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Government of Islamic Republic of Afghanistan Ministry of Agriculture, Irrigation and Livestock

National Comprehensive Agriculture Development Priority Program

2016 – 2020

A STRATEGIC FRAMEWORK FOR AGRICULTURE SECTOR DEVELOPMENT AND REFORM

FINAL DRAFT AUGUST 2016

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Foreword

Agriculture is the singlemost important sector of the Afghan economy. The importance andassociated statistics on what agriculture contributes to the country is well known anddocumented.Whatseemstohaveescapedplanners,includingsomeofusattheMinistry,isthecopingstrategiesoffarmersandtheirresilienceinthefaceofdroughts,shortagesofinputsandthesheerinertiaofhavingtodealwithconfusingbureaucraticrulesandregulations.Thetimehascomeforustothinkoffarmersandtheirneeds, irrespectiveoftheir landholdings,askeystrategic enablers and contributors to the national economy. They deserve our support andattentioninwaysthathasnotbeenconsideredinthepast.

Thepotentialforourfarmerstoproducesurplusandaddedvaluecropsarenotindoubt.Whatis of critical importance is our ability to create conditions and structures that are responsiveandsupportiveoftheirefforts.Whilemuchhasbeendoneovertheinterveningyears,clearlyitisnotenough. IbelievethatamajoreffortshouldbeundertakentomovetheMinistryanditsconstituentinstitutionalstructuresclosertofarmerscreatingacultureandserviceorientationthat is ‘farmercentric’. Inpresentingthisstrategicdocument it ismyhopethatwecancreateconditionsandablueprint for the future in the comingyears thatwill seeadramatic rise inproductionandvaluecreation.

Aswemove towardsamore rationalizedproductionpolicy, Iwant to emphasize theneed toaddresspovertyamongoursubsistencefarmersandouritinerantherders.Thesafetynetthatthe Government will provide should serve as a platform, to graduate farmers and herderstowards self-sufficiency and surplus creation through the development of value chain andprivate sector initiatives. I envisage that over time many of the services that the Ministrycurrently provideswill be taken up by private service providers allowing for us to focus onregulatorypolicies,standardsettingandqualitycontrol.

I am excited by the possibilities emerging in Afghanistan’s agricultural landscape and I amconvincedthatweareonthecuspofimportanttransformativechange.Iwouldliketogratefullyacknowledgethesteadfastsupportoftheinternationalcommunityonthisimportantjourney.

Lastly, Iwould like to thankmycolleaguesacross theMinistry for theirefforts inputtingthisdocumenttogether.

AssadullahZamirMinisterofAgriculture,IrrigationandLivestock

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AbbreviationsandAcronymsADB AsianDevelopmentBankAFSANA AfghanistanFoodSecurityandNutritionAgendaAIP AgriculturalIndustrialParksAISA AfghanistaninvestmentSupportAgencyANDMA AfghanistanNationalDisasterManagementAuthorityANDS AfghanistanNationalDevelopmentStrategyARD AgricultureandRuralDevelopmentCCDC ClusteredCommunityDevelopmentCouncilsCDC CommunityDevelopmentCouncilsCN CounterNarcoticsDAIL DistrictAgriculture,IrrigationandLivestockEPRR Emergencypreparedness,ResponseandResilienceFAO FoodandAgricultureOrganizationFRC FarmersResourceCenterFTE FullTimeEmploymentGDP GrossDomesticProductGIS GeographicInformationSystemGoIRA GovernmentoftheIslamicRepublicofAfghanistanHED HomeEconomicsDepartmentIA IrrigationAssociationIASRC IndependentAdministrativeReformandCivilServiceCommissionIASC IntegratedAgriculturalServiceCenterJICA JapanInternationalCooperationAgencyMAIL MinistryofAgriculture,irrigationandLivestockMEW MinistryofEnergyandWaterMIS ManagementInformationSystemMoCI MinistryofCommerceandIndustryMoE MinistryofEconomyMoF MinistryofFinanceMRRD MinistryofRuralRehabilitationandDevelopmentMT MetricTonneM&E MonitoringandEvaluationNADF NationalAgriculturalDevelopmentFrameworkNIP NationalIrrigationProgramNLDP NationalLivestockDevelopmentProgramNPP NationalPriorityProgramNRM NaturalResourceManagementNRVA NationalRuralVulnerabilityAssessmentNWP NationalWheatProgramOFWM On-FarmWaterManagementPAIL ProvincialAgriculture,IrrigationandLivestockPD PlanningDirectoratePPP PublicPrivatePartnershipSGR StrategicGrainReserveSME SmallandMediumEnterpriseSWC SectorWideCoordinationUNMACA UnitedNationsMineActionCoordinatingAgencyUSAID UnitedStatesAgencyforInternationalDevelopmentWB WorldBank

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TableofContentsFOREWORD...........................................................................................................................................................................1

ABBREVIATIONSANDACRONYMS............................................................................................................................2

1 INTRODUCTION........................................................................................................................................................6

2 SITUATIONALANALYSIS......................................................................................................................................6

3 INSTITUTIONALCONTEXT..................................................................................................................................8

4 OPPORTUNITIES......................................................................................................................................................8

5 VISION...........................................................................................................................................................................9

6 STRATEGICSECTORPRIORITIES.....................................................................................................................96.1 STRATEGICPRIORITY1:IMPROVINGIRRIGATIONSYSTEMS...................................................................106.2 STRATEGICPRIORITY2:INCREASEDWHEATPRODUCTION....................................................................116.3 STRATEGICPRIORITY3:HORTICULTUREVALUE-CHAIN........................................................................136.3.1 HighValueHorticultureCropsandVegetables............................................................................136.3.2 IndustrialCropsandMedicinalPlants..............................................................................................16

6.4 STRATEGICPRIORITY4:LIVESTOCKDEVELOPMENT...............................................................................176.5 STRATEGICPRIORITY5:CLIMATE-SENSITIVENATURALRESOURCEMANAGEMENT........................216.6 STRATEGICPRIORITY6:FOODANDNUTRITIONSECURITY,ANDRESILIENCEBUILDING.................236.7 STRATEGICPRIORITY7:INSTITUTIONALREFORM..................................................................................24

7 DRIVERSANDENABLERS.................................................................................................................................267.1 PLANNINGASKEYENABLER..........................................................................................................................267.2 RESEARCHANDEXTENSION..........................................................................................................................287.3 INPUTDELIVERYSYSTEM..............................................................................................................................287.4 AGRICULTURECREDIT....................................................................................................................................297.5 FARMERORGANIZATIONS..............................................................................................................................307.6 PRIVATESECTORSUPPORTANDPUBLIC-PRIVATEPARTNERSHIPS.....................................................31

8 CROSS-CUTTINGCOMPONENTS....................................................................................................................328.1 COUNTERNARCOTICS.....................................................................................................................................328.2 WOMENINAGRICULTURE.............................................................................................................................338.3 ANTI-CORRUPTION.........................................................................................................................................34

9 IMPLEMENTATIONSTRATEGYANDMECHANISM...............................................................................349.1 TASKTEAMS.....................................................................................................................................................349.2 INSTITUTIONALREFORMATTHECENTRE.................................................................................................359.3 TECHNICALANDCOORDINATIONHUBATPROVINCELEVEL..................................................................369.4 SERVICEDELIVERYTOFARMERSATDISTRICTLEVEL.............................................................................37

10 MONITORINGANDEVALUATION............................................................................................................38

BIBLIOGRAPHY.................................................................................................................................................................40

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ExecutiveSummaryAfghanistan’s agriculture importance and its central role in creating national wealth andprovidingemploymentopportunitiesareundisputed.However,acriticalassessmentaboutthefuture of agriculture and its transformative potential is needed.While a great deal has beenachieved in recent years with international assistance, some problems in the area of needs-basedcapacity,results-basedpolicyandimplementationcontinue.

Afghanistan’s agriculture future is facedwith a paradox: a rural population that has literallydoubled;shrinkingaccesstoarablelandandanimmediateneedforemploymentwithayouthcohort that is less inclined to stay on the farm. These factors are complicated further byoutmodedagriculturalpracticesandlackofinputsandaccesstogreatermechanization.Theseand many other challenges are not insurmountable, they do however require a resetting ofpoliciesandpracticesinhowagricultureisplanned,designed,managedincludingtheroleoftheMinistry in implementation of agricultural priorities. Furthermore, the realization ofSustainableDevelopmentGoals(SDGs)underpinsthegovernmentseffortstoensureabalancedandsustaineddevelopmentstrategy.

ThesettingofsevenimmediateprioritiesbythePresidentofAfghanistanisanimportantpointofdeparturefortheMinisterofAgricultureIrrigationandLivestockMAIL.Itisanopportunitytoemphasizeresultsandengageinkeyreformsthatwillyieldtargetssetforthenextfiveyears(2016-2020).MuchofthetargetsundertheNationalPriorityProgramsholdtrueforthecomingyearsthathavebeenreducedfrom22to12andthecurrentdocument laysoutthereasoninganddirectionthatMAILwillundertakeinthecomingyearstodeliverresultsandmeetcrucialagricultural priorities. The document presented here is referred to as the NationalComprehensive Agriculture Development Priority Program (2016-2020). It is a strategicframework for agricultural development in which, the emphasis will shift towards a farmercentricviewformthecurrentinstitutionalview.

In order to deliver on these priorities, theMinistry will embark on addressing three criticalenabling factors:Firstly,MAILmustensure implementationofan integratedserviceapproachthatplacesthefarmeratitscenter.Secondly,investinglimitedresourcesindifferentsectorsofagriculturemustdifferentiatebetween,what is referred toasExtensiveFarming and IntensiveFarming1.Intensivefarminghasthepotentialtoearnthecountry-increasingamountofrevenue,expandemploymentinsecondaryandtertiaryproductionprocessesandprovidegreaterreturnoninvestment.AfghanistanhasasizeablepopulationofsubsistencefarmerswhoareengagedinExtensivefarming;theytoorequireinvestmentensuringthattheirstruggletoachieveeconomicstability is addressed. Lastly, to achieve the above the Ministry and its various institutionalstructuresmustrealignitselftodeliverservicesandachievesignificantincreaseinproductionand output in all areas of agricultural activities. Structures at the centermust be downsized;provincialcentersmustbeupgradedtobecomeprincipalcentersforknowledgedisseminationtothedistrictswhereextensionagentsprovideintegratedagriculturalservicestofarmers.

AtMAILmanyareexploringnewways tomakethe institutionresponsiveand farmercentric.Change is a subject of intense debate and discussion within the institution. Managers and

1Agricultural Sector Review; World Bank, 2014

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technical staff are engaged in exploring innovative approaches to expedite andaccelerate theprocess of change. That said, there are numerous impediments that impact on speed anddirection of needed change; some structural and others procedural. With unemployment atrecordlevels,thecompetitionforjobsintheMinistryisoftenskewedbyproceduralrulesthatareopentomanipulationbypoliticalelitesresulting indelaysandassignmentofundeservingcandidates.DespitethesechallengesMAILrecognizesthatneededchangemusttakeplaceandleadtooutcomesthatwilldefinethefuturedirectionofagricultureinthecountry.

Agricultural potential in Afghanistan is enormous. The assistance of government in realizinggreater income for farmers through value chain enhancement and increasing reliance on theprivate sector andmarkets holds great promise. TheMinistry and its various institutions arecommittedtosupportingandrealizingthatpotential.ThisstrategicdocumentisanattempttoexplainbothsuccessesandchallengesthattheMinistryhasfacedanditsattempttoredressandbringaboutneededchange.

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1 Introduction1. AgricultureisthefoundationalbasisofAfghansociety.Approximately80%ofthepopulationisengagedinagriculturedirectlyorinsecondaryortertiaryactivities.ItisinthissectorthatthefutureofAfghanistan’swealthandpotentialforcapitalaccumulationresides.Whilesomeof Afghanistan’s former agricultural infrastructure has been restored, considerably more,remains to be done. As new possibilities in the development of infrastructure andtechnologies emerge, agricultural producers, processors and traders are demandingincreasedassistance in identifyingnewmarkets for theirproducts.Agriculturalpractices inAfghanistan represent an evolving narrative – while some farmers continue to engage insubsistence farming, many are discovering that intensive farming is profitable, but only ifGovernmentinvestsincreatingarangeofservicesandenablingstructures.

2. The seminal planning framework for development has been the Afghan NationalDevelopment Strategy (ANDS-2008), within which, a National Agricultural DevelopmentFramework (NADF-2009)wasdeveloped.A seriesof22NationalPriorityPrograms (NPPs)were formulated following the Kabul Conference in 2010, of which the Ministry ofAgriculture,IrrigationandLivestock(MAIL)’sprioritieswerereflectedwithintwoprogramsi.e.AgricultureandRuralDevelopment(ARD)Cluster’sNPP1thatdealtwithwater,irrigationand natural resources and ARD NPP2 that framed broader agricultural priorities inproduction,marketdevelopmentandfoodsecurity,coveringtheperiod2012-2014.Thisalsoincludes the formulationof various agricultural sub-sectoralpolicies and strategies suchaspoliciesinwheat,poultryfoodandnutrition,womeninagriculture,medicinalplants,etc.

3. The shift in emphasis reflects the views of the Government and Ministry’s leadership, torealign the broader priorities of ministry of agriculture into seven key areas with specificfocus on creating an enabling environment for farmers to create surplus in agriculturalproducts; increase on and off-farm employment; and generate income through increasedexports.StrategicPrioritiesidentifiedintheNPPwillcontinuetoformthebroaderbackdropforagriculturaldevelopmentinordertounderpinthecapacityofMAILtosupportandenabletheachievementoftargetsunderthesepriorityareas.

4. ThesevenprioritiescoverkeyinstitutionalandsectoralprioritiesfortheMAILintheareasofimproved service delivery, food security, and greater productivity to enhance nationalrevenue.ThespecificredirectionofprioritiesisinthefollowingsectorsintheformofsevenStrategicPriorities: (1) Irrigation; (2)Wheat and cerealproduction; (3)Horticulturevalue-chain; (4) Livestock Production; (5) Climate-sensitive Natural Resources Management; (6)FoodandNutritionSecurityandResiliencebuilding;and(7)Institutionalreformandcapacitydevelopment. The above prioritieswill includemany of the normative integrated activitiessuch as Research and Extension, Integrated Pest Management; Input Delivery Systems;QualityControl;Quarantine;FarmerOrganizations,Public&PrivatePartnerships;DataandInformation;PolicyandLegalFramework;andGovernanceandCoordination.

2 SituationalAnalysis5. The implication for MAIL, in refocusing its efforts on the above priorities, will include a

gradualshiftfromanoverallsectoralapproachtoone,whichfocusesresourcesinareasthatpromisesgreatestreturnsoninvestmentforthenext5years(2016-2020).

