"CAADP: A Model for Development Policy and Partnership in Africa", prepared by Dr. Ousmane Badiane for the CAADP Donors and Partners Meeting, Sept. 6-9, 2009.

1. The Comprehensive Africa Agriculture Development Programme:
A Model for Development Policy and Partnership Renewal in Africa
DRAFT
September 2009
Ousmane Badiane
Director for Africa
International Food Policy Research Institute
Washington, D.C.
Editorial assistance provided by Julia Ross. Please send comments to o.badiane@cgiar.org.

2. Acronyms
APF Africa Partnership Forum
APRM African Peer Review Mechanism
AU African Union
CAADP Comprehensive Africa Agriculture Development Program
CGIAR Consultative Group on International Agricultural Research
COMESA Common Market of Eastern and Southern Africa
DFID Department for International Development (UK)
EC European Commission
ECCAS Economic Community of Central African States
ECOWAS Economic Community of West African States
EU European Union
FAO Food and Agriculture Organization (U.N.)
FARA Forum for Agricultural Research in Africa
FIMA Framework for the Improvement of Rural Infrastructure and Trade-
Related Capacities for Market Access
G-8 Group of Eight
GDP gross domestic product
GTZ German Technical Cooperation
IDG International Development Goal
IFPRI International Food Policy Research Institute
IMF International Monetary Fund
MAP Millennium Partnership for the African Recovery Progamme

3. MDG Millennium Development Goal
NAI New African Initiative
NEPAD New Partnership for Africa’s Development
NERICA New Rice for Africa
OAU Organization for African Unity
OECD Organization for Economic Cooperation and Development
REC regional economic community
ReSAKSS Regional Strategic Analysis and Knowledge Support System
RIP regional implementation planning
SADC Southern African Development Community
SIDA Swedish International Development Cooperation Agency
UMA Arab Maghreb Union
UN United Nations
US United States
USAID U.S. Agency for International Development
WHO World Health Organization
WTO World Trade Organization

4. Table of Contents
1. The NEPAD Initiative and the Origins of CAADP
2. The Comprehensive Africa Agriculture Development Program (CAADP)
3. CAADP: From Strategy to Implementation
4. CAADP Coordination, Guidance and Dialogue
5. Challenges and Successes
6. Lessons Learned from the CAADP Process

