h a well-focussed a n d c o n c e n trated research e ffort e n s u r e d o f stable fu n d i n g , W A D A , o n th e o th e r h a n d , i m p r o v e th e links b e t w e e n research results a n d fa r m e r s @ us, if th e ultim a te g o a l is to g e n e r a te n e w te c h n o l o g y a n d h a v e it a d o p te d b y th e fa r m e r s in th e shortest tim e , th e e fforts o z h e two organizations s h o u l d reinforrze e a c h o ther. 4 2 2 , T h e specific m e c h a n i s m s r e q u i r e d for linking W A R R Ia n d W A R D w Aould d e p e n d in large m e a s u r e o n th e m a n d a tes, p r o g r a m structures a n d m o d u s o p e r a n d i o f th e S W O O rganizations~ S u c h m e c h a n i s m s c a n b e s t b e m th r o u g h d i a l o g u e b e t w e e n th e representatives o f th e two organizations, & B W @ V Cp tK th e P a n e l considers th a t, to b e e ffective, th e s e m e c h a n i s m s s h o u l d cover th e full r a n g e o % a e tivfties by W A R D A a n d W A R R I. M o r e importantly, s u c h m e e k a n i s m s s h o u l d b e a s "organic"' a s possible within th e canstraints o f th e g o v e r n a n c e structures o f th e two 0sganizationS. In sther w o r d s 9 g h e y s h o u l d n o t b e lim ite d to m e r e e x c h a n g e s o f a tio n , b u t s h o u l d l e a d to joint 9 collaborative action w h e n s u c h act% o a is in the b e s t interest o f th e region, T h e following e x a m p l e s illast% a t:e th e P a n e l @ % thinking o n th e types o f linkage m e c h a n i s m s th a t I---c o u l d b e considered: 88 A representative of the WARDA Governing Council could be appointed as an ex-officio member of the WARRI Board. In addition, the chief executive officer of WARDAcould be invited as observer to WARRI Board meetings. A reciprocal arrangement could be made to allow the WARRI Board and management participate in-the meetings of WARDA's governing bodies. The two organizations could coiduct joint program planning. At the board level, the two program committees could have a joint meeting each pear. At the staff level, scientists from the two organizations could attend each other's annual internal program reviews. WARDA and WARRI could - carry out some projects and funded by both organizations. jointly, staffed WARDA and WARM conld conduct joint A seminars and conferences. A scientist could be stationed as a liaison officer in the WARRI headquarters amd a WARP1scientist at the WARDA headquarters* WARDA trainers could periodically speud some time at WAPRI fo become up-to-date with the resuits of WARXI research of relevance to WARDA's training program, WARPSand WARDA could jointly networks. 5,&e. Relationships with XfTA establish regional information 423, With the ~ons~l~aa~~on of CGXAR"s rice research effort in West riea, several el~em~s of IITA'a rice research and training effort would be transferred 833 I, including %ITA's current work in East Africaa However, the Panel considers that IITA may wish to keep one or more rice scientist posts for its farming systems program. In addition, in .the Panel's view, IITA should continue to hold and maintain the base rice germplasm collection because of the superiority of its facilities A duplfcate working co%lection could be kept by for lomg-term etoragee WARP1at Bouake, and another duplicate working collection could be kept by WARDA at Pendall. 424. After the estabh tM%2dfQK %Q Ix-%%lf&S y be more appropriate for at %fTA to work in concert with 5.6*7. ere would not appear to be a In the Panel's view9 it %%aisoa scianU.st stationed HfTAqs farming systema program. 425, The Panel seea a spe&af role f in the establishment and ong with WARDA and IITA, growth of WARRI- At ~~~~b~~s~~~~~ I would help define the division of responsibilfaies and the working 89 relationships among WARRI, WARDAand IRRI. More importantly, IRRI would play a significant role in helping to build specific aspects of the WARRI program. The following examples illustrate the types of linkages that could be established between IRRI and WARRI: IRRP and WARN Boards could enter into an arsangement foK having one or more members of their respective Boards regularly attend the other's Board as observers. Some IR.R‘ l: BoaKd and staff member's couid Keguiariy participate in the joint progsam planning activities of WA.881and WARDA. Some IRRI scientific staff could be seconded to WARN to help develop aspects of WARRI's programs. IP.81 could take on the responsibility to assist WARPI's library and documentation services. %RI%I, WARRI and WARDAcould enter into a new, mutually-agreeable arrangement for implementing in setting up - the IRTP. %RR'I and WARP.1 could explore alternative sollaboKation mechanisms for meeting the rice research needs 0% African countries outside of West Africa. %P.RI, WAE?RP and WARDAcould develop a joint training policy for IRRI meeting the training needs of West African countries. could focus, for example, on long-term and degree training, WARP% on Kesearch-related training, and WARDAon developmental training. - 426, The Panel discussed in some detail the possibility of having WARRI operate as a substation of IRRE, along lines similar to the Sahelian ~entergs affiliation-with the ICRISAT PeadquaKteKs at Hyderabad. Though every membeK of the Panel recognized the many benefits that would derive from su@h a relationship, it became cleaf that an autonomous operation im West Africa would lead to gteater mamagement effectiveness and greater accountability to the eountKies in the region than an operation which Keceives its management dibectives from Los Bans%. Pm the Panel's view, the types of linkages outlined above would preserve many desirable features of a eenteK-subcenteK Kelationship and, at the same time, allow WARRI to benefit from the advantages of autonomous governance and management, S-6.8. Relationships with national progKsms 427, The Panel sees the strengthening of the national rice research systems in the region as an important goal of WARPI. This is clearly not a task which WARP1could ger%orm alone. At least two institutions, I and ISNAR, in addition to the national programs themselves, would weeel to eo%labsrate strongly in arriving at feasible stzrategfes for building or strengthening the national agricultural research systems in West Africa, The Panel regards such a joint effort as an essential %iKst step in defining the specific role WARWIcould play in institution building in the region. 