6. Farmers’ priorities will guide MAIL’s institutional requirements including planning andsupport to the priority areas identified. To achieve these priorities, the Ministry and itspartnerswillcontinuetobuildonitsfoundationalachievements,withrenewedemphasison

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its capacity to continue refining the institutional reform efforts to deliver the prioritiesproposed.

7. MAIL will seek to incorporate relevant Sustainable Development Goals (SDGs) in all itsactivities.Recognizingthatpoverty isamajorchallenge inAfghanistan,MAIL is focusingonGoal1of theSDGsandspecificallyon targets5,6and7onbuildingresilience for thepoor;mobilize resources to address poverty in all its forms and develop pro-poor policies thattarget gender and increased investment in providing opportunities to eradicate poverty.SimilarlyonGoal2MAIL isprogressingwith anaggressiveprogramof enablingwomen togrow and increase food production, both at household level and on a commercial scale,providingwomenandothervulnerablegroupswithfoodsecurityundertargets3and4.Aspart of a broader effort, the NPP will refer to specific elements of the SDGs in relevantsectionsthatarebeingaddressedwithinthisdocument.

8. Based on data extrapolated from variousMAIL source, there has been a steady growth inagricultural productivity since 2007. For example, wheat yield has risen 4.5% per year,although in a fluctuating trend every year, and has generated up to 1.3 million Full-TimeEmployment (FTE) jobs both on and off-farm. Agriculture holds great possibility forincreasingandgeneratingFTEsforthecomingyears.ItwillsignificantlycontributetogrowthinmeetingSDGGoal10,target1.

9. Similarly, horticultural activities have produced significant returns to farmers and traders.Over 2 million people are involved in this sector generating revenues in excess of $700millioncontributingto6.7%ofoverallGDPand34%ofagriculturalGDP.

10. Livestockproductioncontributes3.8%ofNationalGDPand15%ofagriculturalGDPvaluedat $ 684 million. It employs 1.1 million men and women, particularly amongst the mosteconomicallyimpoverished.Exportsfromthissectorcontinuetobemodest,amountingto$116millionperannum.

11. Total amount of land brought under irrigation is currently 2.4 million ha, resulting in anadditional 350 thousand ha of fertile land. Allowing production to rise across the country,producingtwocropsperyearandgeneratingreturnsof$350-$400/ha.

12. However,restoringagriculturewillrequiremorethanjustnumbers.TheWorldBankinitsAgricultural Sector Review (2014) document divides the challenges facing the agriculturalsector into twomajor categories Intensiveagriculture(moversofagribusiness)andExtensiveagriculture (targeting thepoor). Firstly, approximately 33% of Afghans are food insecure2,andchronicmalnutritionratesareapproximately41%,3towhichagriculturebearsastrongconnection. Secondly, the largest impediment to realizing value chain enhancement inagriculture is thesizeof farmsandfarm-holdingpatterns inthecountry.Emphasismustbeplaced on organizing medium to large farm holders to create economies of scale whereproduction inputs and outputs are rationalized to increase production and raise nationalincomes.

13. Secondly, farmers who engage in subsistence farming including landless farmers anditinerant Kuchi animal herders must be targeted by concerted efforts to address povertyalleviationthroughcomplimentaryprogramssuchastheCitizensCharter,andinthecaseoftheKuchisthroughexpandedlivestockextensionefforts.Bothstrategiesrequireaddressingahost of issues such as legal land ownership, pasture and rangelandmanagement; rights of

2NRVA(2014)3NationalNutritionSurvey(2014)

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passage, access to water resources, provision of agricultural inputs; conflict resolutionmechanisms,etc.

14. Based on Information Management System for Mine Action (IMSMA) maintained byUNMACA,about77.7sq.kmagriculturalland;398.6sq.kmgrazingareaand4.8sq.kmwatersources are contaminated by mine and other Explosives Remnant of War (ERW). For thepurposes of the cost-benefit analysis, it is assumed that agricultural areaswill be put intoproductive use immediately after being cleared of mines. As farmers increase planting innewlyirrigatedlandsthetaskofmineclearingmustalsoproceedapace.

3 InstitutionalContext15. Despiteminorinstitutionalgainsthroughseveralchangemanagementexercises,challengesremain. MAIL continues to place disproportionate emphasis on structure and focus at thecenter. This is further compounded by an absence of technical capacities and regulatoryenforcementintheprovincesandlimitedcapacityandoutreachofextensionservicesatthedistrictlevel.Addressingthesekeychallenges,apartfromrationalizinginvestmentprioritieswill require MAIL to refocus its efforts and to recalibrate its capacity and reform agenda,creatinganenablinginstitutionalstrategyandashifttowardsaprogrambasedstructure.Itisexpectedthatnormativeprogramswillbereassessedandintegratedinabroaderframeworkthatsupportthesevenpriorities.

16. To achieve the required synergy and streamlining of various programs that support therealignment of priorities, it is essential thatMAIL address the current planning frameworkincludingonbudget andoff-budget projects andprograms. On closer examination, itwouldappear that donors design many projects ostensibly with some input from MAIL. MAILparticipation inmany instances isoftenpostfacto. Theremay, in factbe legitimate reasonswhyMAILparticipationisconstrained,includingthegeographicalabsenceofcapacity,accesstoresourcesandcurrentplanningpracticeswithintheMinistry.

17. Similarly, the uncoordinated and ad-hoc nature of donor assistance has resulted in“boutique” projects, while approved by the MAIL, is not within the broader remit ofprogramplanning. Often donor efforts in providing funds to address a specific area ofconcernresultsinlimitedimpactbecauseoftheabsenceofMAILplanninginputs.Apartfrom duplication and resources spread across different geographical areas, theconsequence of an uneven approach to national development can contribute toperceptionsoffavoritismorworse,ofneglect.

18. Donor supported projects often reflect a paradox: donor funds on offer are acceptedbecause of a perceived reduction in donor funding and increase in stringentconditionalities imposed. The absence of a programmatic approach, in which donors,jointlywiththeMinistrycanidentifytheirproject’scomparativeadvantage,wouldgofartoaddresssomeoftheduplicationandidiosyncraticapproachescurrentlyinpractice.

4 Opportunities19. ForacountrylikeAfghanistan,agricultureisthebestmeanstogeneratecapitalandsurplusthrough value chain improvement and export. This is particularly true in horticulture,livestockandindustrialcrops.Byupgradingorchardstoacquirecertifiedseedandsaplings,the quality and yield of farmers can be greatly enhanced. Improving irrigation conveyancesystems including on farm water management, crop management and pest control can

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contributetogreaterefficiencyandloweringcoststofarmers.Investinginbetterstorageandreducing harvest loss including access to credit and a reliable transportation system (landandair)canresultinaccessinghigh-endmarkets.WithAfghanistan’saccessiontotheWorldTradeOrganizationsignificantopportunitiespresentthemselvestoallowthecountrytomeetstandards and practices that would attract greater investment from member states inadditiontomeetingSDGGoal10,target9.

20. Recent years has seen remarkable growth in the production of industrial crops such assaffron, liquorice, pistachios, turmeric, pine nuts, ferula and an array of valuablemedicinalcrops. MAIL intends to provide technical assistance and support to marketing efforts inpromotingmedicinalandindustrialcrops.

21. By adding an additional 360,000 ha of horticultural land, it is estimated that more than360,000 full time equivalent (FTE) jobswill be generated by 2024. It is estimated that by2024thehorticulturesectoralonewouldcontribute$3.23billioncomparedto$1.4billionin2012. Similarly, in the livestock sector it is expected thatmilk yieldwill increase to 1,200liters/cow from the existing 400 liters/cow.Whilst the overall significance of expansion oflivestock is primarily focused on providing interventions that address poverty alleviation,nonetheless it is projected to produce 604,000 new FTE and doubling poultry productionresulting in contribution of a further $274 million to the National GDP. This includesincreasedopportunitiesforexportingnationalproductstoneighboringcountries.

5 Vision22. Food and nutrition security, a balanced economic growth through agriculture, resulting in

stabilityandeconomicempowermentofwomenandmen.

5.1MissionStatement

23. A farmer centric institution that is responsive and tailors its offerings to promote qualityservices;access to innovative technologies; rationalizesand increasesproduction;regulatesinputs; creates employment opportunities and contributes to economic growth andgenerationofcapitalacrossthecountry.

6 StrategicSectorPriorities

24. The National Comprehensive Agriculture Priority Program is viewed as a significantcontributing factor to the overall security, good governance and economic developmentagendaoftheGovernmentofIslamicrepublicofAfghanistan.Builtaroundthecorenationalobjectives of self-reliance and increased income and employment generation, the strategicframeworksetssevenkeypriorities.

25. These Strategic Priorities are (i) Improving Irrigation Systems; (ii) Wheat and CerealProduction; (iii) Development of Industrial and High Value Horticulture Crops andVegetables; (iv) Livestock Development; (v) Climate-Change Sensitive Natural ResourceManagement;(vi)FoodandNutritionSecurityandResilienceBuildingand(vii)InstitutionalReform.Thesewillbereferredtoindetailinthedocument.

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6.1 StrategicPriority1:Improvingirrigationsystems32. While acknowledgedwidely aspriority in agriculturediscourse anddonor strategies, ithasonlyrecentlybeenactivelytreatedassuch.Irrigatedlandwill increasefrom2.45hato 2.74million ha in the next five years, impacting on an overall total of 650,000households. However, adopting a farmer-centric approach in making available anddistributingwater, irrigation is beyond just physicalworks andwill require concurrentsocialmanagementinterventionsthroughIrrigationAssociationsandCCDCs.

33. InvestmentinirrigationandinagricultureprovidesauniqueopportunityinAfghanistantofacilitate economic growth, increase rural employment and enhance food securityespecially in rural areas. Alongside the Ministry of Energy and Water (MEW), whichmanages primary irrigation infrastructure, MAIL is responsible for developing andmanaging irrigation systemsandnetworks– these includeon-farmwatermanagement,watersheds and rangelandwater resources.MAIL aware of its commitment under SDGGoal6,willaddresstarget4and5byensuringanequitableapproachtotheprovisionofwateraccesstoall.ExitingprojectssuchasOnFarmWaterManagementisanexampleofmeetingthatchallenge.However,transboundaryissuesarebeyondthecurrentremitofMAIL and arebeing addressedbyother concernedMinistries. TheOFWMproject has akey community projectwhere a significant start has been undertaken to address SDGGoal6,target8.

34. Over the next five years, MAIL is committed to an accelerated rehabilitation andconstruction program of physical works. This will be driven by the National IrrigationProgram (NIP) targeting increase production and productivity through irrigation andimproved water management practices with a long-term focus to achieve pre-warirrigatedlandof3.1millionhainthenexttenyears.Inaddition,thephysicalworkswillencompassbothrehabilitationandnewconstruction.

26. Achieving the aforementioned target will require creating inter-ministerial coordinationbetween MAIL, MEW and MRRD at the national planning stage in Kabul, and at theimplementation levelatsub-district level.WorkingcloselywithMEWandMRRD,MAILwillalso ensure the true custodians of the water at village level have the required technicalsupport to assist in the constructionof tertiarywater structures, handedover to IrrigationAssociations(IAs),oncecompleted.MAILandtheIAswillbuildtheunderstandingoffarmersto adopt improved farm practices focused on increasing agricultural production andproductivity throughmore efficientmethods ofwater utilization. TheNIP comprises threepillars,assummarizedbelow(adetailedprogramdocumentisattachedasAnnex).

35. Component-1:IrrigationPhysicalWorks toachieve3.1millionhairrigatedland(pre-war status) through restoration and bringing new areas under irrigation by 2025(Improved irrigation services for additional 900,000ha through rehabilitated irrigationschemes, and 120,000 ha new land under irrigation). This will contribute to increasedproduction from the current 5.8millionMt of food grains to 8millionMt, providing agreateropportunitytoreachfoodsecurityforthepopulation.

36. Component-2: Enhance Irrigated Agriculture will improve input support, research,transfer,andextensionofirrigationrelatedtechnologies.Thiswillresultinincreasedlandand water productivity through water saving technologies, and expansion of irrigatedareasthroughsavedwater.

4NationalIrrigationProgram(2016)

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37. Component-3: InstitutionalStrengthening (PublicandPrivateSectors)will revolvearound the establishment and reform of legislation, polices, institutions and improvedmanagement to promote investment in irrigation development and participation ofprivate sector. This will result in more transparent frameworks, regulations, and arestructuring of Irrigation Department to implement irrigation development acrossAfghanistan.TherewillbesignificantemphasisnotonlyoninstitutionalstrengtheningoftheIrrigationDirectorateatalllevels,butalsoestablishmentofIrrigationAssociationsatcommunity level complimenting the emerging discourse on the future roles of CDCsthroughtheCitizens’Charter.

6.2 StrategicPriority2:Increasedwheatproduction38. Althoughmaizeandricealsoformpartofthenationaldiet,wheatremainstheprimary

strategicprioritycropforfoodsecurityandself-sufficiencyinthecountry.However,theproductivityperunitareaisverylow(2.5MT/haunderirrigatedand1MTunderrain-fedconditions)comparedtotheneighboringcountriesamountingtoashortageofmorethanonemilliontonsofwheatgrainannually.Additionally,otherchallengesinabsenceof adequatemachinery for timely harvesting, threshing, processing and storage, in preand postharvest result in further losses of approximately 15-20%. MAIL is trying tosystematically address this important challenge by improved extension methods andthroughdemonstrationplotstofarmersthusmeetingtheSDGGoal12,target3.

39. Thedeficitamountofwheatproductioncompensated for throughannuallycommercialimportsamountstoaround2MT5ofwheatandwheatflourfromneighboringcountries.Production of rice andmaize, the nextmost important crops, is also far frommeetingconsumptionrequirements.

40. The overall objective of the National Wheat Program (NWP) is the sustainabledevelopment of the wheat sector in order to achieve self-sufficiency, improve foodsecurityandbetter response in casesof emergencyandcrisesacross the country.Thiswill involveimprovingproductivity,andwillrequiretakingamorepro-activeapproachin partnering with the private sector at one end, and facilitating farmers to achieveeconomiesofscalethroughwell-tailoredagriculturalpackagesattheother.Bothofthesetasksfacenumerouschallengesinacquiringhighqualityagriculturalinputs,incentivizingprivatesectorinvestmenttostrengthenmarketelementsofthevaluechainandensuringagingseedisconstantlyreplenishedbynewhigh-yieldlocation-specificvarieties.