5. THE NEPAD INITIATIVE AND THE ORIGINS OF CAADP
The New Partnership for Africa’s Development (NEPAD) is a comprehensive vision and
strategic framework for development policy and partnership renewal in Africa. Conceived and
established by African leaders in 2001, NEPAD aims to eradicate poverty in Africa, place
African countries on a path of sustainable growth and development, halt the marginalization of
Africa in the context of globalization, and accelerate the empowerment of women. It is a
partnership based on common interests, obligations and commitments from leaders across the
continent who wish to reverse decades of underdevelopment and forge a new model for how
Africa interacts with the international community.
The NEPAD framework sets forth a long-term vision for African-owned and African-led
development, guided by the following two overarching goals: a)achieve and sustain an average
gross domestic product (GDP) growth rate of over 7 percent per annum for the next 15 years;
and b) ensure that the continent achieves all agreed International or Millennium Development
Goals (IDGs).
NEPAD’s strategy is based on two overarching initiatives, cited as critical preconditions to
sustainable development. The first is the Peace and Security Initiative, which promotes long-
term conditions for development and security; and builds capacity within Africa for early warning
of conflicts as well as capacity to prevent, manage and resolve conflicts. The second is the
Democracy and Political Governance Initiative, which seeks commitments from NEPAD
member countries to create or consolidate basic governance processes and practices, and
encourages member countries to take the lead in supporting activities that foster good
governance.
In addition, the NEPAD framework sets forth six sectoral priorities for investment in regional and
country programs. These are: infrastructure, human resources, agriculture, environment,
culture, and science and technology. In the area of agriculture, the framework notes that, while
the majority of Africans live in rural areas, the continent’s agrarian systems are weak and
unproductive. It calls for African leaders to strengthen these systems to achieve food security
and spur economic development. Historically, international donors have paid little attention to
agricultural sector and rural development in Africa-- a trend that NEPAD seeks to reverse.
AGRICULTURE IN THE BROADER NEPAD AGENDA
Linking Democracy and Governance to Agriculture
The NEPAD framework is based on the idea that its main priorities for action-- promoting peace
and security; democracy and political governance; and economic growth--will create new
mechanisms and expectations for accountability and governance at national, regional and
continental levels. Such new standards, in turn, fuel progress in specific sectors, including
health, agriculture, the environment, culture, science and technology, and market access. In
practice, this process occurs through voluntary governance agreements whereby countries
accede to the APRM.
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6. Coming at the end of decade-long and courageous sectoral and economy-wide policy reforms
to remove distortions and restore macroeconomic balance among African economies, NEPAD’s
emphasis on capacity building for democracy, governance and economic growth has an
especially positive influence in the agricultural sector. It calls for the strengthening of the
regulatory framework for agriculture, creation of stronger links with agribusiness and farmers
groups, and increased attention from international development partners to the sector, who now
have renewed confidence in investing in African agricultural development. This new
environment has enabled NEPAD as an initiative to achieve concrete success in the agricultural
sector in just a few years, creating a viable new model for managing development in Africa.
NEPAD’s Vision for Agricultural Growth in Africa
The strong economic and agricultural sector performance of the last 10 years notwithstanding,
African countries continue to face serious challenges in terms of agricultural and economic
growth, poverty reduction, and food and nutrition security. Yet most African governments spend
less than 3 percent of the national budget on agriculture, despite the fact that agriculture
accounts for 70 percent of the African labor force and a large share of gross domestic product
as well as country foreign exchange earnings, in addition to constituting a major contributor to
growth in the remaining sectors of the economy.
The NEPAD framework seeks to tackle the above challenges by addressing the root causes
behind Africa’s agricultural decline and stagnation during the 1970s and 1980s, in particular,
which is still haunting many countries. It sets forth a vision of agriculture-led development in
Africa that eliminates hunger and reduces food insecurity, enabling the expansion of exports
and putting the continent on a more vigorous path for economic growth. Under the framework,
specific goals for the agriculture sector include attaining food security, improving market access
for agricultural products, creating dynamic regional and national agricultural markets, helping
Africa become a net exporter of agricultural goods, and improving the productivity of agriculture.
This vision and the actions to achieve it are articulated in details in the Comprehensive Africa
Agriculture Development Program.
THECOMPREHENSIVE AFRICA AGRICULTURE DEVELOPMENT PROGRAM (CAADP)
Acting on strong interest among AU countries to put agriculture at the forefront of the
development agenda in Africa, the NEPAD secretariat in 2002 began consulting with the U.N.
Food and Agriculture Organization (FAO) to develop a continent-wide strategy for agricultural
growth, titled the Comprehensive Africa Agriculture Development Program (CAADP). After
consultations with the African Ministers of Agriculture, Regional Economic Communities (RECs),
African Development Bank and sub-regional banks, World Bank, and United Nations Economic
Commission for Africa, an initial strategy for CAADP was developed, based on four pillars for
investment in agricultural development.
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7. CAADP’s Four Pillars
The original objectives of CAADP’s four technical pillars are described below.
1. Extending the area under sustainable land management and reliable water control systems.
Pillar 1 objectives are to: 1) revert fertility loss and resource degradation, and ensure broad-
based and rapid adoption of sustainable land and forestry management practices in the small-
holder as well as commercial sectors; and 2) improve management of water resources while
expanding access to both small- and large-scale irrigation.
2. Improving rural infrastructure and trade-related capacities for market access. Pillar 2
objectives are to: 1) accelerate growth in the agricultural sector by raising the capacities of
private entrepreneurs, including commercial and small-holder farmers, to meet the increasingly
complex quality and logistical requirements of markets (domestic, regional and international)
focusing on selected agricultural commodities that offer the potential to raise rural (on- and off-
farm) incomes; and 2) create the required regulatory and policy framework that would facilitate
the emergence of regional economic spaces that would spur the expansion of regional trade
and cross-country investments.
3. Increasing food supply and reducing hunger. Pillar 3 objectives are to: 1) establish at the
national level, well-managed and regionally coordinated food reserves and early warning
systems that would allow African countries to respond in a timely and cost-effective manner to
food emergency crises; 2) reduce malnutrition in school-going children, through diet
supplementation with a complete meal that is adequate in carbohydrates, fat, protein, vitamins
and minerals, and to expand local demand and stimulate production by smallholder farmers; 3)
develop an African Nutrition Initiative to meet countries’ broader nutritional challenges in a way
that takes account of the complex and multisectoral nature of the problem and possible
solutions.
4. Expand agricultural research, and technology dissemination and adoption. Pillar 4 objectives
are to: 1) achieve a sustained flow of technologies suitable to the African context and
adequately meet the challenges of African agriculture through national agricultural technology
systems that are responsive to constraints and opportunities facing farmers; 2) mobilize the
large potential of cassava to contribute to food security and income generation among African
countries; 3) contribute to food security and poverty reduction, and ensure sustainable resource
management, in the rice sector of ten Eastern, Central and Southern African countries through
broad-based access to high-yielding New Rice for Africa (NERICA) rice lines, other improved
varieties, and accompanying technologies; and 4) safeguard the future contribution of Africa’s
fish sector to poverty alleviation and regional economic development, in particular through a)
improved management of natural fish stocks; b) development of aquaculture production; and c)
expansion of fish marketing and trade.
More broadly, the main research themes under Pillar 4 include: integrated natural resources
management; germplasm management, productivity and resistance; competitive markets and
supply chains; and policies for sustainable agricultural growth.
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8. Cross-cutting Areas: The CAADP framework also addresses three clusters of critical issues that
cut across the four CAADP pillars. These are: academic and professional training to upgrade
skills in the agricultural sector; information and knowledge systems to support sector strategy
and policy formulation and implementation; and alignment of country Poverty Reduction
Strategy Papers with CAADP priorities and objectives.
Companion Document: The original CAADP document deal not deal in details with livestock,
forestry, and fisheries. This was corrected in a companion document which focuses primarily on
these three sub-sectors.
Pillar Framework Documents: In the course of rolling out the CAADP agenda and the ensuing
consultation, selected leading African institutions were mandated to further the technical
preparation of the pillar agendas. This led to the elaboration of the pillar framework documents,
discussed later in the report, including a refinement of the above original objectives.
CAADP and the Millennium Development Goals
In September 2000, world leaders came together at the United Nations headquarters in New York to
sign the United Nations Millennium Declaration, a statement committing their nations to a new global
partnership to reduce extreme poverty by reaching a set of time-bound targets by 2015. The
resulting eight Millennium Development Goals (MDGs) address reduction of poverty and hunger;
universal education; gender equality; child health; maternal health; HIV/AIDS; environmental
sustainability; and global partnership.
The MDGs related to reducing poverty and hunger, and ensuring environmental sustainability, serve
as critical guideposts for CAADP activities. RECs and NEPAD member countries are expected to
design and implement CAADP plans with the MDGs in mind, and all CAADP investments should
contribute to achievement of the MDGs.
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9. CAADP: FROM STRATEGY TO IMPLEMENTATION
In June 2002, the African Ministers of Agriculture reviewed and endorsed NEPAD’s strategy for
CAADP at a meeting in Rome. The strategy was launched formally by the AU Heads of State
about a year later in Maputo. Subsequent consultation with RECs and NEPAD member
countries on the implementation of the strategy brought some fundamental changes. The initial
strategy offered an already-defined, detailed set of CAADP project activities which did not lend
themselves easily to decentralized, bottom up implementation. REC and country leaders ended
up deciding for a decentralized approach that would allow them to identify and tailor country
CAADP activities to their own needs and circumstances, thus improving CAADP’s chances of
success at the local level. Responding to this input, the NEPAD secretariat decided in 2004 to
pursue a new, internally formulated “roadmap”1 for CAADP implementation. The roadmap
empowered the RECs and countries to lead the CAADP process, but retained the four CAADP
technical pillars and objectives defined in the earlier strategy.
A. Principles for CAADP Implementation
In developing a roadmap for CAADP implementation, the NEPAD secretariat and relevant
stakeholders agreed to follow a key set of guiding principles.
Constituency building would be a priority, to engage civil society in setting objectives and priority
programs, and obtain input and ensure partnership with the private sector, in addition to efforts
to inform and involve other national government ministries early in the CAADP implementation
process.
Open consultation would guide every level of the implementation process, including with the AU,
RECs, national governments, and sector stakeholders including farming communities.
Investment priority setting would create an analytical base for informed choice of project
investments, provide balance between systemic and project interventions, and integrate CAADP
programs into developmental budgets.
Finally, a vigorous strategy for resource mobilization would help national governments reach the
goal of a 10 percent national budget share for agriculture--agreed to under the 2003 AU Maputo
Declaration on Agriculture and Food Security--and would build sufficient capacity within the
NEPAD secretariat, RECs, member countries, and CAADP- affiliated technical institutions to roll
out and scale up CAADP effectively.
1
Implementing the Comprehensive Africa Agriculture Development Programme and Restoring Food Security in
Africa: “The Roadmap”, NEPAD Secretariat, July 2004.
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10. What Makes CAADP Different?
CAADP represents an effort by African governments to fully reclaim the continent’s agricultural
growth and development agenda, and to engage in open and frank dialogue as part of a broader
effort to renew development partnerships in Africa. Since its inception, CAADP has evolved into a
credible platform for collaboration, partnerships, and alliance building to create space for African
countries to determine their own agricultural agenda, and for development agencies to align their
assistance in support of this agenda.
CAADP is a systematic effort to implement a continent-wide, agricultural-led growth strategy and
bring African national strategies for agriculture in line with a shared set of growth and budgetary
targets. Unlike previous continental development strategies such as the Lagos Plan of the 1980s,
CAADP is inward-looking, with strong focus on accountability, peer review, and dialogue, in line with
the broader NEPAD principles. Internal mechanisms to ensure good governance, peer review and
open dialogue represent a new way of conducting business for African national governments, civil
society, development partners, and all stakeholders working to grow Africa’s agricultural sector.
CAADP improves agricultural policies and strategies at the country level by facilitating a transition to
evidence-based planning and implementation. It has created a strong foundation for effective
partnerships and alliances, and inclusive dialogue among all participating NEPAD member countries
striving to build stronger agricultural sectors.
B. The CAADP Roadmap
The introduction of the CAADP roadmap, adopted at the meeting of the African Partnership
Forum (APF) in October 2004, proved to be a turning point in moving CAADP implementation
forward2. It defined a new, framework-oriented approach-- as opposed to the initial, program-
oriented approach --to empower RECs and country governments to define their own priorities in
line with regional and national policy and strategy goals for the sector.
The CAADP roadmap laid out a specific plan for implementation, clearly defining roles for the
NEPAD Secretariat, as a facilitator and mobilizer of resources and technical expertise; the
RECs and member countries, as primary implementers; and the Africa Partnership Forum (APF)
and later the CAADP Partnership Platform, as a mechanism through which implementing
partners would meet every six months to consult on implementation progress and barriers.
The roadmap outlined a four-step process to help RECs and member countries prepare CAADP
investment projects and allow development partners to plan for long-term financial support of
2
The APF was established in November 2003 to strengthen partnership efforts and monitor issues, strategies and
priorities for Africa’s development, particularly between the G-8 nations and the AU/NEPAD. APF’s mechanism for
twice-yearly CAADP meetings later evolved into the CAADP Partnership Platform.
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11. projects. The four steps included: 1) specification of actionable programs and initiatives based
on the CAADP pillars; 2) definition of a strategy to mobilize a limited number of lead financial
partners for each of the programs and initiatives; 3) identification of major centers of expertise,
international as well as regional and national, as lead technical partners; and 4) organization of
a series of regional implementation planning (RIP) meetings to agree on rules and procedures
for country and regional-level project preparation, in-country resource mobilization, access to
funding by development partners, coordination and governance, and project performance
review.
Major steps in implementing the roadmap would include building credibility among the
development community; instilling a sense of ownership over CAADP among the RECs;
developing a mechanism for peer review, mutual learning and benchmarking; and identifying
lead technical institutions to provide the necessary strategic guidance.
C. Establishing CAADP’s credibility within the development community
The launch of CAADP represented significant change from previous strategic initiatives for
African development. CAADP did not have much in common with historical efforts such as the
Lagos Plan of Action, which was conceived as a reaction to development strategies proposed
by external partners and financial institutions aligned under and leading to the structural
adjustment programs of the 1980s. Instead, CAADP, as an African-owned and -led initiative,
demanded accountability and progress from Africans themselves.
At first, both NEPAD and CAADP were greeted with skepticism from the international
development community. There was doubt that African stakeholders were really serious abou
the bold commitments put forward by the NEPAD initiative. Furthermore, the initially heavy
programmatic and operational approach to CAADP raised, in particular, a lot of questions.
Moreover, the the process being proposed was new to many African stakeholders who were
accustomed to reacting to strategies proposed by external partners, and taking an advisory and
consultative role at best. CAADP offered a clear alternative and a reversal: for the first time,
African stakeholders defined the agenda and strategy and international community was cast in
the advisory and consultative role. Establishing buy-in from bilateral and multilateral partners
was not only critical to secure financial and political support for implementation, but protected
CAADP from the threat of externally driven agendas. It also facilitates country level coordination
among local development agencies and lay the groundwork for focused interventions on the
ground.
The process of securing support for CAADP from international development partners evolved
over a several years, marked by a number of key milestones, described below.
i) NEPAD Missions to Partner Agencies: From mid-2004 to early 2005, the NEPAD Secretariat
sent high-level delegations to meet with a number of prospective international partner
agencies to explore a scope for collaboration to support CAADP implementation, based on
the roadmap. The objective of these meetings was to brief partners on the CAADP roadmap
and propose specific technical initiatives that each partner might lead. Several partners
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12. agreed to provide technical assistance in preparing concept notes for a series of RIP
meetings planned for January through April 2005, and in analyzing and evaluating ongoing
CAADP activities.
ii) The APF Meeting of October 2004: Another important step forward for CAADP came in
October 2004, when the APF endorsed the roadmap at a meeting held in Washington, D.C.
The forum’s backing created critical momentum for the initiative and helped NEPAD “sell” its
strategy of giving implementing authority to the RECs and countries as it made the rounds to
meet with development partners.
iii) The Accra Summit: A May 2005 CAADP summit in Accra, Ghana, was also pivotal. The
meeting brought together bilateral and multilateral agencies with representatives from the
RECs and member countries, to identify priority investment programs, agree on basic
coordination and governance principles for CAADP, and explore necessary partnerships to
speed implementation. Signaling a strong interest in CAADP, development partners sent a
number of high-level participants to the summit.
iv) Alignment of Development Partner Strategies: In follow up to the Accra Meeting, a growing
number of development partners started embracing the CAADP framework and started
aligning their programs and strategies with the CAADP agenda. Examples includes the US
Presidential Initiative to Eliminate Hunger in Africa; the European Commission’s Advancing
African Agriculture Paper; efforts by the World Bank to link its operations to the CAADP
Pillars; the active engagement by UK’s Department for International Development at the
sectoral level after years of focus on support at the overall economy level and on rural
livelihoods in general; and re-engagement in agriculture by the Swedish International
Development Agency after a near two decade long absence from the sector.
v) Donor Engagement: Building Momentum. In the first few years of CAADP implementation,
NEPAD engaged intensely with donors to build support for the program. As a result of
successful NEPAD and AU lobbying, the G-8 nations regularly issued statements endorsing
CAADP at their meetings since Kananaskis, Alberta, Canada (2002); Sea Island, Georgia,
United States (2004); Gleneagles, Scotland (2005); and St. Petersburg, Russia (2006), all
the way to L’Acquila, Italy (2009). These statements lent legitimacy to CAADP’s approach by
fully aligning CAADP with the G-8 development agenda for Africa.
With the G-8’s support secured, NEPAD was in a much stronger position to engage with
individual bilateral and multilateral donors-- specifically, DFID, USAID, SIDA, the World Bank
and the EU-- to seek support for CAADP. In 2004 and 2005, NEPAD held a series of
meetings with prospective donors and drafted a number of aide-memoires to articulate roles
and programs for which donor leadership was sought. These documents served as the
basis for future donor agreements.
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13. CAADP Donor Coordination Mechanisms
CAADP’s development partners coordinate their support for CAADP through two primary
mechanisms: the World Bank Multi-Donor Trust Fund, which coordinates global donor funding, and
the Global Donor Platform for Rural Development, which coordinates program approaches. They are
described below.
World Bank Multi-Donor Trust Fund
The World Bank established the Multi-Donor Trust Fund for CAADP in 2008, to provide up to $65
million in support to the program over 5 years. In the World Bank’s view, African institutions needed
an easily accessible, flexible, long-term funding mechanism as a follow-on to the DFID, USAID, and
SIDA agreements, which expire in 2009.
The Trust Fund was conceived as a transitional mechanism to strengthen the institutional capacities
of the key actors in CAADP implementation, empowering them to become true facilitators of the
process. It has three objectives: 1) to support implementation and development of CAADP processes
(especially the CAADP Partnership Platform, and country and regional roundtables) and the
institutions leading these processed (especially NEPAD and the RECs); 2) to support development,
implementation and monitoring and evaluation of CAADP pillar programs and the institutions
responsible for them; and 3) to support the management of the Trust Fund and harmonization of
activities of development partners in support of CAADP.
As of May 2009, donors to the Trust Fund included USAID, the Netherlands and the EC.
Global Donor Platform for Rural Development
The Global Donor Platform for Rural Development, based in Bonn, Germany, is a forum of about 30
international donors and implementing agencies that increases effectiveness and facilitates
harmonization of donor support for rural development. It also acts as a global donor focal point for
CAADP. Through regular meetings of CAADP development partners--including DFID, USAID, SIDA,
the EU and IFPRI--it coordinates donor activities and alignment to African countries’ strategies for
CAADP, with the goal of improving foreign aid effectiveness related to African agriculture. The
Platform works with the NEPAD secretariat to set the agenda and provide input for twice-yearly
CAADP Partnership Platform meetings.
D. Establishing leadership and ownership of the RECs
After the APF endorsed the CAADP roadmap in October 2004, the NEPAD secretariat was
ready to take CAADP to the implementation stage, beginning with the RECs. Among the four
action steps outlined in the roadmap, holding a series of CAADP RIP meetings was of imminent
concern. The meetings would ensure empowerment and establish ownership over CAADP at
the regional and country levels. Bringing the RECs fully into the CAADP process would take
more than two years. Key milestones in establishing REC capacity and ownership are described
below.
1. Program Implementation Concept Notes: In preparation for the RIP meetings, the NEPAD
Secretariat commissioned a series of program implementation concept notes to advise
9