90 428. Some aspects of WARRI'S institution building role are clear. Pirst, WARRI should engage itself with the strengthening of strictly rice research organizations. Seconds I should not substitute for the national programs. This would defeat the purpose of institution Third, as financial resource& for research are a major building. eowstraint, WiBfPP(I should assist the natiowal systems in their efforts to obtain external resources for rice research. Fourth, WARkI's training program should be geared strictly towards meeting the rice researchrelated training needs of the WARS. Finally, WARRI, in collaboration with other imstitutions working in West-Africa, should explore the possibilities for building research and information networks in West AfZ?iCS. 5.6.9- Staffing and salaries 4296 Xn the Panel's opinion, the staffing of WARM should be left entirely te the W-1 Board and management. No WARDA or IITA staff should be assumed to be transferred automatieally to WARPI, although the Panel sees potential for many WARDAand IITA staff to play an important X@ ployment of some W and IITA staff at PdQ ia % is necessary not omly because of their competence, but alas because of the weed to secure a smooth transfer of mutually-agreed IITA and WARDA fumctieas to WANtI. 438, WARRI should establish salary standards similar to those in other WJAR Centers, $0 enable WABRXto a&tract and retain top scientists and Salaries of locally-recruited staff should be competitive with loeal conditions and those offered by other internationa% organizations operating in the area. 56.10, 438. Physical facilities The Panel. envisages that2 WARRI, A and the respesti,ve host ~~u~g~~es w~~Xa reach alapagreement OR ehe terms of ~~a~sfar~i~~ the and ertbar assets currently used by the WARDA raseareh program be neadad by WARN.. Iw addPtion, there would be nead to ish and equip the WAXRI headquarters. The headquarters laboratories and trainimg and complex wcmld mainly include offices, The precise arrangements for building the ~eaearcb support faeilitiea. ~~~q~~gte~s would have to be negotiated with the government of the hosting WARR%‘s headquarters. efxmt 432, There wo8al.dalso be need to upgrade the facilities at Rokupr, and I board. However, the headquarters uxa be aadressea by eh? in the sonstr~ctioa es cmpPex should be given ix-at priority 433, reeeiv X wcWlA be a member of the CGIAR f C% and would ly of en ful s e~re fuud%ng from. GGTM d sperational Cat 's annual resource the 30 senisr staff man==year Lewd.), ~eq~~~ern~gs fog its operations are likely to be at the"US$ 5.0 million 91 level. To this must be added resources which can be roughly estimated at USS 5 complex over a three year period. Thus, operational in 1987, its total resource about US$ 6.5-7.0 million. required to cover capital costs, million for the headquarters if WARRI were to become fully requirements for 1987 would be 434. This compares with total CGIAR resources currently channeled to WARDAand to IITA's rice research and training program of about US$ 3-5 million. (This figure assumes funding of WARDAby CGIAR and the other of 1986). The total external donor external donors for the ------t-~nLCIllCl)pllub-r resources (including CGIAR) being channeled to WARDAand to IPTA's rice research and training program in 1986 is close to USS 7 million. 435.3 Thus, if WARRI:becomes fully operational at the beginning of 1987, the construction program starts in early 1987 and if the external donors (including CGIAR) decide to rechannel all of their rice-related resources from IITA and W A to WARRI, these resources would be This --sufficient to meet WARRI's 1987 operational and capital costs. zors (excluding CGEAR) example is given not to suggest to external that they should rechannel all of these resources to WARRI. Instead it is provid.ed to illustrate the point that the resource implications of creating WARRI are not much beyond the current funding patterns of after the eapital costs sf exl&ernal dOrnOPS 8 But, more importantly, building the headquarters are met, the continuing operating Costs of WARRI are likely to be about three-fourths of what is currently expended by the donors on rice research at WARDAand IITA. 5.7. Implementation of the Panel's Recommendations 436. The Panel's recommendations are addressed not only to the CGIAR but also to the Member States and governing bodies of WARDAand to the boards of XXTA and XRRX. As implementation of these recommendations Fe res the priorconsent of all four partdies soneerned (i.ee CC ) EITA and lXRX), the follow-up mechamisms must allow for 0% the %our parties, the CGIAR eonaultation with eaeh o% these parties. till be the first to consider the report formally, as the governing bodies 0% the others are nspt scheduled to meet prior to the Ottawa m%eting 0% tba CGUR in May 1986. it would have been more desirable if, From tzke PanelBs standpoint, the governing bodies of WARDA, IPTA and TRRZ could. ts ‘ EAC, cbanea ts discuss the report prior to its consideration by s, would have given an opportunity for the Goverming Ap for example, to extend an invitation to the CGEARto in sollaboration with the Member States of WARDAand with XITA and IRRI, in the event the Governing Couneil agreed with the Banelvs assessment that establishment of such a center is in the best interest sf the countries in West tiriea. 