41. ThenextfiveyearswillseeMAILaddressanumberofsystemicandtechnicalchallengesin a more coherent manner in order to meet its original intention of reaching theproduction target of 5.9 million MT. Given the economic and dietary importance ofwheat,MAILiscommittedtoastrategythatinvolvesaddressingchronicfoodinsecurity,storageofgrainsurplusandtheavailabilityofhighqualitycertifiedseed.Inthenextfiveyears, MAIL anticipates an expansion of additional 110 thousand hectares of irrigatedandrain-fedunderwheatcultivation,increasecurrentyieldforirrigatedlandfrom2.45to3.1MTperhaandrain-fed from1.03 toaminimumof1.3MTperha.Strategies fordry-land farming will also be expanded in order to effectively utilize the land whereirrigationshortagescontinuetooccur.

42. Additionally, good practices in conservation agriculture will be promoted inapproximately250,000hectaresof rain-fedand irrigated lands.Themain focusof theprogram will be in 16 wheat growing provinces of the country including (Faryab,Jawzjan, Balkh, Baghlan, Kunduz, Takhar, Badakhshan, Herat, Ghor, Kabul, Paktia,

5USDAStatistics2015

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Ghazni, Nangarhar, Kunduz, Helmand and Parwan Provinces), but indirectly practicalfocuswillbeonallprovincesofthecountry.(AdetailedprogramdocumentisattachedasAnnex)

43. TheNWPwillbeundertakenintwophases,withthefirstphase(2016-2018)focusingonshort-termobjectives.Hence,PhaseIwillmostlyworkonaligningavailabletechnologiesinordertoreducethewheatyieldgap.Thesetechnologieswillbefurtherdisseminatedto farming communities through extension services, using a combination of RegionalResearch Stations and selected staff at the Provincial Agriculture, Irrigation andLivestock Department (PAIL) through the technical hub of Farmers Resource Centers(FRCs). This will entail strengthening human resource capacity to conduct wheatresearchandseedproductionprograms,inordertoprovideeffectivepublicservicesinasustainablemanner. Effective linkageswill be strengthened at the District Agriculture,IrrigationandLivestockDepartments(DAILs)throughtheExtensionDirectorate,whereIntegrated Agricultural Service Centers (IASCs) will reach out to farmers and privatesectoragents,promotingbestpractices.Alongside theon-goingactivitiesstartedunderthe first phase, the second phase (2019-2021) will focus on longer-term objectivesinvolving standardization and expansion of the adaptive research, and basic researchactivities(e.g.molecularbreeding)inordertodevelopnewvarietiesandeffectiveservicedeliveryandsustainablewheatsectordevelopmentwithinthecountry.

44. StorageandStrategicGrainReserves(SGR)willremainahighgovernmentpriority,withaminimum200,000MTof SGR capacity,withinwhichMAILwill play a crucial role ofincentivizingfarmersandserveasanemergencyfoodsecurityinstrumentalongsidetheEmergency Preparedness and Response program. In turn, otherministrieswill ensuremarketandpricingstability,availabilitytomarket,andcontrolemergency,andcrisestobalancefoodsecurity,andpricestabilizationthroughmarketsupportmechanisms.

45. The longer-termviewadoptedbyMAIL is to create an environmentwhere theprivatesectorbeginstotakean increasing lead inharnessingthepotentialofsemi-commercialandsmallcommodityproducersintocommercialenterprisesaimedatacceleratedcereal,rice andmaize production. Domestic industries such asmilling of cerealswill requirefurtherstrengtheningtoreduceAfghandependencyonvalue-addedcommodities. Thiswill allow MAIL to donate more resources and time to focus on research anddevelopment of new seed varieties, reduction of losses, provision of adequate storageandemergencydistribution,regulatoryandtrade-relatedissues.

46. Aswithall theotherStrategicPriorities, therewillbean intrinsicrelianceonadequateirrigation,timelyavailabilityofhighqualityinputs(certifiedseed,agronomicpackages),agricultural credit packages, value-addition activities and a pronounced role for theprivatesector.

47. Given the scaleand scopeof this initiative, certain risksandassumptionshavealreadybeen identified andmitigationmeasures recommended. Asmentioned above,much ofthe success of the NWP depend upon the successful sequencing of other StrategicPriorities. In addition, it will involve the active participation of other governmentministries and departments aswell as private sector stakeholders,whichmay becomevictim to bureaucratic machinations slowing down overall progress at policy andinstitutionallevel.

48. Improving coordination through high-powered inter-ministerial coordinationcommitteeswithdecision-makingauthoritycanmitigate the inter-ministerial concerns.Regularstrategicplanning,whichisaffiliatedwithapracticalandworkablevisionbasedon administrative competence, accountability, transparency, orientation to results,

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participationofbeneficiariesandgoodgovernance,which isameasuretoencouragetofulfill donor’s funding obligations. Identifying management processes (financial,logistical,andadministrative)toacceleratebusinessaffairsforbetterimplementationofthenationalwheatprogram.

6.3 StrategicPriority3:HorticultureValue-chain

49. Industrialandhigh-valuehorticulturecropspresentabroadnumberofoptionsthatcanbe immediately capitalized upon. By re-organizing the mandate of selected MAILDirectorates, appropriate policies and institutional arrangementswill be developed toencompassrelevantpolicydevelopment,research,technicalassistance,theregulationofrequired inputs, credit/financingpackages andother formsof support to farmers andstakeholders.Inaddition,therehasbeenamarkedincreaseinroundtheyearexpansionandproductionofvegetablesover the last fewyears.Withproducersdiscoveringnewtechniques (e.g. covered farming) they are producing high quality vegetables, ifmarketed, can provide expanded revenue streams at an extended commercial scaleacross the country. Again, the emphasis on the demand side will involve activeengagementof theprivatesector, focusingonmarketdevelopmentandvalueadditionactivities.Asacross-cuttingfunction,MAILwilladoptastrategyofrationalizingpublicandprivatesectorroles, furtherestablishregulatory frameworksandprovide trainingandcapacitybuildingforavarietyoflocalinstitutionsandprivatesectoragents.Thisisonesector,whichhasgeneratedsignificantinterestamongstinvestors.

6.3.1 HighValueHorticultureCropsandVegetables

50. Horticultural crops cover approximately 360,000 ha, accounting for 14% of the totalirrigated land area, employingmore than2millionpeople, in the various steps of thevaluechainofwhichsome90,000areinthenon-farmeconomy6.Amongtheperennialhorticultural crops of strategic importance are grapes, pomegranates, almonds,pistachios and vegetables- most of which are exported. The horticulture subsectorcontributesUS$1.4 billion to the national GDP, equivalent to 34%of agricultural GDPand6.7%ofnationalGDP7.

51. Thehorticulturesubsectorhasgrownattherateof5.5%peryearoverthepastdecade8,andhasthepotentialofexpandingfurther,raisingfarmincomes,generatingproductivejobs and improving food security in the rural and urban communities if timelyinvestmentismadeinagro-processing.Althoughthesub-sectorhascaughtupwiththepre-warlevelsofproduction,itisstillcharacterizedbylowyields,lackofconsistencyinquality and quantity, poor post-harvest practices, and weak producer and marketingorganizations. The main constraints on the production side include: (a) insufficientirrigated land (mainly because of rampant destruction and lack of maintenance ofirrigation schemes, during the three decades of conflict); (b) inadequate supplies ofimprovedcropvarietiesandcertifiedseeds;(c)oldorchardsthatneedreplantingwithimproved planting materials; (d) insecure property rights that discourage long-terminvestmentsinorchards;(e)insufficientaccesstocredit; inadequateextension;and(f)pooron-farmmanagementofwater,crops,andpests.

6WorldBankreport62323,(2011)7Afghanistan:HorticultureSubsectorReview(2014)WorldBank8Afghanistan:AgricultureSectorReview(2014),RevitalizingAgricultureforEconomicGrowth,JobCreationandFoodSecurity,WorldBankReportNo.AUS9779

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52. On the marketing side, farmers have limited access to cold storage and refrigeratedtransportforperishableproducts.Post-harvestlossesduetospoilageincellarsisintherangeof30 -35%9.Moderncoldstorageplantsareexpensive tooperate,and farmerslack the technical and financial resources tomaintain such facilities,which have beenbuilt, in recent years on the outskirts ofmajor cities. Further,maintaining a constantsupplyofelectricityremainsamajorchallengeinmanyareas,andtheuseofgeneratorsraises costs substantially. Transport costs are also high, and the lack of an effectivegradingsystemmeansthat farmersdonotreceivepricesthatreflect thequalityof theproductstheysell.Marketopportunitiesarealsoconstrainedbylimitedagro-industrialcapacity to process horticultural products (e.g. canning, freezing, drying, and juicing),whileopportunitiesforexporttohigh-endmarketsareconstrainedbypoorgrading,lowphyto-sanitarystandards,andlimitedairfreightcapacity.

53. According to the Agriculture Sector Review10conducted byWorld Bank in 2014,withthe current growth rate of 5.5% per year, the sub-sector is expecting an expansioncovering400,000haandcontributesUS$1.6billionannuallytoGDPby2024.Additionalexpansion of the horticultural land -base is possible with the right investments inrehabilitationof irrigation schemes.Additional yieldgainsof2%peryearare feasiblethrough better extension and adoption of improved orchard management and IPMpractices. Together, the horizontal and vertical changes stated below could raise theGDPtoaboutUS$3.23billionby2024(comparedtoUS$1.4billionin2012).

54. Thegoalofthehighvaluehorticulturecropsandvegetablesprogramistosupportthesustainable development of the horticulture sector with needs-based and demand-driven extension services aimed at increasing production and productivity with theultimateaimofstrengtheninganddiversifying the farmers’ licitsourcesof livelihoods.These activities will meet SDG Goal 8, target 2 . This will be achieved through eightstrategicmeasures.

• Expansion of the Horticulture Land-base (Horizontal Increase) by 12,400hectares per year through investments in the rehabilitation of the irrigationschemes,on-farmwatermanagementandadoptionofwater-useefficientirrigationsystems;

• IncreaseProductivityperHectare(Vertical Increase)by increasingproductionat the rate of 5 to 10% per year through a combined package of interventionsincluding adaptive research, improved crop, including orchard and pestmanagement. This would be underpinned by timely availability of high qualityinputs,accesstocreditandamoreeffectiveextensionsystem;

• DevelopPromisingValueChainsbasedupon theselectionofa few fruitandnutcrops in which Afghanistan has had an historical added advantage in the exportmarkets. As with any export-orientated activity, a series of multi-ministerialconsiderationandcollaborativemechanismwillneedtobedevelopedtoensureanenablingenvironmentforthegrowthofSMEstotakeonanumberofvalue-additionfunctionsunderapolicyframeworkthatencouragescompetitionamongstdomesticserviceproviderstomeetinternationalnormsandstandards;

9Afghanistan:AgricultureSectorReview(2014),RevitalizingAgricultureforEconomicGrowth,JobCreationandFoodSecurity,WorldBankReportNo.AUS977910Afghanistan:AgricultureSectorReview(2014),RevitalizingAgricultureforEconomicGrowth,JobCreationandFoodSecurity,WorldBankReportNo.AUS9779*Theareaunderhorticulturalcropsisestimatedat228,000habytheStatisticsandMarketingDirectorateofMAIL

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• InfrastructureandMarketDevelopment is closely linked to the above strategicmeasure, but with an increased emphasis on incentivizing the private sector toinvest inmorestrengtheningproducergroupfamiliaritywithutilizingcoldstoragefacilities,refrigeratedtransportandshipping,andprocessingofhorticulturalcrops;

• EmbraceStandardizationthroughanaggressiveinvestmentinbrandingintandemwithestablishingQualityControlandOrganicCertificationLaboratories.Inaddition,MAILanditscounterpartswilldevelopexport-orientatedregulatoryframeworkandenablingenvironment

• Support the Private Sector by MAIL will support renovation or upgrading ofprocessing facilities throughPPP initiativeswith theassistanceof theministriesofCommerceand IndustryandEconomyalongwithAfghanistan InvestmentSupportAgency(AISA).Inaddition,specificrulesandregulations,standards,qualitycontroland associated measures will be set up and updated to promote production,processing as well as marketing, import and export of the necessary inputs andoutputs and due investments will be stimulated. This will be in tandem withcustomized credit packages to meet requirements by SMEs for investment andworkingcapital.

• Develop the Nursery Industry by increasing access to improved and certifiedseeds and plantingmaterials. A certification scheme for fruit and nut trees offersfarmersachoiceoverthemanyuncertifiednurseriesavailable,butlittleattempthasbeenmadethusfartoimproveandcertifytheavailablevegetableseedvarieties;

• ExpandtheAreaunderProtectedAgriculturebyexpandingthegrowthoftheoff-season production of vegetable crops, which has been remarkable over the lastdecade. Based upon recent successes in Farah province, the Government willencourage further production of vegetable crops under plastic greenhouses andtunnels through production of hybrid seeds and subsidized production of plasticsheeting,metallictubinganddripirrigationpipesandfittings.

55. Farmers continue to face numerous challenges in acquiring high quality inputs in atimelymanner.Themarketsarecurrentlydominatedbyimportedagriculturalinputsofdubious content and quality. In order to provide these inputs in a demand drivenmanner, endemic issues around quality will require mitigation through enforceableregulatory and legislative actions under multi-ministerial ownership. Currently lawscovering inputssuchasseeds,pesticide, fertilizerareundergoingduediligence - thesewill need to be further enforced through regular monitoring, inspection laboratorytesting;institutionalcapacitiesyettobebuilt.MAILiswilldevelopinstitutionalreformsto shorten the process of seed distribution to farmers, and create a more uniformapproach to terms and conditionalities attached to inputs. MAIL will also work inshiftingtheresponsibilityofinputdistributiontolocalinstitutionssuchasAgriculturalCooperatives,andprivatesectoractorsunderpublicsectoroversight.

56. Inaneffort to increasequality assuranceandmarketingofhorticultureandvegetableproductsincludingvegetableseeds,currentlyanuntappedopportunity,MAILwillworkwithotherstakeholderstosupportandoverseetheestablishmentofaFruitMarketingCorporation and Vegetable Marketing Corporation. These entities will be privatelyowned,howeverwillbe regulatedandsupervisedbyaBoardofhigh-level appointeesfrom MAIL, Ministry of Commerce and Industries, Ministry of Finance, and theAfghanistanChamberofCommerce.

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6.3.2 IndustrialCropsandMedicinalPlants57. Development ofindustrial and high value horticulture crops, medicinal plants and

vegetables are still reliant on research and extension initiatives, includingcorrespondingdomesticprocessingandstoragefacilities,smallandmediumenterprisesand the essential standards developments. To date, these have been dealt with in afragmented and uncoordinated manner, with certain crops receiving significantinvestmentattheopportunitycostofanother.Domesticallygrownoilcropscontributetolessthan10%ofthecookingoilconsumedinthecountry,amountingto498,338tonsannually at a cost of US$ 491 million dollars to Afghan consumers. Medicinal crops(bothcultivatedandwild)havebeenconsidered importantexport items forcenturies,currentlyvaluedatUS$80-100milliononannualbasis and this amount caneasilybedoubledwithappropriate interventions.Afghan farmerscannot takeadvantageof thishuge potential market because they lack access to suitable oilseed crop varieties,processingandstoragefacilitiesandtherightmarketingstrategy.