14. meeting participants on relevant challenges and success factors within specific technical
areas. These areas included: land management; water management and irrigation;
agribusiness, supply chain and quality control; nutrition; and academic and professional
training in the agricultural sector. The notes highlighted for each pillar area, key challenges
facing African countries, successful approaches to dealing with the them, and lessons for
the CAADP agenda. The notes delineated the main development policy and strategic issues
in the implementation of CAADP and recommended specific actions to be taken by NEPAD
member countries.
2. Regional Implementation Planning (RIP) Meetings: The meetings were held from January
through May 2005 and hosted by the 5 leading RECs: COMESA, SADC, ECOWAS, UMA
and ECCAS. The main tasks of these meetings were to: 1) review issues, lessons and
experiences presented in the program implementation concept notes; 2) agree on best
practices in defining investment programs; 3) identify knowledge and operational gaps; 4)
draft terms of reference and establish a work program to fill these gaps, and revise the
concept notes to produce a final implementation document within three months to guide
investment project preparation and financial assistance planning; and 5) define a
governance structure for each region to ensure effective coordination of programs and
tracking of progress.
More than 150 delegates attended each RIP meeting. They included permanent
secretaries/directors general of the Ministries of Agriculture and Finance; representatives of
farmer organizations and agribusiness organizations; representatives from major banks;
REC representatives; representatives of bilateral and multilateral agencies, including the G-
8 nations; and representatives of the Consultative Group on International Agricultural
Research (CGIAR) and other technical partners. Several key principles for CAADP
implementation emerged from the RIP meetings.
i) First, participants agreed that the RECs would be the drivers of program
implementation, working in partnership with national and regional partners;
ii) Second, it was agreed that the NEPAD secretariat would play a facilitative role in
policy dialogue, advocacy, and fundraising, in addition to monitoring the 10 percent
budget commitments by NEPAD member countries;
iii) Thirdly, development partners agreed to identify lead technical partners for each of
the four CAADP technical pillars, working through the APF. Lastly, meeting
participants recognized that civil society and the private sector had valuable
expertise to offer the CAADP process, and welcomed them to participate in an
advisory role.
The RIP meetings were critical in creating a broad consensus on the strategic direction of
the CAADP implementation process, and a sense of readiness among RECs and countries
to move the process forward. Key outcomes included: 1) endorsement and commitment to
agreed-on rules and procedures by RECs and countries to implement individual CAADP
10