437, in addftisn 438, If the CGIAR agrees with the Panel"a recommendations at its Ottawa is not likely to meeting, and because Ehe! GQverning cQumci.l 0% have cowsidered the report prfor to Ottawa, we suggest that the CGU as its first decision on WARDAextend an invitation to WARDAto join hands with the CGIAR in establishing WARR'I:. 92 5.7.1. CGIAR Task Force on WARRI 439. The most common mechanisms used by the CGXAR in establishing new centers are either to ask one of its members to serve as implementing/ executing agency or to set up a small CGIAR Task Porte to establish the new center. In the ease of WARFiX,the Panel believes that a CGIAR Task Force would be more appropriate as it would be desirable to have all involved parties represented in the committee that will oversee WARRI's establishment. The CGIAR should invite WARDAto join this Task Force. IITA, IRRI and donors active in the region (such as the USA and France) should also be represented. If and when WARDA agrees to participate, the name of the Task Force should be changed to "CGIAR-WARDATask Force for the Establishment of.a West Africa Rice Research Institute (WARRI)". 440. The Task Force will need a secretariat to carry out the day-to-day The Panel suggests that the CGIAR ask one of its members activities. with experience in the establishment of international centers to provide the secretariat services required by the Task Force, 441, The Panel sees the CGXAR Force as an important initial the involved parties and mechanism for resolving differ arriving at a mutually agreeabfe diwision of responsibilities subject, of course, to confirmation by the respective governing bodies. To facilitate this process the Task Force could establish working committees made up of other individuals from within or outside the SgStfSt. 442. At its May 19% meeting the CGIAR should also spell out the terms timetable and of reference of the Task Porte, along with a provisional These should be forwarded to WARDA for its consideration. In budget. the Panel's view all expenses of the non-donor members of the Task Force and the costs incurred by the executing agency should be borne by the 443, At the May meeting, the CCIAR should also ask TAC to advise the between WARRI, WARDA, IPTA Task Force on the sbaK~n~ of re~~~ns~~i~i~i~s and IRRI on rice resemxk and development in West Afrieaa from a should ask its Similarly, the CG long-term, system-wide perspective. secretariat to advise the Task Force on future funding prospects. 5,7,2. Funding for WARDAfor the remainder of 1986 . I, wbicb tight: be transferred ee IOTA to wind down their rice research arrangements w 445, 444, IIn the Panel's view, the CGIAR should continue to QrtWide funding to WARM for the remainder of 1986 and encourage the bi%ateraf donors to uld avoid ~~~~~~~~rn of programs8 some elements of ds the same0 This %t would also enable WARDAand operations under current its Xa th Pana%“s view, the Task FOPPCQ should aim tc have WARRI begin Or .. .. . gaperaeiona by I JisamEEy %987, even xx tznzs implies working wieh a the programs transferrad from WARDA 1 nucleus staff 6s keep goin to present to the The Task E!xxe should be in a position the most realistic in November 1986 a 1987 b get reflecting ~~~~~~~~ons eoneernfng WARRf activities in 1987. The involved centers 93 should likewise be prepared to discuss alternative prepared in concert with the Task Force. 5.7.3. Task Force activities in 1986 budgets for 1987, - 446. The most time consuming task in setting up a new Center appears to be the securing of'the agreements required for establishing the organization under international law or the laws of a country. The Task Force sh=uld , therefore: place highest priority on speeding this legal process. In this respect, WARDAcould provide the international juridical framework under which WARRI could be established. 447. Given the undesirable effects of a long staff and the programs of several centers, the to the extent possible, in simultaneous rather The Panel sees the following as the key tasks less simultaneously by the Task Force: - preparing a draft constitution transition period on the Task Force should move, than sequential steps. to be carried out more or for WARkI; - preparing a proposal for sharing of responsibilities among WARRI, WARDA, XRRI snd IITA and an associated transition plan; - agreeing on a site for WARP1headquarters; host country agreement and beginning the host country on behalf 0% CGIAR-WARDA; where WARRI with these - preparing a draft negotiations with - preparing similar draft agreements with countries staff will be stationed .and beginning negotiations countries on behalf of CGTAR-WARDA; - identifying. potential first, director; - obtaining site; - preparing estimates candidates of construstian 1987. for the WARRI board and WARP1 costs at the headquarters a budget for 448. The five-month period between the Ottawa meeting and the international Centers Week in November 1986 should provide the Task Force an opportnnity to move on all these fronts. The Task Force should report to the CGIAS in November on the progress made in establishing WARRI. 5.8. _- ~-..___ The Paneles Views on the Future of WARDA 449, This section summarizes the Panel's thoughts on some aspects of WARDA's operations followimg the establishment of WARRI. The Panel recognizes that it would be highly presumptuous to prescribe a coparse of action for WARDA, as this is the responsibility of WARDA's Member However, given the cooperative spirit in which the Panel has States. earried out its task and the collaborative manner in which WARDAand 94 WARRlc need to operate, we have taken the liberty of offering some suggestions on WARDA's future operations to WARDA's governing bodies in order to assist them in their deliberations on the future make-up of the two organizations. 