58. WithanincomeofUSD700millionfromhorticultureproductionin2015,thetargetistoincreasehorticultureexportstoatleast5percentayear.Assuch,itprovidesanimmenseopportunity for further income and employment generation within the agriculturesector.Thus,itisimperativethatMAILfollowsupontherecommendationsofadetailedstudy on reviving the cotton value chain, and the outcomes of recent nationalconferencesonoil-seedcrops,saffronandmedicinalplants.

59. Withtheobjectiveofrevitalizingandfurtherdevelopingindustrialcropsandmedicinalplants, this intervention will pursue clearly defined strategies and institutionalarrangements (e.g. establishment of National Saffron Research and DevelopmentInstitute). It will further support development of value chains for oil seed crops, inparticular, cotton as a strategic crop of national importance in order to reduceAfghanistan’s dependency on imported textiles, edible oil and livestock feed. With acombinationofadditional fundingandmaximizing finite resources, thenext fiveyearswillseeMAILselectasetof industrialcrops(currentprioritiesbeingCotton,Soybean,SaffronandRoseOil),10-15highvaluehorticultureproducts(includingfreshanddriedfruitsandvegetables)baseduponanagro-climaticanalysisandsupportopportunitiesfortotakefulladvantageofvalue-chaindevelopment.

60. Theprogramhasadoptedaphasedapproachwithallkeyareaspossessingshort-termdeliverablesachievedby2017and longer-termoutcomesmaterializing towards2020.Thefourkeysareasoffocusareasfollows.

• PromotinganEnablingEnvironmentforPromotionofInvestmentinSmallandMedium Enterprises and Agro-Processingwill include the joint formulation ofcritical strategies in agro-processing, SME development with the Ministry ofCommerceandIndustry.Thesewillbeunderpinnedwithadetailedsub-sectorstudytodeterminethepotential forvalueadditionofcropswiththe lowestriskcropsbythegovernmentand itspartneragenciesor throughPPParrangements.Alongwithexploring viable and sustainable renewable energy options to address the keyconstraintofaccesstocheapenergyinruralareas.

Inthelongerterm,specificrulesandregulations,standards,qualitycontrolandothermeasures will be established and updated for production, processing as well asmarketing, import and exports with the aim of developing export-orientated, highqualityproduction

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• InstitutionalArrangements,ExpansionofArea,andYieldwill incorporate inter-ministerial coordination mechanisms established to assess the multi-dimensionalaspectsofthissub-sectortoensureeachministryisabletocontributeinlinewithitspurview and comparative advantage. At MAIL level, the research-extension-educationcontinuumwillbestrengthenedatPAILleveltoensurebestpracticesarepromotedand improvedwith feedback from the IASCsatdistrict level. In addition,agriculturalfacultiesofuniversitieswillincludeindustrialcropsandmedicinalplantsin the curriculum,whichwillbe connectedwith theFRCsatprovincial levelwhereMAILwillestablisha technicalhub.These initiativeswill, in turn,result in farmer’sproducergroupsmarketingtheirproductsmoreefficiently.

27. In the longer term, MAIL will regulate and ensure production and productivity,through a combination of ministry and private sector owned mechanisms willprovidetimelyinputdeliveryandtechnicalassistanceandotherformsofsupporttofarmersandotherstakeholders.

• MarketDevelopment:Thegovernment inpartnershipwith theprivate sectorwillestablish the necessary regulatory framework and enabling environment for theexport markets to flourish. In addition, significant emphasis will be placed uponbranding Afghan products through an innovative PPP approach attracting alreadyactiveexportcompaniestosupportdomesticproducts.

• PromotingPublicandPrivatePartnership(PPP):Asthisapproachgainstraction,the government will review the possibility of renovating/upgrading aging existingfacilitiesincollaborationwithMoCI,MinistryofEconomy(MoE)andAISA.

• Productionof SufficientQuantitiesofProteinsandOthersEssentialNutrientsto Contribute to Food Security remains a contribution to the broader agenda ofnutrition-based food security, alternatives and additions to existing dietary intake.The existing dietmay be enhanced through the promotion of high-protein contentoil-seed crops such as soybeans, as substitutes for meat, eggs and milk forsubsistence-levelhouseholds.

6.4 StrategicPriority4:LivestockDevelopment61. The livestock sector contributes significantly towards Afghan economic growth and

employmentaswellasimportsubstitutionforlivestockproducts.From2012–2013,thecontributionoflivestocktoNationalGDPwas3.1%decreasingfrom3.8%in2011–2012basedoncurrentprices.11Thesectorprovides15%(US$$680million)oftheagriculturalGDPannuallyandcreatesabout1.1millionfull-timeequivalentjobs,15%ofwhichareoff-farm12.ItalsoprovidesanexclusivelivelihoodforAfghanistan’snomads,whofollowtraditional grazing routes across the country. Livestock, as a commodity also has thepotential to yield rapid income and employment generation under the rightcircumstances. However, for the domestic livestock industry to flourish to a point atwhichitcanoffsetimports,MAILwillleadanupdateinregulationscoveringtheimportandexport standards for livestockproducts, amorecoherentanddomestically-drivenhealthcomponentandgreateroutreachofextensionsupport.

62. Considerable potential exists for the expansion and semi-commercialization of thelivestock industry.While the scope for subsistence farming to contribute to growth is

11AfghanistanStatisticalYearbook2012–2013.12WorldBank,AgriculturesectorReview(2014),pp.xiv

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limited, a substantial number of farmers could, through limited inputs (technology,credit,contractfarming,etc.),entermarket-basedagriculturebymovingtowardssemi–intensive/semi-specialized farming practices. There is already an indication thatprogressivefarmersarebeginningtodiversifyinordertocapturenewopportunitiesforgeneratingincomefromlivestockproduction,especiallyinperi-urbanareaswherethereisbetteraccesstoarapidlygrowingdemandforanimalproducts.Thisisespeciallytruein the case of semi-commercial dairy and poultry production, but also increasingly,seasonal fattening of sheep and goats as and when market prices of feeds and meatallowaprofittobemade.

63. ThedemandforfoodincludinglivestockproductsinAfghanistanisexpectedtoincreaseasthepopulationincreases.Currentdemographicprojectionsfor2025stateapossibletotal population of 47,602,000, rising to 70,553,000 by 2045.13In order to meet thegrowing demand for food, the livestock sector will have to increase the number ofanimals and/or increase the level of productivity per animal. The former will entailconsiderationoftheappropriatecarryingcapacityinviewofkeychallengesforinstancerelatedtolivestockfeedavailability.

64. Thebroad-basedobjectiveoftheNationalLivestockDevelopmentProgram(NLDP)istoincrease production of fodder, dairy, meat and poultry and link these to improvedmarket access. MAIL is committed to improving animal health, productivity andenhancing the key role played bywomen in this sector. In addition, Aquaculturewill,onceagain,beexploredinasystematicwaytounderstandhowuptakeofcultivatingahighproteinsourcecanbeundertaken.Practicalincomediversificationactivitiessuchasthis,apicultureandsericultureamongstothers,willaddtofarmercopingstrategiesandprovidelocalizedincomegeneratingopportunities.

65. TheNLDPwillhavetwokeyareasofemphasis(i)AnimalHealthandVeterinaryPublicHealth; and (ii)Animal Production which will cover Management, Breeding, NutritionandMarketing.AsThelivestockindustryofAfghanistanisbasedupontwodistinctandlargely traditionalproductionandmanagementsystems14,bothofwhicharepracticedatlittlemorethansubsistencelevelofproduction.Althoughthiswillrequiretwoslightlydiffering approaches, this diversity within of livestock production and managementsystemsisviewedmoreasstrengththanaliabilityduetotheimmenseresilienceofbothsystems.

66. Under Animal Health and Veterinary Public Health, MAIL will have four clear sub-components:

• Animalhealthservicedelivery:enablingsustainable,andcosteffectiveservicestoreach the majority of livestock keepers through innovative PPP approaches, inwhich the private sector plays a critical role. MAIL will oversee the requiredregulations on importing, domestic manufacturing and distribution of veterinarymedicinal products. In addition, MAIL will gradually improve the quality andoutreachofveterinaryeducation, training,andbestpracticesbyveterinariansandveterinary para-professionals in line with international standards. Whereverappropriate,theprivatesectorwillbeincentivizedtoprovideinputandelementsofservicedeliverythroughMAIL-fosteredbackwardandforwardlinkages.

13UnitedNationsPopulationDivision2010.,RevisionoftheWorldPopulationProspects.14Nomadic/transhumance,involvingtheKuchiand40-50%ofthenationalsheepandgoatflock.Sedentaryfarmerswithvariablenumbersofsmallruminants,cattleandpoultry(ducksandchickens).

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• Diseasepreventionandcontrol: through the establishment of a national animaldiseasesurveillancenetwork,knownas theSanitaryMandateContractingScheme,linking theprovinces to aCentralVeterinaryDiagnostic&ResearchLaboratory inKabul. This allows improved disease surveillance and the implementation of aflexible and responsive set of disease prevention programs, which have animportant economic impact on livestock production. In addition, greater controloverimportandexportofanimalasandanimalproductsintheformofregulatoryand physical inspection will be undertaken. The latter involving strict BorderInspection, andwhen necessary quarantine, sampling and testing for certificationforsafetyforanimalorhumanhealthandtheenvironment.

• VeterinaryPublicHealthwillprovidestrengthenedregulationsonfoodsafetyforimportedanddomesticallyproducedproductsofanimalorigin.Thiswillinvolvetheestablishment of an inspectorate for ante and post-mortem meat inspection ofanimalsbeingslaughteredforhumanconsumption,andestablishmentoflaboratoryfacilities for testing for biological, chemical or physical hazards present in foodproducts derived from animals, both domestically produced and imported. Insupport of the above reference to border inspection procedures, a secondinspectoratewillbecreatedatBorderInspectionPosts.Inthemediumtolongterm,itwill be necessary to establish Veterinary Inspectorate at allmajor internationalbordercrossingpoints.

• Animalhealthextensioncontinuestoraiseawarenessandencouragesfarmerstoinvestindiseasepreventioninterventionstopreventthespreadofanimaldiseases,especially those transmissible to humans. This activity has immense potential todevelopthroughapublic,privatepartnership(PPP)enhancingoutreachofexistingpublicservicesandprivateanimalhealthserviceprovidersthroughmassmediaandinnovative communication vehicles. In this respect, MAIL continues to strengthensustainable animal health services to farmers through private public partnershipmodels already being tested in the field.These models are exploring innovativeways in which to deliver quality, range and geographical distribution of animalhealthservicesandinputsavailabletofarmersaccordingtotheirneedsandabilitytopay.MAILviewsthisasasignificantopportunitytodevelopaPPPmodelforthedelivery of these services, with the aim of applying it elsewhere in the sector. Inaddition, greater animal disease prevention and control through strongerquarantineandmonitoringpracticeswillbeenforcedtopreventthespreadoftrans-boundary diseases. This will all be built upon the evolving capacity building ofveterinariansandaffiliates.

67. Under Animal Production, based upon a long overdue national livestock census,MAILwillbeinabetterpositiontoprioritizethesequenceofactivitiesleadingtothepromotionof appropriate, innovative andmodern animalhusbandrypractices, such asthe use of indigenous breeds for improved animal production.Detailed strategicdevelopmentplansfordairyproduction,sheepandgoatproduction;poultryproduction,commercialbeekeepingandfodderproductionhavebeencompleted.Assuch,theNLDPwillcover:

• Strengthenanimalbreedingpolicyandresearchintoproductionperformanceofindigenous breeds, especially small ruminants, cattle and poultry which areperfectly adapted to the current management systems, coupled with the gradualintroduction of exotic genes into production systems which are able to takeadvantage of improved genetic potential. Currently average milk production ofcrossbredcowsis10Litersperdaywithaverageanimalmanagement,increasingto15literswithimprovedanimalhusbandry.

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• Increased availability and quality of animal feed will continue, with greatercoordinationbetweenresearchintodevelopingcommercialfeedproductsthatalsoexploit by-products of agricultural crops to meet the demands of emerging andcommercial livestock farmers. In addition, efforts will be invested in developingintegrated systems for increasing fodder production for diet supplementation ofdairycattle,sheepandgoatsduringthewintermonthswhenproductionlevelsfalltoverylowlevels.

28. SignificantcollaborationwithinMAILwillberequiredtoensurebothnomadicandsedentarylivestockherderscanbenefitfromthecurrent29.2millionhaofpasture.It is estimated there are 16.5million animals in 654,917 farming families grazingtheir animals on 12.6 million hectares (summer pastures), 2.4 million hectares(winterpasture)and5.9millionhectares(springpastures)whicharemanagedbyKuchis15.Thisisinadditiontoatotalrangelandavailableofjustover30millionha(47%ofcountry’sterritory).16

• A shift towards semi/commercialization can only be achieved through acomprehensive PPP approach where MAIL and private sector agents shareresponsibilitiesinprovidingawarenessandtherequiredtrainingondemonstrationfarms. Progressive farmers will be guided, trained and with access to anappropriate credit package, to become specialized in an advanced livestockproduction enterprise. Such enterprises will include including semi-commercialpoultry production, small-to-medium scale dairy, and sheep and goat fatteningbusinesses. Each enterprisewill be geared towards viable financial independence,operating on the basis of producing sufficient quantities of animal products andothercropstoproduceamarketablesurplus.

• Animalproductionextensioncontinuestoimproveanimalmanagementpractices,animal nutrition and to facilitate access to markets for certain products. Thisactivity has immense potential to develop through a public, private partnership(PPP)enhancingoutreachofexistingpublicservicesandprivatecontractingserviceproviders to provide extension. In addition, timely market information throughmass media and innovative communication vehicles will provide increasedopportunitiesforadditionalincomegenerationatthefarmgate.

68. Inaddition,over thenext fiveyears,MAILwill continue tobuilduponachievements inincreasedPublicsectorreformsunderway,inordertorationalizeexistinggrazingareasand their custodianship in amanner that reduces opportunities for conflict. However,significant resourceswill need to be invested in further research to identify andmakeavailableadditionalfodderresourcestomaintaintraditionalgrazingareasforthelongerterm.