15. programs; 2) commitment by development partners to provide long-term financial assistance
required to implement CAADP; and 3) identification of an initial set of early action projects to
be launched immediately in each region.
3. Pretoria and London Meetings: In October 2005 and February 2006, the NEPAD secretariat
convened two meetings, in Pretoria, South Africa, and London, respectively, where African
stakeholders met with international development partners to decide on next steps to
empower the RECs to move implementation forward. In Pretoria, development partners
agreed, in principle, to support the RECs as key facilitators for CAADP at the country level.
In response, NEPAD developed a country-level implementation concept note to guide
objectives and expected outcomes for the CAADP implementation process at the country
level, including the organization of country roundtables, as described below. Reaching
consensus on what shape the CAADP process would take at country level was a major step
forward.
At the conclusion of the London meeting, DFID, USAID, SIDA, the World Bank and the EC
decided to commit both technical and financial support to the RECs. To streamline the
process, the International Food Policy Research Institute (IFPRI), which was already
advising the NEPAD Secretariat, was asked to manage the grant funds and provide
technical assistance to the RECs and their member states in planning implementation.
Participants also refined priority areas under CAADP’s four technical pillars and identified
potential lead technical partners, the future leap pillar institutions, to provide strategic
guidance for each pillar.
4. Technical Assistance by the International Food Policy Research Institute (IFPRI): In 2006,
DFID, USAID, and SIDA each agreed to provide three-year funding for CAADP
implementation by regional and country stakeholders through IFPRI. Under separate
agreements with each donor, IFPRI provides technical assistance to the NEPAD Secretariat,
capacity building assistance to the RECs, and assistance to establish and operate the
Regional Strategy and Knowledge Support Systems (ReSAKSS).
5. IFPRI Agreements with Regional Economic Communities: In late 2006/early 2007, IFPRI
signed agreements with ECOWAS and COMESA to inform and track the CAADP
implementation process3. Under the agreements, the RECs accepted the following roles and
responsibilities: 1) recruit experts to design a regional compact containing detailed and
implementable investment frameworks for priority technical areas; and 2) initiate a demand-
driven process through country roundtables leading to the adoption of country compacts,
detailing commitments and agreements related to agricultural sector policy budgetary
3
No agreements were signed with other three RECs who had held RIP meetings, for the following reasons. Because
they shared many of the same countries, SADC and COMESA agreed that all SADC countries would fall under the
COMESA umbrella for CAADP implementation. The engagement between the NEPAD Secretariat and ECCAS or
UMA did not reached a level that would allow for the technical assistance to be delivered.
11

16. expenditures, technical and financial assistance, and peer review and dialogue to enable
countries to achieve the key CAADP targets of a 6 percent annual agricultural growth rate
and 10 percent national budget share for agriculture.
By early 2007, COMESA and ECOWAS had taken full ownership of the CAADP process at
the highest level, signaled by participation of their Secretaries-General and/or
Commissioners at key regional and country events related to CAADP. Active engagement
of the first set of member countries identified by the RECs had raised CAADP’s profile
considerably, and the CAADP country roundtable process was well under way.
Selected Key Milestones in CAADP Implementation
October 2001: NEPAD established.
May 2002: CAADP consultation commences with key stakeholders in Africa.
June 2002: African Ministers of Agriculture endorse initial CAADP strategy in Rome.
December 2002: African RECs review CAADP and early action plan.
July 2003: African Union summit endorses CAADP and adopts the Maputo Declaration on Agriculture
and Food Security, which includes a goal of 10 percent budget share for agriculture among all AU
countries.
October 2004: APF endorses the NEPAD-developed CAADP roadmap in Washington, DC.
January-May 2005: Five planning meetings held with RECs across Africa to establish ownership of
CAADP at country and regional levels.
May 2005: Summit held in Accra, Ghana. African heads of state commit resources and leadership to
support CAADP implementation.
October 2005: Retreat in Pretoria, South Africa, brings together RECs, bilateral and multilateral
development partners to agree on next steps. Partners agree, in principle, to support RECs. First set
of CAADP countries identified. Stakeholders agree to hold twice-yearly meetings to facilitate
reporting, coordination and cross-learning-- a mechanism that later becomes the CAADP Partnership
Platform.
February 2006: NEPAD reaches agreement with COMESA and ECOWAS to lead CAADP. At a
retreat in London, development partners commit to financial and technical support to RECs, funneled
through IFPRI.
September 2006: Organization of the first CAADP Partnership meeting in Pretoria
March 2007: Piloting of the CAADP roundtable process and signing of the first CAADP compact in
Rwanda
March 2008: Launching of the ReSAKSS website to inform and track CAADP implementation and
facilitate peer review, benchmarking, and mutual learning.
12