5.8.1, WAXDA's mandate and programs 450, The Panel sees WARDA as an organization engaged primarily with development. As in the case of WAURI,-we see merit in a restatedaent of WARDA's mandate in as simple and clear language as possible, in order to avoid difficulties in interpretation and confusion between the mandates of WARDA and WARRI. The Panel considers the following three as possible components of WARDA's mandate: - to carry out rice development activities; - to conduct development-related training on rice; - to strengthen national rice development systems through technical assistance and other means. 4511” These elements would jointly be geared towards widely applying te~~nolQ~~eg for rice in West Africa. new 452. In implementing its mandate WARDA should work closely with WARRP, other international research institutions concerned with rice and Thus, the Panel national rice research and development institutions. e~v~sag~~ opportunities for WARDA to perform a significant developmental d coordinating role in the region, complementing WARPI's research effort a The Panel believes tbat such a role might include, but not be 1PmBted to, the hollowing: the conduct of economic and policy studiesa, including those relating to production, import* export and consumption of rice, with other studies relating to credit, subsidies and cereal ~~veln~~t related training activities at Pendall and elsewhere in the region for extenslion workers. development communication spesialists, post-harvest technologists, and other specialist groups related to rice; technical assistance to member countries in the area of project identification, preparation and appraisal as well as project implementation, mf3nitorfng and avd8uation; seed industry promotion and activities related to plant genetic reaout6ee l in&zding production of foundation seed of new var%eties, rsghml seed ~~~~~~~~~~~~rnschemes, support of a ional seed bank, medium sto~aga for active or working collections, and plant quarantine protocol; and 95 5.8.2. A footnote on governance 453. During the Panel's field work, one of the Panel Members brought to the attention of the rest of his colleagues an organizational model used by the countries in South East Asia. This model portrays the relatfonships between the South East Asian Ministers of Education Council (SEAMEC) and seven semi-autonomous centers devoted to different aspects of educatfon and culture in the region under the umbrella of the South Zast Asian Ministers sf Ed..,,,,,.. -*+4nn Organization (SEAMEO). 454. In this model, each center operates under a semi-autonomous governdag board tith its own group of donors, Headquarters of the various centers are located in different eountrfes of the region. The Ministerial Council, which serves a coordinating and supportive role for the umbrella organization, has a modest budget provided by Member States and donors and is served by a very small. secretariat. The center scholars and educators, governing boards, made up of distinguished approve policies, programs, and budgets and select the directors of the The Ministerial Council routinely confirms the actions of the centers. center boards. 455. This model was presented to the ST6 as an arrangement which may of have some relevance to the future work of WARDA. If the Ministers Agricu.lture/Rura% L&elopment in West Africa wish to broadem the scope of activities carried out under their umbrella, this model offers some First, the mode% allows the creation of new distinct opportunities. autonomous regional institutes. focussing on agriculture-related activities other than rice. Seoondp WARlU could function as an autonomous research institute under the auspices of a West Africa Minister of Agriculture Organization (WAMAO). Third, WARDA,minus the Governing Council, cou%d serve as a separate organization within WAMAO. Panel is not suggesting that WAPDA"s Governing 456. To reiterate,-the It is simply descrfbimg this Coumcil should be replaeed tith WKO, governance arramgement the Governing Council may mode% as an olterwative wish ee consider, if and when it decides to broaden the scope of WARDA to include other agrieulture-related activities. 5.8.30 Relationships tith WARP1 457, The Panel has already outlined in the preseding section its viaws on poesible and desirable refat%onships between WAXDAand WAEUU. Here we s%%er OUK views on two parts of the current WARDAprogram which wete the Training not eove~ed fn the discussion in the preceding section: Center and the Post-Harvest Techno%ogy ~mik at Pendall. The Panel uoted ear%ier (Section 3.7) that WARDA's past trafming have made a significant contribution to ski%l development in in the WARDAmember K%%e produetA.on, research and related activities fosus of Bs program is more on development ~~mrn~~~ea 0 As tz%ae 6%ie Pamel considers it desirab%e for aspects of ric%e than on ~ese at Fenda% to remain uncie~ WARDA's management* the %z'%inimg &nteK weed to conduct some research-related training at Fendall, which should A's concurremce~ unt%% the WARRf headquarters, have fa%lcilit%es for research training, is eatipleted. 458, efforts The same holds true for the post-harvest rice processing unit and the WARDA germplasm bank. WARRI should have a separate germplasm unit of its own in its new facilities and may use in the interim the facilities at PITA and/or Fendall. The work of the post-harvest unit is more related to development than to research and WARDAshould continue managing it. As for training and germplasm, WARRI, in its initial years, may need to share these facilities with WARDA. 5.8.4. Costs and funding 459. 