69. Focusingonthedemand-side,MAILwilldevelopincentivesto increasetheengagementof theprivatesector involvingaccess tocreditandsometechnicalsupport. Inaddition,MAIL will support the development of National Associations in dairy and poultry andbuild the capacity of dairy unions and other institutions to gather smallholders andaddressissuesaroundachievingahighqualityandconsistentsupplyofproductsforthemarketbaseduponasemi-commercial/commercialset-up.

15KuchidirectorateMAIL,201516AfghanistanLandCoverAtlas2016

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6.5 Strategic Priority 5: Climate-sensitive Natural ResourceManagement

70. Despite frequent natural disasters and the impact of climate change, Afghanistanremainsacountry,richinnaturalresourcessuchas1.7millionhectaresofforest(2.63%of the total surfaceof the country),30.1millionhectaresof rangelands (46.84%of thetotal surface of the country)17. These resourceshave a significant economic, social andculturalvalue.AlthoughAfghanistanhasmadeacknowledgedadvancesincataloguingitsnatural assets, passing laws and developing policies, further progress has beenconstrained by contested land ownership, land grabbing, etc., and the case-by-caseapproachundertakenbytheNationalLandAuthorityiscomplexandtimeconsuming.

71. Inaddition,withclimatechangebecomingaglobalpriority,MAILiscurrentlycomparingits approaches to neighboring countries in tandemwith the recent COP21 framework.MAIL will review its abilities to adapt sustainable ways to address adverse effects ofclimate change through awareness-raising of the climate change phenomenon and itseffects on agriculture and livelihoods. While thiswill be done in conjunctionwith theEmergency Preparedness and Disaster Risk Reduction activities covered in the nextsection,MAILrecognizesthecrucialneedtoprotectandbuilduponitsexistingNRMbaseto ensure a curative and causative approach. Through structured programs onagricultural adaptation, farmers, herders, and particularly women will be betterpositioned to plan and implement low-cost interventions. MAIL is further pursuingeffortstoensurethateffectiveplanstocombatclimatechangeisaddressedthusmeetingtherequirementsofSDG13,target2.

72. TheoverallobjectiveoftheNRMstrategyistoensuretheprogramsupportssustainableeconomic development of communities which depend on natural resources (forests,rangelands,naturalvegetationandecologicalareas),creategreenenvironment,conservesoil,water,andprotectbiodiversity.

73. Theentirestrategyisdividedintofourpillars,asstatedbelow. Inaddition, linkshavealready been developed between rural and peri-urban communities to build socialawareness of the value of urban eco-systems and the provision of greenery formajorcities to reduce air pollution levels.This strategy will be underpinned by concertedcapacitydevelopmentthatplacesMAILinafacilitativepositionoverthenextfiveyearsas itshiftscustodianshipofcommonassets intocommunityhands, identifieskeyareasofmediumtolong-termincomegenerationforcommunitieswhollyreliantonforestandnon-forestproducts.Investmentinthesesectorswillallowforrapidgrowthofproductsthatwillcontributedirectlytoeconomicgrowthofthecountryinasubstantivemanner.

74. Forestry: community-based Forest sustainable management (e.g. conservation,restoration,afforestation,development,sustainableharvestingandvalueaddingtotheproducts)inordertoattaindevelopedeconomyandsustainablerurallivelihood.Basedon the aggregation of the statistics and data collected and analyzed for effectiveplanning, a cluster of activities will be delivered, such as strengthening or creatingcommunity-based institutions in forest management and Forest ManagementAssociationstotakechargeoffruitandnuttreeproductionasabroadercomponentofapotentiallylucrativevaluechain,whichwillbesupportedthroughIASCsatdistrictlevel.At provincial level, through the FRCs, will facilitate the establishment of ForestryResearch Centres linked to, or as an annex to, existing research stations whereverpossible. Research will be focused on propagation of drought resistance (adoptable)species. Finally, improving urban greenery for urban ecosystem management and

17MAIL.2012.LandCoverAtlasOfTheIslamicRepublicOfAfghanistan.Page16

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improvingperi-urbanbased supply farms tomeet the requirements of plants, shrubs,saplings,etc.AllthiswillbesupportedbydevelopmentofinstitutionalandHRcapacityatnationalandsub-nationallevelsinlinewithinstitutionalreform.

75. Rangeland and Medicinal Plant Management: community-based sustainablemanagement conservation, restoration, improvement, development, will be used asmechanisms to manage sustainable utility of rangelands and wild medicinal plants,begin to systematically address sand-dune fixation in order to support and developsustainable livelihoods of local communities and nomads. This will require localcommunitiestoactivelyconserveandmaintain210,000haofrangelandbyintroducingrotational grazing practices covering an approx. area of 205,000 ha over 5 years.Innovative approaches to engaging communities in watershed management, and theestablishment of local producer groups and associations will be undertaken throughmobilization and capacity building. In addition, 11 Forages Seed Production andPropagationCenterswillalsobesetup.

76. ProtectedAreamanagement:will becomeanothermainstayof theprogramreliantoninculcatingownershipand sustainable conservationandmanagementProtectedAreasand Wildlife. This will be supported by the enforcement of relevant law andcommitment to the relevant International Conventions to develop biodiversity andstrengtheneco-tourism.BasedonsimilarmodelsappliedelsewhereinS.Asia,ProtectedAreaswillgraduallybeexpandedatnationallevelfrom0.34%to2%18.Furthermore,thecombination of cataloguing and prioritizing indigenous fauna and flora throughscientificsurveysinall9targetedprotectedareaswillbecarriedoutwithexpansionoftourist facilities and the promotion of community- managed models resulting inadditionalincomeandemploymentgeneration.ThispillaralsomeetstherequirementsunderSDGGoal11,target7andSDGGoal12,target2.

77. InstitutionalandHumanCapacitydevelopment:inordertoregularlyattaintheexpectedoutcomes.Thiswill include finalizingregulatory frameworks,policiesandsub-sectoralstrategic and implementation plans. NR surveyswill be designed partly in Kabul andshaped by primary data – the information gathered will inform planning andinstitutional and financial resource allocation. The development of capacity to delivertechnicalsupportthroughFRCsandhands-onknowledgethoughIASCs.Thiswillincludea critical realignment of staff and function at provincial level (PAIL) based on theestablishment of a professional hub for NR planning and technical support to NRMplanning.Furthermore,thePAILswillsupportthepromotionofcommunity-basedNRMgovernance, which will involve mobilizing, establishment and registration of activecommunity-basedgroups/associations.

78. Hence,overthenext fiveyearsavariegatedapproachofshortand longtermmeasureswillbeundertakenintheaboveareasofsustainableforestmanagement.Maintainingandimproving rangelands, improving production and strengthening value chains formedicinal plant cultivation; enforcing protected areas and indigenous wildlife.Inaddition,linkswillalsobedevelopedbetweenruralandperi-urbancommunitiestobuildsocial awareness of the value of urban eco-systems and the provision of greenery formajor cities to reduce air pollution levels.This strategy will be underpinned by aconcertedcapacitydevelopmentthatplacesMAILinafacilitativepositionoverthenextfiveyearsas it shifts custodianshipof commonassets intocommunityhands, identifieskeyareasofmediumtolong-termincomegenerationforcommunitieswhollyreliantonforestandnon-forestproducts.Investmentinthesesectorswillallowforrapidgrowthof

18NEPA.WCS.2010.NationalProtectedAreaSystemPlan.

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productsthatwillcontributedirectlytoeconomicgrowthofthecountryinasubstantivemanner.

6.6 Strategic Priority 6: Food and Nutrition Security, and ResilienceBuilding

94.Afghanistanisacountrywithhigh-levelsoffoodinsecurityandseveremalnutritionwith

33%ofthecountryfacinghighlevelsoffoodinsecurity.Whileothercomponentsofthisdocumentjointlyaddresstheavailabilityandaccesstofood,MAILacknowledgesgreaterefforts will need to be focused in improving the utilization of nutritious food throughdietarydiversity(e.g.kitchenorcommercialgardening)andfoodsafety.

95.Building upon evidence-based strategies from previous similar endeavors, MAIL willcollaboratecloselywithotherAfghanistanFoodSecurityandNutritionAgenda(AFSANA)members to coordinate efforts through its ExtensionWorkers andHomeEconomists toimprovefeedingandfoodpreparationpractices inasystematicandsustainablemanner.This will move beyond a project-based approach and inculcated into, the generalphilosophy of DAIL and PAIL staff interacting with communities. hopes to bridge theexistinggendergapsinaddressingtheneedsofwomenengagedintheagriculturalsector,centered around: providing technical support to meet women’s needs in nutrition-sensitiveagriculture, launchingurbanandperi-urbanagriculture,small-scaleagro-basedenterprises,enhancingwomen’sskillsdevelopmenttrainingprogramsatcommunitylevelinviewofwomen’srestrictedmobility.

96. InadditiontotheemergingchallengesofClimateChange,Afghanistanremainsextremelyvulnerable to multiple, predictable and recurrent natural hazards. Conflict and naturaldisasters, particularly flood, drought, landslides and earthquakes seriously affect theavailability of food staples, cash crops and animal production. Without a modicum ofsupport,traditionalcopingmechanismsmaynotbesufficienttowardofffoodinsecurity.

97. However,addressingdisastermitigationandlong-termattritionofvitalnaturalresourcesasaresultofnaturaldisasters isbeyondthescopeandmandateofanyoneministry. Inlinewithnationalguidelinesandinconcertwithotherministries,particularlyMRRDandANDMA,MAILwillbringtobearfarmers’ingenuityandresourcefulnesscombinedwithamore systematic and technically sound nationwide initiatives to reduce the amount ofnaturalresourcesandcommongoodsthatthreatenrurallivelihoods.

98. Maintaining a crosscutting institutional philosophy, MAIL will establish a unit tocontribute to the planning off, and implement the national EPRR (emergencypreparedness, responseandresilience) strategy in linewithpre-agreedresponsibilities.Inaddition,theMinistrywillstrengthenWeatherEarlyWarningSystemsatitsResearchstations.Itwillalsoexploremoreinnovativeoptionsaroundcropinsuranceandfocusondevelopment of disaster management techniques that address women’s specific needsandalsoenhancetheirresiliencethroughappropriatecopingstrategies.MAILisexploringnew ways to incorporate within its mitigation strategy the role of urban farming andencouraging women groups to engage in home kitchen gardening. The provision ofspecific extension services to urban women farmers is an important component insustainabilityofurbanfoodproductionbeyondjusttheprovisionofinputs.

99. At the central level will focus on building institutional capacity on early warning andpreparednessandadoptinganagriculture-specificpolicy.Atsub-national level,using itscomparativeadvantageofitssignificantnationaloutreachatdistrictlevelandagriculturalpractices, itwillwork towardsestablishingamulti-ministerial regional leveldesignatedcoordination mechanism to improve the quality of response in a timely manner, and

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activities that are anticipatory as well as mitigation-orientated. Thereby enhancinginstitutionalcapacityforthepreparednessandresponsetoaffectedpopulationtoprotectagriculture-based livelihoods. Initially commencingwith capacity building of key PAILandDAILstaff, informationand trainingwill thenbedelivered to farmersand livestockproducer groups focused on preventative measures such as at watershed and sub-watershed level, Irrigation Associationswill support strengthening ofwater systems intandemwithCDCs.

6.7 StrategicPriority7:InstitutionalReform100. MAIL, likemanyotherMinistries,hasundergone importantchanges in the last

fifteen years, and particularly in the last two years. Attempts at redressing chronicchallengesintheareaofpersonnel,capacityandprocessmanagementhavebegunandarefundamentallyreshapingthenatureofhowtheinstitutionoperateshowever,muchremains tobedone.ForMAIL todeliveron thepromiseof increasedproductionandnational agricultural self-reliance, a number of institutional reform issues must beaddressed.

101. Thecurrentstructureoftheorganizationisincompatiblewithitsstatedvisionofbeingadynamic anda farmer centricorganization.Muchof theexisting structureswithin theministry reflect avision froma formerpast thathasexperienced40yearsofwaranddiminishedagriculturalsystems.Theinstitutionanditsvariousdepartments,fortyyearsago, dealtwith an agricultural population thatwas considerably smaller, productivitywasremarkablegiventhemixoftechnologyandtraditionalpracticesthatwereinuseatthe time and the role of women in Agriculture was markedly different. Most of theplanning process was centralized and government had a critical role in supportingfarmers and identifyingmarkets for theirproducts.However, in the interveningyearsneglect and conflict, hasmeant having to restore agriculture back to its former state.With promotion of a free market philosophy, agriculture, once again is a profitableproposition.

102. The last fifteen years has seen considerable strides in agriculture. However, MAILcontinues toretainmanyof itsvestigialstructures fromthepast. Inresponding to thedemandsoffarmersinthecurrentsetting,itneedstoshedsomeofthesestructures.Forexampleitneedstomoveawayfrombudgetexecutionapproachtoamoreresultsbasedapproach. Particularly as the country embarks on pursuing priorities, which willcontribute greatly to income, expandemployment andadd tonational revenues.A lotcanbeachievedwithamotivatedanddynamicworkforce–albeitcriticalchanges,thatpromotesaccountabilityandacultureofpersonalresponsibility.

103. WhileMAILhas embarkedon reform through theCapacityBuilding forResults (CBR)program,which ishelping toreshapesomeof theworkflows involvedwithpersonnel.Nonetheless it remains confined to improving personnel process management withlimitedimpact.ReformassumesthattheMinisterandhisseniormanagershavehadanopportunity to bring about requisite changes at theMAIL, after which the normativerequirements of transparency and adherence to rules and regulations would beoverseen by the Independent Administrative Reform and Civil Service Commission(IARCSC).However, theprocesses inplace require the IARCSC toapproveall changes,big or small; thus making any meaningful attempt at reform impossible. Thebureaucraticprocesshashinderedandseriouslysetbacktheabilityoftheinstitutiontomeetitsintendedmissionobjectivesintermsofreform.ForseniormanagementatMAILto engage in ameaningful reformprocess theyneed anunequivocal commitment andurgentsupport,atthehighestlevelunimpededbystructuralconstraints.

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104. Reform at theMinistrywill require an evolving critical focus onmid-level and seniorleadershippositions, in addition to a functional reviewand re-profiling of the variouspositions in MAIL, leading to a smaller, agile and responsive institution. Reformedmanagement practicesmust reflect renewed emphasis on leadership andprofessionalqualities that motivate and support junior staff. It must accept responsibility forinitiatives and look to solutions within the confines of its departmental mandateswithouthavingtoconsultandacquiresignaturesoneveryissue.