17. E. Implementing CAADP at country-level
Figuring out how to translate a continent-wide framework to concrete activities at the country
level, and add value to existing country efforts without creating a parallel process, was a major
challenge for NEPAD and CAADP stakeholders. In soliciting country support for CAADP,
NEPAD and the RECs emphasized that the initiative does not create a new process but
strengthens national efforts where needed. The country-level process takes stock of whether a
country is on track to meet its own goals, while also supporting the MDGs and CAADP growth,
budgetary, food and nutrition security objectives.
Country-level implementation is based on the idea that countries can fill an “empty shell”--i.e.,
the CAADP framework-- with activities as they see fit, while adhering to CAADP’s overall
principles and targets. Particular emphasis is placed on reaching a 6 percent annual growth rate
in the agricultural sector and a 10 percent national budget share for agriculture.
Country Roundtable Process
The CAADP country process is initiated on a demand-driven basis, through open consultation
between RECs and their member countries. It is led by national governments and other local
stakeholders, with support from the RECs and the NEPAD. The process is made up of three
components, described below (see figure, Country CAADP Cycle).
1. Stock-taking and growth options analysis to align national efforts: The centerpiece of this
component is the organization of country CAADP roundtables to review ongoing and national
efforts and elaborate, if necessary, policy, strategy and investment efforts to align these efforts
with the MDGs and CAADP principles and targets. The analysis includes a series of simulation
studies, facilitated by IFPRI or other regional technical experts, to look at alternative strategies
to achieve the 6 percent agricultural sector growth rate and the poverty MDG by 2015. As an
outcome of these discussions, countries produce technical papers that analyze different
scenarios for meeting internal and external targets for economic growth, poverty reduction and
food security.
2. Building partnerships and alliances to accelerate progress: The goal of this component is to
develop partnerships at country level to accelerate delivery on principles and targets within
national policy and investment processes and meet the necessary policy, budgetary, and
development assistance needs of CAADP. These might include public-private partnerships,
business-to-business alliances, coordinating bodies for development assistance, and
institutional mechanisms for policy dialogue, program progress and performance review.
3. Tracking budgets and expenditures: Reaching a 6 percent annual sector growth rate and a 10
percent national budget share for agriculture requires adoption and use of public expenditure
reporting systems that allow detailed allocation, reporting and tracking of expenditures in
agriculture. The country-level process therefore includes measures to improve budget
classification, execution, and reporting systems to ensure reliable tracking of the level and
efficiency of public sector investments.
13

18. Country Roundtable Tasks and Outcomes
At the October 2005 retreat in Pretoria, South Africa, NEPAD, the RECs and development
partners agreed on a set of main tasks for the country roundtables, including: 1) to take stock
and review how national policy and investment processes are tackling key country-level
constraints to achieving the 6 percent growth rate; 2) to identify policy and investment gaps for
CAADP implementation; 3) to devise action plans to bridge these gaps; 4) to reach agreement
on budget, external resource requirements and institutional arrangements to implement CAADP
activities; 5) to adopt country-level mechanisms for effective coordination and review of
implementation progress and performance.
The Pretoria meeting also agreed on three types of expected outcomes from the country
roundtables:
1. Country Progress and Performance Assessment. The stock-taking process provides a
picture of the extent to which a country’s policies, strategies and investments are aligned and
conducive to meeting the 6 percent growth rate and 10 percent budget share targets. The
assessment should also indicate gaps in terms of sector policy, strategy, budgetary allocation,
assistance, and dialogue that need to be bridged to put the country on track to achieve these
targets.
2. Country CAADP Compact. The compact consists of a set of defined actions, commitments,
partnerships and alliances taken by national governments, the private sector, the farming
community and development partners to bridge the gaps identified in the stock-taking process.
The compact guides country policy and investment responses to meet the 6 percent and 10
percent goals; long-term planning of development assistance to support country efforts; and
public-private partnerships and business-to-business alliances to raise and sustain necessary
investments in agribusiness and farming. It is signed by the Ministers of Finance and
Agriculture, the AU Commission, RECs, development partners, and representatives of farmer
organizations and the private sector.
3. Dialogue and Mutual Review Mechanisms. Country dialogue and review mechanisms should
encourage improved policy and strategy planning and implementation, leading to greater
efficiency in provision of public goods and services; incorporate broad and inclusive
representation of stakeholder groups; use effective monitoring and evaluation procedures to
ensure high-quality reporting on performance and progress; and link to the regional level
dialogue and review process to facilitate cooperation, benchmarking and mutual learning.
Roles of Key Actors
The CAADP country roundtable process requires vision and commitment on the part of several
actors, who need to work complementarily.
National governments lead the country implementation process through a national committee or
working group, or other mechanism set up to ensure effective leadership and coordination for
CAADP. Although Ministries of Agriculture are expected to be heavily involved in the process,
14

19. involvement by other Ministries, including Finance, Trade and Industry, as well as the
agribusiness and farming communities, is considered critical to successful roundtable planning
and country compact implementation. A national committee or working group is charged with
planning the roundtable and coordinating participation of the RECs, NEPAD and development
partners. National committees also coordinate the dialogue and review process once a compact
is signed.
RECs and the NEPAD Secretariat coordinate and facilitate the CAADP implementation process
across countries. RECs set up regional coordination mechanisms and knowledge support
systems to facilitate cross-country cooperation, peer review and mutual learning. The NEPAD
Secretariat assists with policy dialogue, mutual review, and coordination of development
assistance.
RECs differ in their approach to coordinating CAADP country activity. ECOWAS, for example,
coordinates implementation in 15 countries through a director-general in the ministry in charge
of NEPAD or regional integration, while the ministry of agriculture is in charge of the technical
leadership. The region has assembled a comprehensive work plan, with clear division of labor
among technical agencies, and is on track to complete country-level design work by late 2009.
COMESA does not employ a similar comprehensive strategy. Instead, it coordinates its country
CAADP process on a bilateral basis, through a dedicated CAADP roundtable coordinator, who
works with country steering committees, which in turn appoint one person to liaise with
COMESA.
Development partners participate in the country roundtables and integrate relevant aspects of
the country compact into their in-country planning processes, and at headquarters level if
appropriate. Donors are expected to align their strategies for African agricultural assistance with
the CAADP framework and join partnerships and alliances established by the CAADP country
compacts.
Technical partners inform and guide the roundtable process to help country stakeholders
identify technical priorities. Such partners include universities, specialized agribusiness and
farmer organizations, sub-regional research organizations, the FAO and CGIAR research
centers.
Country Implementation Status
Rwanda was the first country to implement CAADP. A request from the country’s NEPAD Unit
in the President’s office of Rwanda to NEPAD around April 2006 asking for assistance in
developing the agricultural component of the country’s Poverty Reduction Strategy, officially
known as the Economic Development and Poverty Reduction Strategy (EDPRS), made Rwanda
an appropriate first candidate. The request came when the capacity issues at NEPAD and the
RECs were still being sorted out. The technical work was carried out between July and
December 2006 and the Rwandan government successfully organized its roundtable and
signed the first country CAADP compact in March 2007. With the conclusion of the process
leading to the signing of the compact in Rwanda, a model was now available to guide other
15