460. In the final, analysis, WARDA's survival will depend on the level and the stability of its funding. With a much smaller operation, the requirements from Member States will be lower and, therefore, more attainable. WARDAmay also need external donor support, which could be channelled through bilateral funding. Given the experiences of the recent years, WARDA would be wise to devise mechanisms to lessen the impact of funding uncerta%nties on its operations. For example, a one-time grant sufficient tzo cover a large paprtion of WARDA's annual operational budget provide the working capital WARDA wouId need to ebout constantly struggling with the uncertainties of funding, The Panel is in no position to judge the future prospects of 8 This is a matter up to those who would fund WARDA. In our view, when looked a6' ~n~~~~~~a~ly~ the recommendations made in this report will pmva to be in ehe best iqterests of the West Africa regi.on, 461. 5.9, Postcript The Panel's recommendations are based on two key assumptions: I; ana, E WARDA till sollabera~e with the CGIAR in setting up x will CPexflSct th WARDA, If the Member States decide to ame time, m with the C ~s~~bl~shi~g WARRI, but at t I outlfwed d$at2ontinue s operafAows, the concept of n the repolx will ne ht in the light of t cireumst%nces ereaeed by tke absence of WARDA. 463. Alternatively, if WARDArejects the concept of WARXI or otherwise tefusem to eooperate wtitkt CGIAR In. seetting up WARRI, the CGIAK needs to explore alternative means of supporting rice research in West Africa, tkPoUg%8bbn exp IITA or an expanded IRRI progr view these em rnativem are not likely to be a ed rice researsh programs particularly if the tioumtriem in the ~~vo~verne~t in rice research, Under such s Psgisa ds xloe welcome 66 $ the pKop6med Task FOKCdg collaboration tith TAC, could d a couxme of aetlon for CG OS support of rice research in West &frTsa or all of African 464 0 Ch Ehfe ha psilsac if2 sh0uJ.d be meed that the %erms of referanee rsf the Hid-Term Rev&aw Panel are l&&ted, geographically, to West AfK2.ca, ~ev~~~~e~~~~~ the Panel resogaizes the growing importance of ~$ee in seher payee of ehae Afr$cans sewtinent and the related need for e%%e~g~v~na~~o~~~ EeseaK:Ch programss 462. 97 465. The Panel, therefore, suggests that what it proposes for West Africa could well fit into an integrated rice research program for the south of the Sahara, should the CGPARwish to consider entire continent, Such an Africa-wide such a broader scope of effort at a later date. program might be carried out by an African Rice Research Institute (AlUP), with the West Africa program representing an integral part of the total effort. ._.__-._- -- .- P . * ANNEX I PROGRAM AND ITINERARY OF THE PANEL Sunday, 13 April 1986 in Abidjan, CBte a'Ivoire. Panel arrives Monday, 14 April lQ:30 Tuesday, 09: 30 1986 for the report and Panel meeting - Development of outline review of documentation. 15 April.. 1986 V%sit to M inistry of Rural Development for meeting with The Hon. Gflles Laubhouet Vally, M infster of Rural Development, to d'Ivoire. . Departure for Bouake, visiting The station Seation en route. C&e d'fvoire at Yamassoukro. facilities. 1986 the Tombokro Experimental is 25 km from the new capital The station has irrigation of 14:30 Wednesday, 16 April 08: 00 Visit the Headquarters of the Centre Ivorien de Machinisme Agricole (CIM A ) for meeting with WARDAUpPand Rfce Research seaff. Visit IDESSA to see WARDA Upland Research Station 1l:OO 14:30 facilities. V2elt Foro-Foro Farm to see collaborative ace%vit$es between Foro-Foro is 2% km from Douake. Trials were W~A~~~~~~ be%ng csrried oue under both uplands and irrigated conditions~ 08: 30 Visit CIMA headquarters for meeting with directing staff: en, Dfrector-Ceneral of CIMA - M r. c. Ass i, Deputy Dfrector-Ceneraf of CIMA - M r. R, ~e~~dj~~ Co-ordfmator of Experimentation under lled condit%one V%ait - MK. - MK. - M ra IDESSA for meetfng tith rice research ce Program Ge ff$, lkad of G, CIement, Plant Breeder es' PoisaonB, Plant Dreeclet Saupanamor, ~m~~rn~~o8~st KOrn~rn~S~ - M r. Ye fxgou, ~romom~se - M r, Lo I'Cho, Plant PhYs%oIog%st - ti. .I, Vales, ETatut Pathologist ' staff Pl:OO Annex I -.Page 2 Friday, 18 April 1986 08~00 14:30 23:oo Saturday, 01:30 Report writing Departure Departure 19 April Arrival - tie for for 1986 in Bouake. Abidjan, Dakar, visiting Yamassoukro en routea Senegal. D in Dakar. &dike Niangs Mrecror General, ISRA with: 08:OO 09:30 Meeting w%th the Management of ISRA Visit to tke Nnistry of Rural Development for meeting - The Ron, Famara Ilxahima Sagna, Minister of Rural Development, Senegal. - Mr. I% Khoodg 9 Dirsctor of Ri2dbarch, Mhiaery of RuroP 14:30 Departure for 1986 St. Louis to visie the WARDAIrrigaeed Bice Research Station Sunday, 20 April 08: 00 15:oo Visit WA.RDA experimental Laboratory and seed multiplication sites at Fanaya Experfmeneal Visit Station Seation FacibPities at RieRard-Toll Zxperimentaf e 08: 38 14:30 wsit St, L2.3u$sXSRA Research Seation se.aff, IS Departure %or Dakar. for di%e~sion with Tuesday, 22 A~rl% 1986 1l:OO 12:50 Departure for tinrovia, Liberia. Arr$va% in 5forarwia. Annex I - Page 3 Thursday, Q7:3Q 1l:OO 14:QO 15:oo Friday, 09:oo lb4:BQ Saturday, 07: 30 24 April Departure 1986 for Fendall to visit WARDAtraining facilities. the Visit ta the Ministry of Agriculture for a meeting with Minister of Agriculture, The Hon. Roland S. Toweh. Meeting with the Acting Executive Secretary of WARDA, Mr. Alieu Jagne. Panel Chairman meets with the STC for preliminary Report writing by other Panel Members. 25 April Joint 1986 meeting with the STC of WARDA. discussions. Report writing. 26 April Departure 1986 for 1986 to discuss first drafts. Rome, Italy. Sunday, 27 April 09: 00 14:oo Panel meeting Report writing. 1986 Monday, 28 April Report writing. $asie 8 Tuesday, 29 April 1986 First drafts completed on a chapter-by-chapter .