105. In line with the seven priorities, the Ministry envisages a fundamental change in itsstructure. MAIL over the next two years will restructure its Kabul headquarters byreducing and re-profiling some of its departments. The Kabul centric approach is nolonger responsive or compatiblewith itsmission of placing farmers at the core of itsmission. The mechanism of the Citizens Charter, including MAIL’s investment inExtension Services are providing a new reality on the ground and it challenges theinstitutiontoadapttonewpracticesandwaysofdoingbusiness.Infacttheprocessofchange has already begunwith the identification of 34 newprovincial Directors,whohavebeeninterviewedandarewaitingassignment.Theprocessofreformiscontinuousandwillincludechangesatalllevelsoftheinstitution.

106. Afarmer-focusedMinistrywill reconsider itscurrentprovincialstructure.Thecurrentstructure at provincial level is referred to as Department of Agriculture IrrigationLivestock (DAILs). ExistingDAILswill be renamed asProvincialAgriculture IrrigationLivestock(PAIL).PAILswillundergosignificantchangeintermsofitsmanagementandtechnical profiles. Apart from housing a small management team the PAILs will hostFarmer Resource Centers (FRCs). It shall provide technical and knowledge sharingfunctions to its clients at theprovincial level. TheFRCswill train the re-profiledmaleand female extension officers from the districts, commercial and lead farmers,who inturn will assist farmers at the district level through demonstration plots includingmodern agricultural and other knowledge sharing techniques. The PAILs, unlike thepast,willnotattempttoemulateMAILfunctionsattheprovinciallevelwithexceptionofcoordinatingdataandinformationthatwillbedisseminatedupwardsfromthedistrictssothatPAILscanattenuatetheirtechnicalrequirements.Baseduponacomprehensiveassessment,itisenvisagedMAILwillminimallycentrallyretainits‘corporatefunctions’in form of its relevant departments such as Planning & Policy, Personnel, DeputyMinisterial Posts, Ministerial Support Systems, Procurement, Regulatory Functions,Finance,LegalDepartmentandrelevantCorporateServices.

107. Within this restructuring, the establishment of the District Agriculture Irrigation andLivestock(DAILs)willbecomethemostcriticalplatforminmovingMAIL’sdevelopmentagenda.Atthedistrictlevelagreaterlevelofintegrationamongsectors(e.g.irrigation,livestock,horticulture,etc.)must takeplaceso that informationandknowledgethat issharedfromthePAILswillhaveadiscernableimpactonagriculturalactivities.ToreachthattargettheMinistrywillre-profiletheextensionunitsatdistrictlevelasIntegratedAgriculturalServiceCenters(IASC).Theproximityandpresenceofextensionservicesinanintegratedmannerwillallowfarmersandherderstointeractonaconstantbasiswithagroupofextensionexpertsrepresentingvarioussectors.Itwillfurtherensurethatthecurrent sporadic anddisorganized approacheswill beminimized.Thus fundamentallychangingtherelationshipbetweenfarmersandthechainthatincludesMAIL,PAILsandDAILs.

108. MAIL endeavors to rationalize and reduce bureaucraticworkflowsbetween the PAILsandDAILs.Planninginceptionwillbebottom-upstartingwiththefarmerattheDAILs;informationcompiledwillbesharedwiththePAILswhereneedswillbematchedwithrequirementsoftechnicalneedsattheProvincial level.Oncetechnicalrequirementsto

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support DAILs are finalized at the PAILs, plans are forwarded to the PlanningDirectorateforinvestmentconsiderationandfinalization.ReportingandmonitoringwillbeundertakenbyDAILs;whilePAILswill ensure that theyareconsistentwithagreedplans and compiled tobe forwarded toKabulMAILoffices.Theaboveprocesswill bedone in a timely manner through establishing a proper e-governance system so thatplanning informationandcommunicationbetweenMAIL,PAILsandDAILsaredone in‘realtime’.

109. To undertake this change in theMinistry, the reform process requires the support ofboth senior governmentofficials anddonors.Achieving theambitious targets given toMAILforthenextcycleof(2016-2020)canonlyberealizedifdueattentionisgiventothefundamentalissuesthatcontinuetohindertheorganization’seffectiveperformance.Reform must achieve results for farmers and by extension to many who supportagricultureinAfghanistan.

7 DriversandEnablers

7.1 Planningaskeyenabler110. MAIL while having a formal planning process it is ad-hoc, pro-forma and devoid of

meaningful impact on the broader strategy of the institution to ensure priority in itsplan for investment in agriculture.Muchof planning inMAIL is basedonunverifiabledatafromprovincialofficessupplementedbyanecdotal informationgatheredbyonoroff budget projects. The combining of such data gathering efforts often producescontradictory andunreliable information tobaseplanningassumptionson.More thanoftendecisionsonbudgetaryandinvestmentinagriculturearebasedonpreviousyearperformance,whichisaweakandincompleteindicatorofagriculturalperformance.

111. Information gathering andmanagement is key to soundplanning. PPDwillmerge thestatisticaldepartmentwithitsGISunittoincreasecrossintegrationofinformationanddatatoensurethatplannershavethemostuptodatedatatobaseheirassumptionson.AddressingSDGsspeciallywheredisaggregatedgenderdataandotherinformationarerequirediskeyinrecognizingtheneedfortimelyintervention.

112. Aspart of its reformeffortsMAILwill introduce a newplanning system that involvesgatheringdata from farmers throughextensionservicesat theDAIL level. Informationcompiled at the PAIL level, by sectoral analysts, will be systematically verified,organized, consolidated and reported upwards to the Planning, Policy and ProgramDirectorate(PPPD).PAILconsolidationofinformationwillcoverarangeofactivitiesbutnot limited just to production; it will include data to on type of production, spoilage,value exported, market access, opportunities, constraints, access to irrigation, pestmanagement, veterinary services, animal production, state of NRM, pasturemanagementandarangeofissuesthatmenandwomenfarmersareconcernedwith.

113. PPDwilluseanumberofdistinctapproachesingatheringinformationanddatathroughits Geographic Information Systems (GIS) capability and other means: To accuratelyestimate the total crop area of the country usingGIS andRemote Sensing technology.TheGISteamwillconductaccuratecropidentificationusinggroundsurveyandsatelliteimagery (true color and multi spectral), with emphasis on wheat area identification,includingcropyield,particularlywheat(irrigatedanddryland),perunitoflandacrossthe entire country. This capability is available and is being conducted and will be

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supplementedbyon thegroundmanual collectionof farmerdata includinghouseholdsize animal holding etc. The remote sensing datawill guide theMAIL teams to areaswherethereareconcentrationofagriculturalactivity inthe first instanceandallowtoMAILtoidentifyisolatedpocketsoffarmingactivitiesthatareoftenneglected.TheGIScapability will be further increased in the coming years with the addition of newlytrainedstaff,equipmentandabilitytoanalyzeremotesensingforbetterplanning.

114. DataandinformationcompiledatthePAILswillbeprovidedtothePPPDwhothenwillstart a series of consultation with relevant directorates, at MAIL, to make criticalassessment based on the merits of data provided, on investment strategies forrespective provinces and sectors. Data aggregation at MAIL will link corporaterequirements to support, achieve targets and contribute to results framework of theorganization.EachdepartmentatMAILwillbelinkedtothesupportandperformanceoffarmlevelactivities.AConsolidatedCorporatePlanwillbesubmittedtotheMinisterforhis final approval prior to being submitted to the Ministry of Finance. Departmentsfound to be incapable of demonstrating their contribution to the advancement of thevariousdevelopmentprograms for farmerswill faceeither reductionandor completere-profiling, to ensure their relevance to the new ‘farmer centric’ philosophy of theMinistry.ACCPallowsforaprofessionalapproachtohusbandinglimitedresourcesandproducinggreaterefficiencyinsupportingoutcomes.

115. Systematic data gatheringwill better informnot only the planning process across theMinistry but will also have considerable impact on Sector Wide Coordination (SWC)with donors. Projects whether on budget or off budget must evolve within a newplanning framework given that current arrangements reflect a number of concerns:Project ideas, while initially discussed with MAIL, often are designed with minimalparticipationbyMAILexperts.Donorsrelyoncontractorstodesign,procure,implementandmonitor projectswhereMAIL or its representatives are virtually absent. Periodicjoint reviews tend to be pro-forma and are not a serious substitute for ‘hands on’participation. Thus absence of ownership creates an “otherness” that excludesinstitutional responsibility for projects funded and implemented by donors. Projectconcept development, design and implementation can no longer remain the exclusivedomain of contractors alone. Shortage of expertise and capacity, if of critical concern,can be addressed by donor participation in creating the necessary capacity to helpdesignandaddresstheseshortfallsandprovideanimportantassettowardinstitutionalsustainability. MAIL intends to bring all projects irrespective of their budgetaryassignmentunderacommonplanningumbrella.

116. ThePPPDwilldevelopatransitionalplantoensurethatallexistingandfutureonoroffbudget projects are incorporated in the planning framework of the Ministry.Recognizing that many off budget projects have a fiduciary and programmaticresponsibilitytotheirrespectivedonors,atransitionplanthatincorporatestheirworkplanswithinthebroadercontextofthecorporateplanoftheMinistrywillbedeveloped.Theintentionhereistoaligninvestmentwiththebroaderneedsofthecountryandtoensurethatuncoordinatedactivitiesarediscouraged.Similarly,consolidating,thework-planning,design, implementationofbothexistingand futureonbudgetprojectsunderthe umbrella of the PPPD will allow for streamlining and considerable savings intransactioncost. Itwillalsoensureprogrammaticcoherence.Forexample,virtuallyallonbudgetprojectshavetheirownProjectManagementUnits(PMU);functionssuchasadmin,finance,procurementareconductedseparatelyandareduplicativegiventhatalltransactions must be routed through the Ministry’s finance, procurement andadministrationsystem.Thisduplicationgivestheimpressionthatprojectsareoperatingat a greater level of efficiency without regard to the cost benefit analysis of sucharrangements. Furthermore, consolidating these activities centrally presents the

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potentialpossibilityofcreatingenhancedcapacitywhileprovidingsavingtodonorsandthegovernment.

7.2 ResearchandExtension117. Researchisacriticallinktothemaintenanceanddevelopmentofagriculturalpractices

and knowledge development. The presence of Research Centers across the countryprovidesanopportunitytopromoteacrosssectionofresearchanddevelopmenteffortsthat will provide farmers with the added advantage of maintaining the primacy andqualityoftheirproductsinaneverincreasingcompetitiveworldmarket.

118. Both research and extension are inextricably linked. The inter-relationship that holdsgreatpromisemustbecapitalizedupon,toensureforbothfunctionstoconsolidatetheiractivities to support resource-rich areas as well as communities that have limitedoutreach. Research and extension services products and know-howmust play a criticalrole inprovidingopportunities tomarginalized farmerswhosegraduation frompovertymust be a priority. By supporting research centers and through their products farmersMAILiswellontracktomeettherequirementsofSDG9,target5.

119. Building on the current farmer-centric approach to service delivery, research andextensionwill greatly benefit fromaphased strategic shift in emphasis and investmentfromKabultotheprovincialDAILs(PAILs)andDistrict(DAILs).TheresultingincreasedautonomywillallowPAILstotakeonmoreofamanagementandtechnicalleadthroughtheaggregationofresearchstaffandrequirements in tandemwithrecruitingacadreoftechnical staff to cater to DAIL knowledge requirements. Thereby taking the lead indownwardplanning,implementation,andmonitoringandimpactassessmentofdemand-driventechnicalsupportpackagesandinterventions.

120. Proportionally, the largest investment will be in the DAILs, which are closest to thefarmer.Atthislevel,therewillbeincreasedfocusonrecruitingfemalestafftoensureasinclusive an outreach strategy as possible.At district level, provision of these demand-driven and timely services will be carried out through a national network of (FRCs)locatedwithinPAILs. These FRCswill be invested in to acquire the capacity to providetechnicalassistancedirectlythroughtheDAILstofarmers,whilstalsobeingviewedasa‘one-stopshop’linkingfarmerstoinputsuppliersandpromotingbackwardandforwardmarketlinkages,IPM,andstorage.

121. FRCs will broker business relationship amongststakeholders,bringingtogetherthedecentralizedservicesofallrelevantministriesworkinginthearea.Similarly,DAILswillbecomethepremierdeliverymechanismofknow-how,supportandadvicetofarmersatthecommunityandvillagelevel.MuchoftheideasandknowledgedevelopedatthePAILwillmigratedownwardtoDAILstoaddressfarmer’sneedsirrespectiveoftheirsectoralrequirements.

7.3 InputDeliverySystem122. Farmers continue to face numerous challenges in acquiring high quality inputs in a

timely manner. Markets are currently dominated by imported agricultural inputs ofdubiouscontentandquality.Inordertoprovidetheseinputsinademanddrivenmanner,endemicissuesaroundqualitywillrequiremitigationthroughenforceableregulatoryandlegislativeactionsundermulti-ministerialownership.

123. Inthecaseofseedproduction,thecurrentsystemisfarfrommarket-oriented,requiringMAILtoactasamiddlemantopurchaseseedtopassonatsubsidizedrates.Inaddition,theseedhasqualityconstraintsandiswellbelowtherequiredlevelsofproduction,with

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an actual target of 30,000MT still being unmet. The unmet needs of farmers are over20,000 MT. MAIL will seek to change the above system by introducing a repaymentmechanismbythefarmersinkindandorincash.Indoingso,MAILwillusethecash/inkindinputtostorewheatinits“grainorseedbank”.Thusovertimeremovingtheneedfor subsidizing wheat and other seed inputs. It will also allow MAIL to broaden itsdistribution of quality seeds to other framers while reducing its overall investment insubsidized seed distribution. Similar constraints are faced in Horticulture, which haslimited access to certified saplings and seeds,whichwill be addressed in extending thecapacity of Perennial Horticulture Centers (PHDCs) and that of ANNGO, AfghanistanNationalNurseryGrowersAssociation.

124. MAIL will develop an exit strategy that will reduce Ministry’s involvement in seeddistributionandincreaseoversightandqualitycontrol,whereprivateseedproducerswillengagewith farmers through IASCs including inputssuchas fertilizers, improvedseeds,andseedlings.MAILwillalsoexplorethepossibilityofshiftingtheresponsibilityofinputdistribution to local institutions such as Agricultural Cooperatives, and private sectoractors under public sector oversight. Currently laws covering inputs such as seeds,pesticide,fertilizerareundergoingduediligence-thesewillneedtobefurtherenforcedthrough regularmonitoring, inspection laboratory testing; institutional capacitiesyet tobedeveloped.

7.4 AgricultureCredit125. Access to creditby farmersandherders remainsan immense challenge thathasbeen

addressedinafragmentedandpiecemealmannertodate,baseduponafewprogramsorprojectsengagingwith therural financemarket.There isaviewthatcommercialbankscanplayamajorroleinagriculture.However,therisk-aversenatureoftheseinstitutionshasresultedinfinancepackagesforthosewithassetsandcollateral.Itistobehopedtheywillsoonbeabletomanagenecessarylendingtoagribusiness,whichtheyarenotservingadequately at present. Majority of Afghan farmers are not in a position to provideguarantees to qualify for small loans, clearly alternative ways need to be explored toaddressthepovertyofcapitalthatmanyfarmersface.