20. countries. However, RECs were just getting ready to put their teams together to engage with
member countries to methodically implement the roundtable process described above (see also
the CAADP roundtable cycle in the box below.
NEPAD tested the country roundtable process in Rwanda and applied lessons learned there to
other member countries currently working their way through the cycle. As of December 2008,
about a dozen other countries were nearing completion of a compact (see figure, Country
CAADP Status). Under COMESA, Zambia, Uganda, Malawi and Kenya had completed
stocktaking reports and simulation studies on agricultural growth and poverty reduction options.
Stocktaking studies were under way in Burundi, Djibouti, Swaziland and Madagascar. Under
ECOWAS, Ghana, Benin, Burkina Faso, Niger, Senegal and Togo had completed the
stocktaking, and growth and poverty simulation studies were under way in Ethiopia and Nigeria.
Mali, Sierra Leone and Liberia had initiated the analytical work.
The CAADP Round Table Cycle
REGULAR REFINEMENT REGULAR REFINEMENT
AND ADJUSTMENT AND ADJUSTMENT
GOV; DPs, PRIVATE
SECTOR, incl.
FARMERS
IMPLEMENT
GOV APPOINT
FOCAL POINTS
ROUND TABLE REC&GOV
SIGNING OF LAUNCH
COMPACT START
PROCESS
COUNTRY
STEERING &
TECHNICAL
DRAFTING COMMITTEE
OF COUNTRY
CAADP COMPACT
STOCK TAKE CABINET
GROWTH MEMO AND
INVESTMENT ENDORSMENT
Page 2 ANALYSIS
16

21. As of September 2009, three more countries have signed their compacts (Burundi, Ethiopia,
and Togo), the first batch among the above countries to do so. All other 14 member states of
ECOWAS are scheduled to sign theirs by the end of October. Uganda has scheduled its
roundtable meeting on October 29, 2009. If Kenya and Zambia sign their respective compacts
by the end of the year, the goal of 20 compacts will have been reached by the end of 2009 as
planned (See maps below).
CAADP COORDINATION, POLICY DIALOGUE AND STRATEGIC GUIDANCE
Because CAADP is a continent-wide program and includes partners at the international,
regional and national levels, coordinating all actors and activities around a common program
goal and vision is challenging. Several institutions have been built into CAADP to serve this
coordinating function, while also encouraging dialogue for cross-learning and providing technical
guidance for CAADP activities. Their roles are described below.
A. Role of the NEPAD Secretariat
Managed by a small staff based in South Africa, the NEPAD Secretariat constitutes one tier of
NEPAD’s three-tiered management structure, working in tandem with the African Heads of State
and Government Implementation Committee and the NEPAD Steering Committee. The
secretariat, which has now been fully integrated into the AU Commission, serves as the lead
coordinating body for all NEPAD technical programs, and thus is charged, in the agricultural
sector, with overseeing CAADP implementation. The secretariat does not directly implement
programs, but sets overall program strategy, promotes policy advocacy, mobilizes resources
and supports implementation through the RECs and NEPAD member countries.
As a continent-wide facilitator, NEPAD is uniquely positioned to: 1) use its political capital to
facilitate access by African countries to a substantially larger pool of development funding and
technical expertise than they could mobilize individually and separately; and 2) facilitate
benchmarking, mutual learning and exchange across countries to accelerate the spread and
adoption of successful development models and best practices.
The NEPAD secretariat coordinates CAADP through five strategic functions: 1) promoting
CAADP principles in implementation processes and investment programs, helping countries to
adapt CAADP principles, operationalize the technical pillar frameworks, and use the CAADP
roundtable processes; 2) managing communication and information to support CAADP
implementation and partnerships, for example through establishing a knowledge database and
executing public information campaigns; 3) facilitating and coordinating monitoring and
evaluation, including assessing impact and facilitating the sharing of lessons and peer review; 4)
building partnerships to link resources with agricultural investment programs; and 5) harnessing
key thinking and experience on emerging national and international issues related to agriculture,
to articulate African perspectives and contribute to the evolution of the CAADP agenda.
17

22. CAADP IMPLEMENTATION PROGRESS: JULY 2009
Tunisia
Morocco
Algeria
Libya Egypt
W. Sahara
Mauritania
Cape Verde Mali Niger
Chad Eritrea
Senegal Sudan
G. Bissau Burkina Faso Djibouti
Guinea Benin Nigeria Somalia
S. LeoneC. IvoireGhana Ethiopia
Liberia Togo CameroonC. Africa Rep.
Eq. Guinea Uganda
S. Tome and PrincipeGabonCongo Kenya
Implementation status
IMPLEMENTATION STATUS Congo (DRC)Burundi
Seychelles
Not officially launched Tanzania Seychelles
Not officially launched
Seychelles
Officially launched
Officially launched Comoros
Angola Malawi
Cabinet Memo
Cabinet memo and endorsement Zambia
Technical Analysis
Stocktaking and growth options Mozambique
Namibia Zimbabwe Madagascar
Compact Drafting
Drafting of country CAADP compact
Botswana
RT Preparation
Preparing for RT and compact signing
Swaziland
Implementation
Implementation Implementation status for:
South AfricaLesotho
Cape Verde: Focal point appointed
S. Tome and Principles: Not officially launched
Comoros: Stocktaking in progress
Mauritius: Focal point appointed
Seychelles: Stocktaking in progress
CAADP IMPLEMENTATION PROGRESS: SEPTEMBER 2009
Tunisia
Morocco
Algeria
Libya Egypt
W. Sahara
Mauritania
Cape Verde Mali Niger
Chad Eritrea
Senegal Sudan Implementation status for:
G. Bissau Burkina Faso Djibouti
Guinea Benin Nigeria • Cape Verde: Preparing for RT
Somalia
S. LeoneC. IvoireGhana Ethiopia and compact signing
Liberia Togo CameroonC. Africa Rep. • S. Tome and Principles: Not
officially launched
Eq. Guinea Uganda
S. Tome and PrincipeGabonCongo Kenya • Comoros: Stocktaking in
IMPLEMENTATION STATUS
Implementation status Congo (DRC)Burundi progress
Seychelles • Mauritius: Focal point
Not officially launched
Not officially launched Tanzania Seychelles
Officially launched
appointed
Officially launched Seychelles
Comoros • Seychelles: Stocktaking in
Cabinet Memo
Cabinet memo and endorsement Angola Malawi progress
Technical Analysis
Stoctaking and growth options Zambia
Mozambique
Compact Drafting
Drafting country CAADP compact
Zimbabwe Madagascar
Namibia
RT Preparation
Preparing for RT and compact signing
Botswana
Implementation
Implementation
Swaziland
South AfricaLesotho
18