- . -.. - Report: writing. Wednesday, 30 April 1986 Discussion of second draft. - Report writing. Thursday, 1 May 1986 Discussion Friday, 2 May 1986 Completion of report. of draft report. )r . * ANNEX II TAC RESOLUTION ON THE W E S TAFRICA RICE DEVELOPMENT ASSOCIATION (WARDA) (Extract from 7th TAC Meeting, 4-S February 1974, Rome) 1. After careful study of the revised WARDA research ---..rnnl ~~~~~~~~~ the TAC recommends that the Consultative Group supports the request for funds to enable the Cooperative Research Programme (project W .l) to be implemented. The Committee applauds the WARDA experiment as a commendable 2. initiative in cooperation between developing countries with the aim of in line with raising output of an important food crop, an objective Xe Kegarde the KegionaI Kesearch project as TAC"s own first prfo~ity~ an interesting innovaeive approach to Iinking national programmes and the work of internatioaa1 research centres, which offers a possibility of eransferring the besuIts of the Work o% the centres more rapidly to as well as providing a feedback to the eeneres on the small countries, problems requiring.further study. However, while the present WARDA submission meets many of the 3. reservations expressed by TAC members in Kelation to earlier proposafs, it is considered that because of its novel nature and ehe greater difficulties of providing centraf controf and dipecelon over the appropriate Programme, cornpaged to that of a research institute, safeguards must be bu%lt.ineo its operations from the start.. 4. W ith this end in view it recommends the following to support from the Consubtaeive Group: conditional provisions as The expansion of ptoject W .1 must be phased closely in line with the improvement of the scientific capabilities of the A t0 Sup@KVi$e the tKia%S. me ber countries 0% Kate? of pansion pKoposed in the WARDA submission may well be $00 ieioua. (ii) orollary of this is that training must be given very h psiority in the overall programae. Courses must be afrsnged forp field trials of%ices, as well as for more sed%o~ research staff, Although \AC did not address itself in detail. to items We2 es W .4 of ehe WARDA research programme, for which SepaKate funding %a being sought by WARDA,it considers that these aKe ~ss~n~~a%Iy complementary to item W .l and should be ~m~~~enEed in an integrated mannerc The active cooperation and not juat the tacit approval of the main internat%owa% research organizations working om This applies Kite in ihe region must be assured. particufarly eo IITA and IRAT, -I Annex II - Page 2 . Responsibility for the oversi.ght of the coordinated trials and related training elemene as well as %or ensuring the active involvement of the appropriate international research institutions in the-programme should be clearly and unequivocally placed in the hands of a Steering Committee O WARDA has already proposed such a Committee in the report submitted to TAC (page 8); we believe this to be- an essential pre-requisite far the success of the research prsgramme, and this resolution sets out the TAC’ s ideas on how it can best be mede effective. The TAC recommends that authority for design and direction (execution) of the project, including authority for expenditures, monitoring of progress, aud the phasing of the ex.pansioa of ehe coordinated trials be vested in this Committee, It is suggested that it should be small, and should be comprised of repreaemtatives of the WARDA Secretariat, IITA, IRRI., BRAT, FAO, two W&DA member ~o~~t~~~s~ and one independent sci@neise 0 The Co etee would no doubt wish to in consuleation with ehe Executive Secretary of Scientific Mreceor who would report to it, while it@ in turn, could report to WARDA. (ti) Progress in the WARDA programme should be reviewed annually by TAC, on the basis of reports from the WARDA Consultative Committee, supplemented as necessary by independent review as in the case of the International Centres progranvnes. ANNEX III MEDIUM-TERM WORK PROGRAM -. 1. Plant LIST OF PROPOSEDPROJECTS AND PRIORITIES (As reported in March 1971 conference on WARDA) breeding - Drought resistant high-yielding upland varieties - Upland and lowland varieties easy to mill - Blast and brown leaf spot resistant varieties - Lodging resistant varieties 2. Plan% physiology - Photoperiodism - Effects on yield of planting dste - Best plant%ng date for different varfe%fes 3. Plant oroteetion - Plant pathology (emphasis on blast and brown leaf spot) - Entomology (study of the effects of systemfc and tropical insecticides) - Birds and rodents control - Weed control (use of herbfcides) 4. - Spacing and sating rate - Studies on crop rotation and vase of fertilizers discont%wue shifting agriculture 5. Development and soils as a way to - Soil surveys and land classification to determine the best rice eoils within the region - Fertildzer trfds and fertilizer response experiments - Study of soil conservation problems under rafnfed rice croppfng - Specific soil fert%li%y problems on rke soils - So%% mawagemesat problems - Chemical and physfcal investigations in connection tith soil and %rr%gation development work suKvey 9 sot% fertility - Salimity problems - Inventory of water resources in order to identify the possibi%f%ies cd extawd%ng Irr%ga%ed rice - Study of bhe bes% methods to develop lowlands and tfdal swamps WARDA STAFF STATISTICS Sept. 1983 P ‘ 2ss* Executive Secretary Administration & Finance Communications Training Research and Development: Readquarters Fendall Suakoko Bouake += seconded Rokupr + seconded St. Louis + seconded Mopti + seconded Subregional On Special by Nat .Pr. by Nat.Pr. by Nat .Pr. by Nat.Pr. Coordfnation Assignment Sub-TotaP 9 seconded G I.3 TOTAL + seconded by Nat.Pr* 49 16 5 6 10 9 20 5 -4 2 6 5 4 3 6 9 1 33 10 31 10 35 2% 42 a 13 3 3 T Sept. 1984 P GSS* s 12 27 10 34 7 4 22 8 3 T 16 32 $8 42 29 12 3 3 6 6 - March 1985 P GSS* 1 3 5 8 6 4 %% % 3 6 8 4 4 6 0 1 10 26 3 25 17 8 3 T 11 29 a 3% 23 1% 3 - April P GSS* 2 2 6 9 5 19 4 26 1986 T 9 21 10 %3 16 7 2 %% a. 4 6 11 4 - 7** 9 3 4 2 11 % 4 6 11 4 - - % --7 65 -- % -33 76 -37 28 %a 37 %5 52 P %% -54 69 12% 0 %% - 79 P19 1913 68 11 by NatBPr e 16 - 17 - 17 92 146 - (*I genera% service Genera% Service Sta%fo Note that only Liberia-based As of April .I986 the general staff is shown in the above tabfe. service and field staff at Bouake was 29, at Rokupr 54, and at St. Loufs 43, not counting daily paid labourers. IITA Liaison Gf%ieer. (**]fnePudes ANNEX v CURRENT WARDA STAFF POSITIONS Monrovia Departments Secretary: and Divisions 2 2 2 6 Acting Executive Internal Auditor Secretary * Executive A~m4n+otratinn' *.UuA*..a.