126. Whilst MAIL has increased credit availability through partnerships with creditinstitutions,amorecoherentapproach,whichbuildsuponexistingcredibleagriculturaland other institutions, will need to be taken. At the higher level, this will includedevelopingbetterdefinedfinancialpoliciestostimulatemorecreditinstitutionstoservethesupplyandvaluechainsformoreefficientdevelopmentoftheagriculturesectorandthe related activities and industries. At ministerial level, there will be greatercollaboration with the growing number of competent Afghan MFIs and private sectorentrepreneurs to ensure financial and business-related inputs are demand driven byfarmers’producergroupsandherders.

127. With the longer-term view of paving the way for an Agricultural Development Bankover the next five years, MAIL will push for all actors in this sector to develop other"financial intermediaries," typically cooperatives and farmer associations. Within eachestablished intermediary, credit management units of local finance and administrationpersonnel will be put to task. Yet another approach to increasing the uptake ofagricultural credit is by capitalizing upon past group credit guarantees, which greatlyreduce default risks in the system. Agricultural cooperatives and enterprises couldbecome farmerownedandmanagedalthough, theymight startoutwith an injectionofdonor grants, government capital and governmentmanagement, particularly to ensurehighstandardsintransparencyandaccounting.

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128. Over the next five years, credit will be instrumental in mitigating risk sufficiently toenablevaluechainparticipantstotrynewmarketsandadoptnewtechnologiestomeetmarketrequirements.Amenuofagriculturefinancingpackageswillbetailoredtocapturethe smallholder farmers and, ultimately will turn them into commercially viableenterprisesandtomeettherequirementsofSDG9,target3.

7.5 FarmerOrganizations129. MAIL recognizes that without an organizing principle around, which farmers can

coalesce,organizeandutilizeprovisionof credit andother services suchasvalue chainandmarket development progress is likely to remain limited. Development support offarmers’ including organizations such as Cooperatives, Associations, Unions, Village-B/Common interest Groups, etc.’ is a first step in organizing both male and femalefarmers.Itwill leadtobetterhorizontalandvertical integrationofvaluechainsandwillactastrainingandtechnologyknowledgeexchangecenterstopromoteorganizedfarmergroupsindealingwiththebusinesssector.

130. Farmer’sviewofthemarketplaceismostlyconfinedtotheirregionalinteractionwithvillages sometimeswith townsand lessoftenwithcities.Organizingmovementof theirproducts to larger townsandcities isoften constrainedby cost andaccess tomeansoftransportation.Often farmersareat themercyof traderswhowillvisit their farmsandoffertobuytheirproducts.Thefactthatfarmersareunawareofmarketprices;arecashpoor and require to sell their products as soon as they can; leaves them vulnerable topredatorypracticesby traditionalbuyersand traders.The creationof cooperativesandassociationswillgoalongwaytoaddressthisstructuralproblemamongmanyfarmers.

131. MAIL proposes specific objectives to help farmers overcome some of the constraintdiscussed:

• Ensure farmers ability to join Farmers Organizations (FOs) on a voluntary anddemocraticbasis;

• ImprovethelivelihoodsofmenandwomenwhojoinFOs;

• Ensuringfoodsecurityincommunities;

• Creatingself-financingreliancethroughcreditinstitutions;

• Promotingself-helpapproachthroughFOs;

• InstitutionalizemechanismtoeffectivelyinvolveFOsinagriculturalpolicymakingandimplementation;

• Greater synergy with emerging structures under Community DevelopmentCouncilsandCitizensCharter.

132. AcriticalelementinthedevelopmentofFOswillbetheenablingrolethatMAILwillplayinhelpingorganizefarmers.Farmersarekeentounderstandtheiradvantageinbelongingtoanorganizationthatwillpromotetheirincomeandcreategreatereconomicstabilityintheir lives. Farmer as an economic agent of changemust be convincedof the relevanceandutilityofanyassociationandorcooperative.Thefacilitativeroleofgovernmentmustnot seek o overshadow the natural ‘space’ within which trade and economic exchangetakesplace.Farmersneedtounderstandwhattoolsareavailabletothemtoplacetheminacompetitivepositionvis-à-vis traders;similarly tradersneedtobecomeawarethatbyfarmersorganizingthemselvestheyarelikelytofacegreatercompetition.

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7.6 PrivateSectorSupportandPublic-PrivatePartnerships133. Asenvisaged intheRealizingSelf-Reliancedocumenttabledat theLondonConference

in December 2014, this document and its revised strategic framework, places PublicPrivate Partnership (PPP) at the very center of its efforts in ensuring an enablingenvironment for various sectors in agriculture, to realize its full potential. Criticalunderstanding of the role of the private sector, in achieving sectoral targets, and thecreationofcapabilitiesalongvaluechainsisoneofthemostimportantreformtasks.

134. The growing emphasis on involving the private sector across as many agriculturalactivities as possible requires both inter and intra-ministerial collaboration andcoordination.Dueconsiderationwillneed tobegiven to (i) regulatory issuesdealing intransferring of state assets and contractual obligations around large-scale contractfarming; (ii) seasonal trade tariffs allowingAfghanproducers andprocessers’ exclusiveaccesstodomesticmarkets;and(iii)taxincentives.Inallofthis,MAILhasthemandatetoprovidepolicyformulation,legalandregulatoryframeworks,supervisionandmonitoringandfacilitatingtheprovisionoftechnicalassistanceandsupportingthefarmers,farmer’sorganizationsandtheprivatesector.

135. Over the next five years, MAIL will continue to pursue an economic developmentstrategy based on private sector investment in value-chain processing to stimulatemarket-driven demand and agricultural productivity. Thiswill be achieved through theestablishment of a variety of strategic initiatives to attract international large-scaledomesticprivatesectorinvestmentaswellasstrengtheningfarmergroups,cooperatives,small andmedium size enterprises all ofwhich form the nucleus of private sector andmarket development. The ultimate aim being the provision of employment andsecurityforlocalpeople,whichinturnstimulateeconomicdevelopment.

136. Attracting larger investments will be undertaken through incentivizing the privatesector to invest in in Agricultural Industrial Parks (AIPs). These AIPs will offeropportunities to share costs in value addition activities, thereby providing a replicablemodel for increased efficiencies and lower production costs. Where possible, PublicPrivatePartnerships(PPPs)willbeusedtobringtogetherdemanddriveninputsuppliesand services currently delivered byMAILwith private sector agents investing in othervalueaddingelementsofthevaluechainincludingimprovedmarketlinkages.MAILwillestablishaseparatePPPunittobringtherequiredexpertisetobeabletohandlesimplePPPpartnershipsthatwillgraduallyscaleuptomorecomplexandbiggerPPPprojects.

137. Smaller commercial farmers will also be encouraged to link with private sectorentrepreneurs through district level Integrated Agricultural Service Centers (IASCs)wheresmallholdersandcommercialfarmerscanreceivehelpfromthepublicandprivateextensionservicesaswellasinputsfromvariousstakeholders.Atthislevelinparticular,female participation in enterprise will be focused upon to bolster and support themarginal number of female entrepreneurs. The majority of their businesses are in thehandicraftandservicessectors,manysubsidizedbydonors,therebycallingintoquestiontheirsustainability.Thechallengesfacingfemaleentrepreneurshipisfurtherexacerbatedby the limitation of social-cultural customs, with support for women to work outsidehomeseeminglydeclining.

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8 Cross-cuttingComponents8.1 CounterNarcotics

138. In spite of the CounterNarcotic (CN) efforts of theGovernment and the international

community, poppy cultivation has been rising over the last 15 years, culminating at224,000 hectares in 2015. Poppy production distorts economic incentives againstcompeting licit crops, undermining state legitimacy and the rule of law, and fuelingcorruptionandtheinsurgency.

139. Although the yield of raw opium has varied sharply in recent years because ofenvironmental factors, disease, oversupply and law enforcement activities, the overalltrend is one of rising cultivation, and this trend will continue unless sustainablealternative on-farm and off-farm livelihood strategies are provided, particularly tosubsistencefarmers.

140. The licit agriculture sector currently lacks the necessary dynamism in production,productivityandmarketstosufficientlyaddressissuesoffarmingandruralpovertyandunemployment,providingviablealternativestothecultivationofillicitcrops.Itrequiresa coordinated approach to ensure that new and expanded on-farm and non-farmopportunitiesadduptoaviablealternativetopoppygrowing,intermsoftheincomeandjob opportunities they offer to farmers and rural communities. Investing in irrigatedwheatby facilitating irrigationposes the riskof resuscitatingopiumpoppy cultivation.Thus, it is important to institutemandatory counter-narcotics impact assessments forirrigationprojects.

141. Aswheatistypicallyalowervaluecropthanpoppy,itisquitepossiblethatpartsoftherehabilitatedirrigationareasintendedforwheatcouldendupunderpoppyproduction.To address such risks in opium poppy growing areas, the strategy should prioritizeinterventions toraise irrigatedwheatproductivity (raisingyieldsperunitarea), ratherthanexpandingareaunderirrigatedwheat.Inotherwords,expandingwheatcultivationcouldbeassignedlowerprioritythaninvestmentsinperennialhorticultureandintensivelivestockproduction,whichcouldcompetebetterwithopiumpoppy.

142. The risk that promoting horticultural crops will promote opium poppy growing issmaller than that from promoting wheat, because the output values per hectare ofhorticultural crops are more competitive with that of poppy. Thus, prioritizing thedevelopment of perennial crops such as vines and tree fruits rather than annualhorticulturalcropsmighthelp inthisregard,becauseonceinplacethesecropscommitland over the entire year and for an extended period (typically 25 - 30 years), andrepresent “sunk” investments that would be costly to shift back to opium poppycultivation.Similarlysaffron,whichhasaninitialhighinvestmentcostandoccupieslandfor7-8years,wouldbemoreeffectivethanannualcropsincompetingwithpoppy.

143. The Sub-components of the program, as designed, jointly facilitate the strengthening,provision and diversification of licit rural livelihoods, with a particular focus onsubsistenceandmarginal farmersand laborers, therebysupportingreduction inpoppyproduction in CN-priority provinces. It focuses notably on research and extensionservices, improved agricultural production methods and agriculture infrastructuredevelopment. However, as per the “International Guidelines on AlternativeDevelopment”,acoordinatedeffortisneededonthepartoftheAfghanGovernmentandcountries affected by the flow of narcotics, to create an enabling environment for

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agriculture to flourish along with other sectors of the economy. All as a “sharedresponsibility”mustrecognizealternativedevelopment,toaddressCN.

8.2 WomeninAgriculture144. Afghanwomen’sroleintheagriculturalsectorisaparadox.Whilewomenplayacritical

role in agriculture and food security, accounting for nearly 43% of the sector’s laborforce, they still remain on the peripherywith limited access to productive resources.Despite their important contribution towards the fight against food insecurity andpovertyandtheirsignificantroleinnaturalresourcemanagement,womenaresubjectedto different types of social and economic exclusions. These restrict their access toproductive resourcesandeconomicopportunities todevelop their fullpotential.Theirparticipationisprimarilyfamily-based,withoutremuneration(notaccordedamonetaryvalue)andtheyarerarelycompensatedfortheirlaborintermsoftimeallocated.

145. The feminizationof the agriculturalworkforce inAfghanistan results inpart from thecoping strategies adoptedbywomen to diversify their livelihoods,which are gendered.Menusuallycultivatethe lucrativecrops,ormigrateasseasonalorpermanentworkers;while women cultivate the family plot for household consumption, care for smalllivestock, process and/or sell part of their production in local markets. Compared toAfghanmen,Afghanwomenhavelittleaccesstodecision-makingoveragriculturalinputs,outputs, and product markets. Nevertheless, Afghan women continue to contributesignificantamountof time toagricultureand livestockproductionaswell as toabroadrangeofproductsinbothareas.

146. With an established gender strategy and a dedicated Gender Focal Point at MAIL,mainstreamingandinstitutionalizinggenderissueswithinMAILremainsachallengewithtwo Directors working in Kabul and none at provincial level. While there is anoverarching Gender Policy for MAIL, some Directorates and programs/projects havedevelopedtheirownrespectivegenderstrategiesorguidelinestoinformtheiractivities.There remains an absence of coordination among the individual initiatives of eachdirectorate, programs and projects. A well-planned approach to coordinate theintegration of gender in every intervention of MAIL is conspicuous by its absence.Consequently, the issue of mainstreaming women’s equality and promoting women’sempowermenthavenotbeenclearlyunderstoodinauniformwaybyallconcerned;andsecondly, the absence of coordination has prevented collaborative efforts from takingshapetodeepentheimpactontargetgroups.

147. TheincreasedpresenceofMAIL’sHomeEconomicDepartment(HED)attheprovincialanddistrict levels,hasallowedtheMAILtopromoteawarenessofwomen’sworkinthesector. Using successful women farmers as role models and mentors for a cadre ofyounger women farmers will further strengthen women’s confidence, dignity andparticipation. Inaddition, this interventionandapproachescreatea space for improvedwoman-to-woman coordination and information sharing to provide support andassistancetowomenintimesofdisaster,andensuringaneffectiveimplementationofthestrategyinthecontextofMAIL’sGenderPolicy.

148. Despite these challenges MAIL is committed to bring about critical focus on genderequalitywomen’s role inagriculture.Theparticipationofwomen inall aspectsofworkrelatedboth institutionally andotherwise is a priority thatMAIL is incorporating in itsplanningandimplementationefforts.InachievingthisimportantSDGGoal5(target5,7,8and 9), MAIL is restructuring its reform efforts to ensure that women’s rights andeconomicempowermentisaddressedbothlegislativelyandeconomically.Developments

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in utilization of new information technologies at the farmwill enable womenwho areexcludedfrompublicaccessoneconomicinformationtoaccesssuchinformationthroughtelephonecellular technology.Access to informationandeconomic importantwill serveasimportantdriverforchangeamongruralwomenproducers.

8.3 Anti-Corruption149. MAIL not unlike many other governmental institutions is susceptible and impacted by

corruption. Seniormanagers indischarging their responsibilities are often the target ofpressuresandundue influencebyavarietyofexternal institutionalmeans.Someare intheformofpoliticalpressureswhileothersmayinvolvemonetaryincentives.Irrespectiveofthesourceandnatureofpressure,seniormanagersatMAILarecommittedtomodelingthe best practices to ensure that middle managers and junior staff are aware of thescourgeofcorruptionandareequippedtodobattleagainst.