23.
On the global level, the secretariat has been successful in garnering support from a number of
development partners and in advocating for alignment of donor strategies with the CAADP
framework. At the regional level, the secretariat provides technical assistance and capacity
building support to the RECs as they implement CAADP, while coordinating their work
continent-wide. At the country level, the secretariat provides support the RECs’ political
leadership and coordination work to advance the country roundtable process, and review
country efforts to ensure compliance with CAADP goals.
B. Role of the pillar institutions
CAADP’s selection of four technical pillar areas, and of lead technical partners to oversee pillar
activities, reflects the program’s mission to improve policy planning and implementation, and
move the agricultural sector toward adopting best practices as well as evidence- and outcome-
based policies and processes.
The role of the pillar institutions, which have to be Africa-based, is two-fold: 1) to take leadership
in mobilizing qualified expertise and organizing and managing a technical peer review process
to develop a pillar framework document; and 2) to ensure that CAADP countries draw on the
technical tools and guidance provided in the framework document as they progress through the
country implementation process.
Pillar framework documents are developed through the work of Expert Reference Groups, who
identify key strategic challenges in each pillar area, examine options to address these
challenges, and identify best practices to help RECs and countries tackle challenges. Expert
Reference Groups are composed of qualified technical experts and practitioners representing
key CAADP stakeholder groups.
Once an Expert Reference Group completes its assessment, the resulting framework serves as
guidance for all CAADP stakeholders working in each pillar area. The document streamlines the
process for program design, ensuring that CAADP has a strong technical foundation on which to
propose activities, and enables countries to easily access best practices and key lessons.
The framework document recommends investment programs that show potential for best use of
funds; facilitates in-country alignment and harmonization of CAADP efforts; facilitates peer
learning and review for better strategic thinking and analysis; and advises on building
partnerships that promote transparency, accountability and shared commitment to an
agricultural growth agenda.
Pillar institutions work with the RECs to ensure that the pillar framework responds appropriately
to country needs and regional processes. This includes incorporating initial lessons learned
from the country roundtable process. RECs play a critical role in bringing the pillar framework to
the country level, ensuring, through the roundtable process, local internalization and buy-in. The
RECs themselves provide a checks-and-balances function as the pillar framework is designed,
ensuring that the document offers a clear value added for the regional and country
stakeholders.
19

24.
The above work under CAADP’s four pillars is led by the following lead institutions:
Pillar 1 (land and water management) is led by TerrAfrica4 for the land component, and the
University of Zambia and the Permanent Interstate Committee for Drought Control in the Sahel
(CILSS) for the water component. The land component of the pillar framework document,
developed by TerrAfrica is known as the Strategic Investment Program (SIP) for Sustainable
Land Management.
Pillar 2 (market access) is led by the Conference of Ministers of Agriculture for West and
Central Africa (CMAWCA). Its framework document is titled, Framework for the Improvement of
Rural Infrastructure and Trade-Related Capacities for Market Access (FIMA).
Pillar 3 (food supply and hunger) is led by the African Center for Food Security (ACFS) of the
University of KwaZulu Natal and CILSS. Its framework document is titled, Framework for African
Food Security (FAFS).
Pillar 4 (agricultural research) is led by the Forum for Agricultural Research in Africa (FARA). Its
framework document is titled, Framework for African Agricultural Productivity (FAAP).
All the above framework documents have been completed, including detailed implementation
guides. The pillar 2 framework document, FIMA, has a companion document detailing blue
prints and a roadmap for the implementation of 9 early actions programs (see box below).
C. Role of the Regional Strategy Analysis and Knowledge Support System (ReSAKSS)
ReSAKSS provides policy-relevant analysis, data and tools to improve policymaking, fill
knowledge gaps, promote dialogue, and facilitate the benchmarking and review processes
associated with CAADP implementation. The system is organized into three regional nodes, in
West Africa, East and Central Africa, and Southern Africa. The corresponding RECs (i.e.,
COMESA, ECOWAS and SADC) established these nodes in collaboration with the NEPAD
secretariat and CGIAR. The nodes are located at three Africa-based CGIAR centers: the
International Institute of Tropical Agriculture in Ibadan, Nigeria; the International Livestock
Research Institute in Nairobi, Kenya; and the International Water Management Institute in
Pretoria, South Africa. ReSAKSS-South Africa also receives technical support from the
International Crops Research Institute for Semi-Arid Tropics in Bulawayo, Zimbabwe.
IFPRI coordinates a common agenda across the three nodes, provides technical and analytical
support, and maintains ReSAKSS links with a broad network of CAADP partners. The
ReSAKSS nodes are governed by steering committees chaired by their respective RECs. These
committees provide oversight and ensure that the ReSAKSS agenda remains relevant to
development priorities, CAADP and regional strategies.
4
The TerrAfrica partnership is a US$4billion, 12-year campaign, supported by the African Union, World Bank, United
Nations, European Commission, and sub-Saharan African governments, to combat desertification and other land
degradation in Africa through sustainable land management. For more, visit www.terrafrica.org.
20

25.
Setting Priorities within the CAADP Pillar Framework: The case of FIMA
The CAADP Pillar 2 framework document--Framework for the Improvement of Rural Infrastructure and Trade-
Related Capacities for Market Access (FIMA)--provides a good example of how pillar institutions set priorities
for technical implementation. FIMA’s proposed early actions for Pillar 2, developed by the
Conference of Ministers of Agriculture for West and Central Africa, include the following:
1. Agricultural trade: To create the required institutional, regulatory and policy frameworks to
facilitate the emergence of regional economic spaces and boost the expansion of regional trade and
cross-country investments.
2. International trade advocacy and negotiations: To better articulate African interests in bilateral and
multilateral trade negotiations to remove foreign policy distortions that limit market access and affect
the competitiveness of African exports.
3. Quality management and trade certification services systems: To facilitate compliance with
international trade agreements and overcome non-technical barriers affecting the growth of African
exports.
4. Infrastructure growth initiative: To develop and implement a master plan to link current regional
transport infrastructure corridor projects to potential agricultural growth poles.
5. Agricultural investment and enterprise development platforms: To promote the adoption of
effective and efficient tools for public-private partnerships and business-to-business alliances to
boost agricultural value chain development.
6. Agribusiness joint venture fairs: To expand joint venture opportunities in the agribusiness sector
by facilitating contacts between entrepreneurs and investors in the early stages of enterprise
creation.
7. Fertilizer and seed systems: To a) speed up the emergence of broadly accessible, cost-effective
and competitive seed and fertilizer supplies and financing systems; and b) significantly raise the use
of both inputs by smallholder farms.
8. Value chain integration of smallholder farmers: To develop effective and scalable tools to support
partnerships and alliances between governments, private sector operators and leading local farmers’
organizations that can broaden the access of smallholder farmers to commercial and technical
services.
9. Vocational training and workforce development systems: To accelerate the modernization of
farming systems and ensure the long-term technological competitiveness of Africa’s smallholder and
agribusiness sectors in the global economy.
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26.
ReSAKSS Support to CAADP
Achieving CAADP’s goals requires efficient and consistent planning and execution of sector
policies and programs; effective translation of government expenditures into public goods and
services; and appropriate mechanisms to regularly and transparently measure performance and
keep policies and programs on track. ReSAKSS plays a critical role in the CAADP process by
improving access to high-quality information and analysis, thereby providing policymakers with
credible evidence on which to base decisions.
In close collaboration with the RECs and member countries, ReSAKSS provides support for
CAADP in three areas: strategic analysis, knowledge management and communications, and
capacity strengthening (See box below).
Strategic analysis activities help RECs and countries assess their progress toward realizing the
CAADP goals of 6 percent growth in the agricultural sector and a 10 percent national budget
share for agriculture. ReSAKSS helps countries assess policy and investment options to
accelerate growth and reduce poverty and hunger, in alignment with the MDGs. In addition,
IFPRI leads ReSAKSS efforts to develop a monitoring and evaluation framework, indicators,
and benchmarks to inform and track CAADP implementation.
Under the knowledge management and communications component, ReSAKSS and its
partners collect data on key indicators such as public spending; integrate and build upon
existing data, tools and knowledge; and facilitate timely access of that knowledge by African
policymakers and development partners to allow for better decision making. To this end,
ReSAKSS has developed an innovative, IT based platform, including a recently redesigned web
site (see www.resakss.org), to house and disseminate the data and knowledge products,
including two dozens of key indicators, to help inform the CAADP review, learning, and dialogue
processes.
Finally, capacity building activities include promoting collaboration in generating and
disseminating data and providing access to knowledge and information products among all
CAADP partners. In particular, ReSAKSS helps formulate shared standards and protocols for
the collection, storage and exchange of data, as well as cutting edge methodologies for data
and policy analysis. Under this component, ReSAKSS provides technical support to the CAADP
roundtable process and sets up country strategic analysis and knowledge support systems
(SAKSS).
Country SAKSS Nodes
The ReSAKSS mechanism is an outgrowth of the country strategy analysis and knowledge
support systems (SAKSS) originally conceived by IFPRI to support country strategies under
USAID’s Initiative to End Hunger in Africa. In their initial form, the SAKSS were resource
intensive and focused on a limited number of countries. Their cost and dependence on external
expertise limited the scope of scaling them up over a broad range of countries. To adapt the
22