---------e . Administration Assistant Personnel Assistant * Financial Controller Chief Accountant Dfvisfon Chief Assistant Librarian 3 Translators AssBstant Documentalist Dfrector ricultural Economist Rural Engineer AgPonomfst Statistician Eeonomist (French TA) IITA Liaison Officer Finance: Communication: Research & Development: Post-Harvest Cemplasm Unit: Training Unit: , 2 % 6 Food Processing n 11 Engineer et (Japan TA) Plant Breeder Center Center: Chief of Training 2 Iwterpreters 3 Trainers Bouafe Begional Besearch Station: $2 Station Director (Plant Geneticist) Breeder rononris t SenBor senior thdogist Sofls SpecBalfst (trans%erred from Mopti) ea scientist ri.cu%tural Economist Extansiow Agronomist (seconded staf%) Breeder (Freweh TA) Meehad.zati.on Specialist (French TA) * HIghBy qualified general service staff , Annex V - Page 2 Rokupr Regional Research Station: 10 ^. Station Director (Entomologist) Extension Specialist a Agricultural Economist Breeder - Deep-Water Rice (transfers@ from Hopti) Breeder - Swamp Rice (seconded staff) w Pathologist : ; Soil Scientist I aa " Entomologist : ; Extension Agronomist i " s. w Need Scientist ( 1 St. Louis Regional Research Station: %5 Station Mreetor ~~~~s~~~~g~s~~ AgrfeulturaB Engfn@sr Assistant Plant Pathologist Agricultural Economist Rice Processing Engineer (Gambia) Research Assistant BioPogist - Aaolfa f tar Mgt. Engfnrer (Dutch TA) cfoBeglst (Dutch TA) rpnamist (French TA - transferred il Scientist (seconded staff) EntQmo%ogfat from Mopti) FUNDS RECEIVED BY WABDA 1972 1985 (USS 000) 197i-73 1974 1975 1976 1’ 977 1978 1979 1980 1981 1982 1983 1984 1985 TOTAL 15,952 24X Member States CGIAR 648 559 553 417. 521 642 734 1,250 1,350 4,Q12 1,929 1,442 708 915 1,475 28% 439 985 2,oaa 1,729 1,926 1,268 1,616 2,676 2,, 266 2,539 18,725 22% USAID Others 280 203 306 477 1,096 1,053 1,816 995 1,195 1,648 2; 101 1,954 2,oos 15,133 26% 65% 523 598 843 1,399 810 1,832 2,448 2,223 2,759 1,174 1,430 1,045 17,735 100% Total 1,571 1,838 1,760 2,483 4,214 5,199 6,727 9,388 6,615 7,465 6,659 6,565 7,Q68 67,545 BlJocRT - IWcnxE - EXPENDITURES (198.Q (USMoo) CEN, FUND lle&SS ststa?s CGIAX USAID EEC UNDP FRANCE JAPAN mElGIut4 PITA SNITZEXLAND ImRo NtmrExLANQs Ol%ER TOTAL 8,344.2 (488.4) 2,463.I 61.11 2.499-O- -Q33.s 196.0 -O- 182.0 1.3 180.0 163.1 198.S -o- 23.9 9.1 248.0 101.3 65.5 -Q-o- -O39.4 7.400.8 (95.6) 8,435.3 41.9 22.7 2%*6 =-Qr.aa4.a lab43.9 87.1 2,502.% 79.4 1~798.6 -Q- 99.4 164.3 180.0 29.3 (3.0) 14.1 110.0 -O- -o- -o- -O2,581.5 1.850.5 66.3 1.916.8 210.1 2,008.T 2.021.8 13.2 2.035.0 o-o -o35.5 64.0 1163.4 138.6 -o164.3 64.3 -6 180.0 153.9 120.4 lb9.7 1149.7 14.5 28.6 26.7 -o110.0 90.3 58.3 38.3 54.9 2.0 2.0 2.0 -O-Q7,021 .O 37.5 138.6 64.3 153.9 Lb9.1 26.7 90.3 54.9 * 2.0 -Q- 6.200.8 13) curmst BurpluslDeficit 69-12) 14) Other Defisits’ 12l3lll98S b3.b (185.4) 664,‘ 6 (26,36 837.51 24,8 100.0 26.1 -O- 1.9 19.7 3.4 -Q- 787.2 15) Fuad Balance (13a2-14) (630.3) 086.9) 705.9 -o- -O- 24.9 101.2 189.1 -Q- 11.0 121.1 3.4 -o- 39.S 5b5.8 16) Difference Retweaw 5udRet Expenditures 546.9 464.8 g37.%) 57 .b 117.7 26.1 68.8 (2.8) 157.7 10.6 (2-O) N/A a.2DO.o l Qther Deficitsi USAZD FuQds 136-S Bcl&Q Fvds 3.0 rk%btfu1 Ii&C8 b5.9 , SUWY BUDGET.REPORT BY DONORS * . FOR TRE 1ST QUARTER OP 1986 (1) All~~rne~t~ Appropriation in Budgat (21 Obliga%ion/ CoimGtment for the (3) Unobligated Allotment/ Unconnnited (4) Expenditure On Accrual (5) Unliquidatad Obligations/ Deferred 1,698,800 USAID 377,402 445,782 22,8Q6 1,779 37,309 29,598 11,794 51,070 886 261,791 d 1,321,398 1,527,418 131,694 14,221 161,191 150,402 53,706 407,930 247,114 x,024,209 5,039,283 288,428 284,860 20,795 1,106 26,242 24,215 8,019 36,817 776 168,495 85P.753 . 88,974 160,922 2,011 673 . 11,867 5,383 3,775 14,253 110 93,296 380,464 1,973,200 154,500 16,000 198,500 180,000 65,500 459,000 248,000 1,286,OOO YxYmJs France IITA&ARI Belgium Japan (Pout-Barwest) IBRD (World Bank) UUDP/FAO Switzerland Overhead -o-------_-------------------~------.- 6,279,500 1,240,217 ANNEX xx LIST OF DOCtiNTS 1, 2, 3, 4, 5, 6, Report of the Second External Program Secretariat, FAO, Rome, 1984. Report 1979, of the TAC QQR Mission Review of WARDA. TAC FAO, Rome, to WARDA. TAC Secretariat, Report of the First External Management Review of WARDA. CGXAR Secretariat, Washington, B.C., 1984. TAC Review Secretariat, International 1985. of CGIAR Priorities FAO, Roma, 1985. Rice Commission and Future Newsletter. Strategieas TAG .Vo1. IBBIX'V, No. 1, June Rice in West Africa: Policy and Economics by P.L. Rader, E.A, Mouke, D.S,C. Spancer,. K. Craven) A.H. Tu%uys Y. McPntire J.M. Page Jr. Stanford University Press. Stanford, California, 1981. Project Impact Evaluation Report No. 44. A.X.D, Developmest Aasocsation. USAXD, May 1983. TJSAXD MM-Point Plgoject EvaPuatdon Firma1 Drsft 0 Novembet 1983, West Africa and 7, 8. 