150. SeniormanagementatMAILisengagedinensuringthatprocessesinuseattheMinistry,areconsistentwithnationalpoliciesonanti-corruptionandthatreformeffortsprovideaframeworktoidentifypotentialareasforcorruptioninworkflowsaswellaspolicies.Forexample procurement processes are aligned with the newly established NationalProcurement Commission's guidelines, as set out by the Office of the President andMinistryofFinance.

151. Recruitmentprocessesareparticularlysusceptibletocorruptionandpolitical influencesandpressures.StrengthenedandanindependentHumanResourcesdepartmentmayhelpreducethespreadofcorruptionbyintroducingstrictmeritbasedproceduresthatattractqualified people. Simplification of business processes and application of integratedelectronic system may help in reducing corruption. Complicated procedures andredundantworkflowsoftenresultindelaysandarepronetomisuseandexploitation.

152. PublicprivatepartnershipstrengthensMAIL'seffortsagainstcorruptionbyempoweringinterest groups such as farmer groups, community members, civil society in buildingconsensus and identifying areas of corruption. Recognition of interest groups asstakeholderinpolicydialoguescanserveasacatalystforacorrectivemeasuretocombatcorruption.

9 ImplementationStrategyandMechanism9.1 TaskTeams

153. AnumberofTaskTeamswillbeformedtooverseetheimplementationofthisstrategy.

The task teams will comprise key technical staff in MAIL from Kabul and Provinces,chosen to represent the best possible blend of technical and reform-oriented practices.These task teams will support MAIL leadership in rolling out reforms and providepractical implementation guidelines to achieve the intended results. MAIL will seek toinitiallypilotcomprehensivereforminthefiveprovincescoveringatotalof72Districts.

154. Theprovincialanddistrictreformprocesswillbeinitiallypilotedinthefirstsixmonthsandwillbeexpandedtoanotherfiveprovinceswithinayear’stime.AnexperiencedTaskManager will lead the Task Team. The Team will comprise of a specified number ofexperienced analysts and managers to proactively engage across a wide spectrum ofsectoraldisciplines,ensuringtheprocessofmanagingandmeetingestablishedtargetsaremet.TheTeamandthemanagerwillberesponsibleforliaisingatdifferentlevelsacross

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MAIL,provincesanddistrictstoidentifyproblems,opportunitiesandcreativesolutionsinwhat is likely to be a difficult and challenging transition. TheTeamwill be periodicallyassisted by national, andwhen required, international consultants. The Task Teams, asthey identify capacities, assets and consult with provincial and district staff includingProvincial Governors and District Governors, will build the necessary momentum torefocuseffortstointensivelysupportfarmers.

155. In line with the seven priorities, the Ministry envisages a fundamental change in itsstructure. In adopting a more farmer-centric approach, all manner of resources willneed to be reorganized and re-located to the province and district levels. This willensure a more demand-driven and innovative utilization of MAIL resources at farmlevel, supported by a coherent and interlinked technical and research-based hub atprovincelevel.

9.2 InstitutionalReformattheCentre156. Reform at the Ministry will require a critical focus on the rationale of mid-level and

senior leadershippositions in linewitha functional reviewof thevariouspositions inMAIL and lead to a smaller, agile and responsive institution. Reformed managementpractices will reflect renewed emphasis on leadership and professional qualities thatmotivateandsupportjuniorstaff.Itmustacceptresponsibilityforinitiativesandlooktosolutionswithin the confines of its departmentalmandateswithout having to consultandacquiresignaturesoneveryissue.

157. Aseriesofmanagerialand functionaladjustmentswillbecarriedout toshift fromthe

relatively uncoordinated project-based structure currently reliant on post-factoinvolvement in key areas of design and implementation, duplication of functions andunsynchronized resource utilization. The first strategic shift will be to link existingprojectsasawhole,orbykeyactivitytotherelevantMAILDirectorate.PositioningMAILDirectoratesatthecenterofoversightandcoordinatingimplementationwillprovideaprogram-based approach to MAIL activities, increase coordination and informationsharingbetweenDirectorates,andbuildthecapacityofMAILtotakeamorehands-onand longer term planning approach to the application of its portfolio. The resultantreductionintransactioncostandincreaseinaccountabilitywillspeakforitself.

158. Simultaneously, the international communitywill adhere tonewMAILguidelinesona

process of inclusive planning of all pipeline projects from conceptualization toimplementation and evaluation. This will ensure key priorities and gaps are jointlyidentified, effective resourcemobilization can be planned in tandemwith appropriatedesignsandimplementationmodalitiesefficientlydelivered.

159. Theendstateofthewillbethatofasignificantlyreducedphysicalpresencebuiltaround

the support and delivery of corporate obligations to the overall direction andmanagement of theMinistry. Restricting itself tomacro-level issues, theMinistrywillpredominantly focus on donor relations; national agricultural policy. MAIL willminimallyretainat itsKabul facilitiesrelevantdepartmentssuchasPlanning&Policy,Personnel, Deputy Ministerial Posts, Ministerial Support Systems, Procurement,RegulatoryFunctions,Finance,LegalDepartmentandrelevantCorporateServices.

160. In practical terms, this will effect a change from a somewhat prescriptive and

unresponsivesupply-drivenapproachtoasystemofdemand-drivenservicesandinput

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provision requires organizational changes and the integration and coordination ofseveraldifferentelementssuchas:

• Multi-ministerial platforms to foster the required regulatory and legislativeframeworks to enable an enabling environment for national and internationalinitiativestargetingself-reliance;

• UpdatingregulatoryframeworksandqualitycontroltocreateandmaintainenablingenvironmentandfosterPPPmodels.

• Development of an integrated and synchronized agricultural services provisionstrategy;

• The strengthening/creation of appropriate institutions to maintain and expandactivitiesbyprovidinglegitimatebasis,policiesandde-centralizedfinancialdecision-making;

• Identification of a common platform/point of entry for developing demand drivenservicesandinputsprovision;

9.3 TechnicalandCoordinationHubatProvinceLevel161. Existing DAILs at province level will be renamed as Provincial Agriculture Irrigation

Livestock(PAILs).TheexistingstructuresmirrorthatofMAILinKabul,withanumberofDirectoratestaffreportingto theAgriculturalAffairsOfficerat theProvince levelaswellastorelevantDirectorateinKabul.Mostreportingandinformationflowsupwards,oftenofquestionableveracityandwithverylittleresponseorfeedbackfromKabul.Thequalityof informationthat issought fromDirectoratesareoftenproscribedandnotofanyanalyticalvalue.Contentandvaluearesacrificedtomeetreportingtargetsthatdonotprovidesufficientsubstancetoderivepolicyrecommendationsorthedevelopmentof investment strategies. Authority to make decisions is very limited and financialdecisionsarecontrolledentirelybyKabul.

162. In order to make service delivery more responsive to Farmer’s needs, PAILs will

undergosignificantchangesintermsofmanagementandtechnicalprofiles.Apartfromhousingasmallmanagementteam,thePAILswillhostFarmerResourceCenters(FRCs).FRCs will provide technical and knowledge sharing functions to their clients at theprovinciallevel.TheFRCswilltrainthere-profiledextensionofficersfromthedistricts,commercialandleadfarmerswhointurnwillassistfarmersatthedistrictlevelthroughdemonstration plots including modern agricultural and other knowledge sharingtechniques.ThePAILs,unlikethepast,willnotattempttoemulateMAILfunctionsattheprovincial level with exception of coordinating data and information that will bedisseminated upwards from the districts so that PAILs can attenuate their technicalrequirements.StafffortheseFRCswillbeacombinationofexistingreallocatedstaffandtherecruitmentofspecificallyskilledindividualsrecruitedfromtheopenmarket.

163. The FRCs will draw upon a number of additional resources such as PHDCs, relevant

University faculties, Regional Research Stations, with the addition of smaller specificlaboratory facilities to provide province-specific services to support quality controlalongvarioussegmentsofthevaluechain

164. Again, in practical terms, PAILs will provide the required technical backstopping fordistrictlevelstafftobeabletoprovidetherequiredinformation,supportandmentoringof farmerswith the long-term aim of inculcating the concept of need-based, demand-

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drivenservicesbasedonpayment19.Hence,providingcomprehensive integratedneed-based services and inputs require a responsive cadre and skillsets to meet farmers’needsandensuretheyareclearlyunderstoodbytheproviders.Itisimportanttokeepinmind thatpoor farmersareusuallydisadvantagedwith limitedaccess torights,assetsand services and it is important that these farmers become visible to the serviceprovidersenablingthemtoactivelyidentifyanddemandtheservicestheyrequire.

165. Inturn,FRCswillprovidethetechnicalresourcepooltoincreasetheperceivedvalueofdistrictlevelservicedelivery.FRCswillprovidearesponsivetechnicalpackagetailoredtotherequirementsofanevolvingsetofagriculturalneeds.Thisapproachisdesignedto create the change froma supplydriven to a systemofdemand-driven services andinputprovisionrequiresorganizationalchangesandtheintegrationandcoordinationofseveraldifferentelementssuchas:

§ Develop information and guidance on regulatory requirements including setting ofstandardsforagriculturalinputs,products,etc.

§ Create a repository of knowledge based upon technical resources and indigenousknowledge

§ Prepareacollectionofpackagetrainingresources

9.4 ServiceDeliverytoFarmersatDistrictLevel166. Within this restructuring, the establishment of the District Agriculture Irrigation and

Livestock(DAILs)willbecomethemostcrucialplatforminmovingMAIL’sdevelopmentagenda.AtthedistrictlevelagreaterlevelofintegrationamongsectorsmusttakeplacesothatinformationandknowledgethatissharedfromthePAILswillhaveadiscernableimpact on agricultural activities. To reach that target the Ministry will re-profile theextension units at district level as Integrated Agricultural Service Centers (IASC). Theproximityandpresenceofextensionservicesinanintegratedmannerwillallowfarmersto interactona constantbasiswithagroupofextensionexperts representingvarioussectors. It will further ensure that the current sporadic and disorganized approacheswillbeminimized.ThusfundamentallychangingtherelationshipbetweenfarmersandthechainthatincludesMAIL,PAILsandDAILs.

167. TheIASCCsareplatformsforinformationexchange,experiencesharingandestablishingbackwardandforwardlinkagesbetweenfarmersandtheprivatesector.TheIASCswillconsult with CCDs and CDCs as part of its assistance towards the articulation of thefarmers’ demand for extension services andwill provide amechanism for linking the“demand” with “service suppliers”. By constructing a public– private partnershipframework,theroleofallstakeholderswillbeclearlydefined,includingthoseofMAILtomeetitspublicsectorresponsibilities.Inthemediumtolongterm,thesewillostensiblybe applying and monitoring legal and regulatory frameworks to ensure theaccountabilityofeachstakeholder.

168. Assuch,theIASCswillalso:

• To communicate aggregated farmer demands to providers and monitor serviceprovision.

19Thus"demand"isheredefinedaswhatpeoplerequestfor,needandvaluesomuchthattheyarewillingtoinvesttheir resources, such as time andmoney. In order to deliver services that can be defined as demand driven, thefollowingmainprinciplesneedtobeapplied:(i)Servicesshallbedrivenbyuserdemand;(ii)Serviceprovidersshallbeaccountabletotheusers;and(iii)Clientsshallhaveafreechoiceofserviceproviders

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• Toensurethatthequalityandquantityofthedemandedserviceisadequatelyprovidedforwithinanagreedtimeframe.

• Toimprovecommunitydrivendecisionsonagricultureextensioninterventions

• To strengthen development of the local institutions and build supportive linkagebetweenintuitions

• To encourage CDCs to support agricultural initiatives and assist in the process ofidentificationandprioritizationofproblemsandformationoffarmersgroups

• Tomaintaincollaborationbetweenstakeholdersoncommunities’requirements

169. It is assumed that CDCs will be in a position to ensure information on a variety ofprojects linked to development is openly available to CDC members. This will entailmaintaining linkages with farmers’ groups, cooperatives and farmers association inordertodevelopanintegrateddevelopmentplanbasedontheagriculturalpotentialofatargetvillagewiththeassistanceofDAILstaff.Inaddition,CCDsandCDCswillsupportthe formation of agricultural interest groups, support MAIL extension workers asmobilisersforgroupformationandsharetheirexperiencestoencourageestablishmentofFarmerGroups.

10 MonitoringandEvaluation170. RestructuringoftheM&EDirectorateandperiodicevaluationsandimpactassessments

arecriticaltocreatingacultureoflearningandresponsibility;inordertoprovideinputsfor policy review and program design in order to contribute to (i) tracing deliveryprogressagainstthebroaderstrategicframework;and(ii)developingacentralresourceforaconsolidatedandverified data. Integrationofkey functionssuchas informationgatheringanditsanalysis(GISandStatisticaldepartment)conveyingofinformationanddata (MIS)have tobe reorganizedandmadeavailable to the farmer through the IASCand the FRCs. Such a task will require that GIS and the Statistics departments to bemergedatMAILandsomestaffassignedtobothPAILsandDAILs.MISwillhaveakeyroleincreatingnewplatformsforcommunicationofinformationwithintheproposed5provinces anddistricts including their ability to communicatewithMAILoffices.OvertimeMISwillusenewinnovativepictorialtechnologiesthatcancommunicateanarrayofimportantinformationtofarmersincludingmulti-media.

171. Evaluation will become a separate independent department directly reporting to theMinister. During the pilot provinces reform, a total of two mid-term evaluations areplannedanda final evaluationwill takeplace.Emphasiswill beon lessons learnt andadaptiverecommendationsbothatpolicyandstructural levels. Informationused fromthemid-term evaluationswill be used tomake necessary adjustments to the conceptwith a view of eventually adapting the feasibility of such an approach across theremaining29provinces.

172. Duringthepilot,phaseanewmethodologywillbedevelopedandtestedtoensurethatplanning becomes the premier instrument for accountability and rationalization ofneeds as compiled at the lowest levels (the farm and district) including the IASCs.MonitoringandEvaluationdepartmentswillberevampedtoreflecttwodistincttasks:Monitoring will be informed by plans and frameworks that will be prepared at thebeginningoftheplanningcycleattheIASCsinthedistricts.Monitoringteamsunlikethecurrent practice will be based at both the provincial and district levels. Project andprogramstaffwillworkcloselywithmonitoringteamstoensuretimelyimplementation

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of plans are commensurate with quality outputs and expenditures. Discrepanciesrecorded and adjustments including remedial actions must be timely to ensure thattargetsaremetandcontributetooutcomes.MonitoringattheprovinciallevelwillfocusexclusivelyattheroleandefficacyoftheknowledgecentersandtheFRCs.Themannerand speed in which FRCs communicate technical knowledge to the IASCs will theprincipalfocusofthemonitors.

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