9. Ri.ce of WARDA, Project Noe 698-0429. Eva$uatPow 0% P~entzh Aid to e Vol. X: Evafuat%on 0% WARDA's Xmpast on Rice Development in West A%rica, BDPAfSCET-AGRX. Mnist&e des Reletfons Extkieures. Coop&ration et Dheloppement. May 1983. PO, Strategy $or Enhancing the Productivity, Profitability, Stability Report of two arid Smsga~mab~l~g~ 0% Rice Parmiwg Systems fe Africa. XRRX ~g~~~rns cm Rice Resear& and Production in East and West r 1985) with Recommendations for IRRI's Assistance. ilippiaee, Il.0 DeV, sef3hu (1986)e. Program ia A%riea, 1986, An. Overviq 0% the XnternatfonaX Rice Testing xmx, -t4aIl%%a, Phlblippfnes. M@reh, %975-85, Monrovia, Liberia. $2, WARDA Training Policy: Xn-House Review Programme. Liberia e l-J-22 February 1986. 13, Status ApI%) of Training, 1986 Working Paper, WARDA, Monrovia, Annex XX - Page 2 14, Outline Station* of 1986 Plan of Work. WARDARegional Bouake, C&e d'xvoire. Upland' Rice Research 15. One Year of Research. WARDARegional Upland Research Station. Bsuake, C&a deXvo%reo ,February 1986. 16, WARDA's Irrigated In-House Review. 17, 17th Ordinary R.ice Research Station, Summary of St. Louis, 1985. and Technical 1986. Senegal. Results for 1986. Committee of Session of the Scientific WARDA. Monrovia, Liberia. 23-30 April 18. 15th Ordinary Session of the Governing Council of WARDA. Provisional Report of the Meeting. Dakar, Senegal. December 1985. 19. Report of the. 4th Meeting 2-4 of 'ML of TAC, of TAC. of TAC. of TAC. Washington, Washington, Rome, Xtaly. Rome, Italy. &dis D.C., D.C., USA. USA. August R972. 25 Yuly1974. 20. Report of the 6th Meeting 2 Aaqa~ust1973, 21. Report of the 9th Meeting 4-8 Fabruary, 22. Report of the 33rd Meeting 23. 12-19 March 1984. Report 21-30 of the 34th Meeting June 1984. Ababa, Ethiopia. 24. Report of the 35th Meeting of TAC. Washington, 29 Detober-3 November, 1984. 25. R&pore of the 36th Meeting 26, D.C-, USA. of TAC. Rome, Xtalp. 11-18 March 1985, Report of the 37th of the 38th October 1985. &zing of TAC. atineg 0% TAC, Los Bams, Philippines. Washington, CGXARMeeting. CGXAR Meeting. 6GX.M Heating. DeCm, USA, Rome, Xtaly. Washington, Tokyo, Japan. D,C,, 15-25 June 1985, 27, Report 22-25 28. 'Informal 23-k5 Summary of Proceadinga. May 1984. Summary of Proceedinga. 5-9 November 1984. 29. XQfQ USA. 30, Xnformal Swmary of 12-14 June 1985. t.xeadings~ CG 31, xnfl3Kmal smry of USA, 28 %$ctsber-H Ntizmd=mr 1985, 32. 13th Regular 'EeaM,ng sf ehe ST Meeting o Washington, D,C., co d +zkxwsnlng Bk3saup Guinea Bissau, r-9 December 1 Annex IX - Page 3 -- 33. L.D. Stifel (1985). Notes on WARDA's Finances and the 1985 Budget. 11 June i984. Report of a visit to WARDA, 4-8 June 1984. 34. L.D. Stifel (1985)e Notes on WARDA's Compliance with the Recommendations of the EXR. 11 June 1984. Report of a visit WARDA, 4-8 June, 1984, 35. Progress Report on WARDA's Compliaace"tith Washington, the EMR. CGTAR Secretariat. 1984. to the Recommendations of D.C., USA. November, Washington, in Africa. Washington, D.C., 36. Financial Review of WARDA. CGIAR Secretariat. USA. May, 1985, 37. WA Coffman (l984>. dlscussfon paper for Rice and Rice Research TAC 34. A D.C., USA. FAQ, 1985. Part 1: 38. Developments at WARDA. CGIAR Secretariat. February 1986. 39. Mid-Term Revrfew of WARDA. Progress Romee March 1986. 40. Regional Upland Research Station, Report. Rouake. TAC SecretarfatAnnual Report, 41. Characterization of Upl.and.Rfce Ehvfronment Dfagmosis of Major Features. WARDA, 1986. 42, Constraints 43. Profiles to Upland Rice Production in West Africa. in West Africa. April, WARDA, 1986. 1986 of Professionals. WARDA/86/STC-17/6. Paper. 44, CG Options on WARDA. Draft Discussfon Wash%ngton, D.C., USA, October 1985, CGIAR Secretariat. ANNEXX GLOSSARYOF ACRONYMS AVT Advanced Variety Consultative Research International Cenere Ivorfen Coordinated East, Central Trials Agricultural CGIAR CICP CIMA CVT ECSA ERC EMBRAPA Gmup 05 hternational Consortium for Crop Protection Agricole de Machinisme Trials Variety and.Southern Africa European Eeonomfs Coum~u~iip lbpresa Brasile%ra de Pesquisa Agropecuaria Ekterna% Management Review EPR ES FAO External Executive Program Review Secretary Organization of the United Food and Agriculture Nations I Governing Deutsche Council Gesellschaft Variety 66 GTZ fuer Teehnische Zusammenarbeit High Yfelding XARC International International International International International Iarternatfonal .International Agricultural Board for Bank for Board for Centre Centers* Research Plant Rural Soif Genetic Center Resources 'PBPGR EBrn IISW ICIPR xcw XDA IDESSA XDRC Development Research and Management and Ecology of Inseet Week Physiology Development Institut des Savanes Development Research Centre International Annex X - Page 2 Initial IFDC IITA Evaluation Test Development of Tropical ou Soil Fertility Center Agriculture and Fertility Tropicales et des International International International Evaluation Iastitut Cultures Fertilizer Institute Netwerle INSFFER IRAT IRRI IRSBN IRTP XSNAR ISRA MS - de Recherchea Agronomiques Vivriires (France) Rice Research Mce Stem Borer Institute International Internatienal International ~te~~tfo~~ Rt?Sf%WCk Nurseries Rice Testing SaFv%ce Program rfeuPtura1 foac Nat%onal Institut Member S&&galais States de Recherches - Agricoles Natfond ON ORS~ OT PS QQR sm . Ohsarvation Agrisultural NurserPes tisearch Systems Office de la lkesherche d'Outre Her (France) Scfentifique et Technfque Qu%squennial Review des _, &x%&e Nationale d'A&nagement et d'Exploitation Tames du Delta du Fleuve Singgal South East Asian Hnfsters of Education Council _.- s-c South East Asian Meisters SONADER STC TA -_ _....- of Education Organization !+h%z%et~ giorsale de DGveloppement Burale Tectm%cal Committea Tanzania TAT r%eul.tura% Research Organization .. u* Annex X - Page 3 UNDP UP Los Banes USAID WARMAO WARRI United Nations Development Program at Los Banos Development Organization University United of the Philippines Agency for Ministers States International West Africa West Africa of Agriculture Institute Rice Reseal'ch