27.
The ReSAKSS as a Tool for Peer Review, Benchmarking, and Mutual Learning
system to CAADP needs, it was therefore decided to lower the cost and technical barriers by: (i)
setting up 3 nodes at the regional level to centralized some of the services and support
functions and thereby create economies of scale; and (ii) work with countries to establish low-
cost knowledge system entities, or SAKSS nodes, using primarily local expertise, and link them
to the regional nodes. The new ReSAKSS model creates demand for knowledge and instills
ownership of the system in CAADP’s country and regional stakeholders, ultimately yielding
lower-cost country nodes and broadening access for end users, including private sector
partners and farmers’ organizations.
At the country level, the regional ReSAKSS nodes and their local partners facilitate stocktaking
exercises and provide support for the analytical work required as part of the CAADP country
roundtable process. As countries complete their roundtable and sign their compacts, the
ReSAKSS provides the necessary TA to individual countries to set their respective SAKSS
nodes, drawing from local universities, research centers, and other think tanks. The country
SAKSS node allows for proper follow-up to roundtable outcomes and subsequent policy
debates. From the country’s perspective, the purpose of the SAKSS node is to maintain
momentum generated by a roundtable and use knowledge and analysis to inform policy
23

28.
choices. The country node is expected to address information and knowledge gaps that emerge
during development of the CAADP country compact and help strengthen local capacities.
The availability of cutting edge analytical tools and high quality data bases, including broad
indicator baselines, all by-products of the analysis leading to the CAADP roundtables, will
enable the SAKSS nodes to effectively guide and track CAADP’s implementation progress and
performance, and inform national review and dialogue processes. They will thereby play a
critical role in the transition towards evidence- and outcome-based planning and implementation
for better growth, poverty, and food security outcomes.
D. Role of the CAADP Partnership Platform
CAADP stakeholders first discussed instituting a regular forum for CAADP partner review,
coordination and cross-learning at an October 2005 retreat in Pretoria, South Africa. Partners
expressed a need for a senior-level mechanism with a continent-wide perspective to ensure
effective monitoring and progress against CAADP goals. Such a forum would meet twice a year.
The APF endorsed the forum concept--under the name, CAADP Partnership Platform-- in May
2006. NEPAD organized the Platform’s inaugural meeting in September 2006. Since that time,
three subsequent Platform meetings have been held, and a 5th is scheduled for November 9
and 10, 2009 in Abuja, hosted by ECOWAS. Capacity constraints at the NEPAD Secretariat
partly prevented a more regular organization of the meetings in the past.
The Platform is co-chaired by the NEPAD secretariat and the AU’s Department of Rural
Economy and Agriculture. Its members include REC and country leaders, senior-level
representatives of bilateral and multilateral agencies, representatives of CAADP’s pillar
institutions, and representatives of regional private sector and farmer’s organizations. In
addition, the Global Donor Platform for Rural Development (see box, page 13) assists in setting
the agenda for Platform meetings, and provides donor data and material to Platform
participants.
The purpose of the Platform is to ensure that CAADP activities benefit from the perspectives
and experience of a range of partners to facilitate progress toward CAADP’s goals and vision.
Its objectives are to: 1) review progress in support of CAADP implementation, including that of
RECs and country roundtables; 2) promote a common understanding of the CAADP framework
and implementation at the regional and country levels; 3) enhance coordination among CAADP
partners in program implementation and to avoid duplication of effort; and 4) enhance
commitment to resource mobilization for the African agricultural sector.
To effectively review progress of CAADP stakeholders, the Platform has developed a set of
indicators allowing it to: 1) measure progress across countries and regions toward the CAADP
national agricultural growth target of 6 percent; 2) track the level and efficiency of public sector
expenditures in the agricultural sector; and 3) review the level and efficiency of development
assistance to the agricultural sector.
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29.
Benefits of participation in the Platform include reduced transaction costs for CAADP policy and
implementation agencies at all levels, and a more consistent understanding of CAADP
objectives and implementation mechanisms, reducing duplication of effort and streamlining
processes.
The Platform has also evolved into a robust “marketplace of ideas,” helping stakeholders
develop regional and country CAADP activities that build on and take into account emerging
lessons and successes across Africa. Platform discussions have contributed to consolidating
and strengthening the country roundtable process, building CAADP’s communications and
advocacy capacity, delineating roles and responsibilities among key actors, and providing clarity
on decision points and next steps, particularly related to the post-country compact phase of
CAADP and in donor mobilization.
Following each Partnership Platform meeting, NEPAD releases a communiqué as a way to
keep major stakeholders informed of CAADP-wide issues, lessons and actions. The Platform
also issues regular progress reports to the AU and APF.
The above institutions and organizations are providing critical leadership and support for the
implementation of CAADP. They are not the alone, however, in moving the agenda along. There
are a range of other key actors, including farmer organizations such the Southern African
Confederation of Agricultural Unions (SACAU), the East African Federation of Farmers (EAFF),
and the Reseau des Organisations Professionnelles de Producteurs Agricoles (ROPPA) in West
Africa. The two boxes below present the key implementing parties across the different major
regions in Africa and an overview of the CAADP implementation functions and processes.
5. CHALLENGES AND SUCCESSES
A. Challenges
Building support for CAADP and getting implementation off the ground has been a years-long
process, requiring consistent commitment from stakeholders at the global, continental, regional
and country levels. Since African Ministers of Agriculture first endorsed the CAADP strategy in
Rome in 2002, a number of challenges have arisen that might have blocked CAADP’s path
forward. A few of the larger challenges are described here as a means to inform other large-
scale development initiatives that might face similar issues.
Managing coordination, outreach, advocacy and dialogue
Since its inception, NEPAD has envisioned itself as a global partnership. To be effective on the
international stage, its secretariat needed to quickly build a reputation as a well-run
organization, with international-caliber capacity in staffing, management, outreach and policy
and technical leadership. When the secretariat opened its doors, NEPAD has struggled to hire
and retain a critical mass of expert staff, implement appropriate management and review
procedures, and strengthen the communications and advocacy function sufficiently enough to
25

30.
CAADP IMPLEMENTING PARTIES
speed up implementation of an agenda of unprecedented ambition and reach such as CAADP.
This lag in capacity building resulted in impeded coordination and dialogue between NEPAD
and its country, regional and international partners, and posed barriers to acceptance of NEPAD
as a competent, global-level organization.
Securing buy-in and collaborating with multilateral/bilateral agencies
The NEPAD Secretariat has faced a number of challenges related to technical and political
oversight that have affected its relations with international donor agencies.
First, NEPAD’s management structure inadvertently created a vacuum for technical leadership.
NEPAD’s steering committee is composed of personal representatives of members of the
Heads of State and Government Implementation Committee. Because these representatives
hold political appointments and are often not technical experts, they have been unable to always
provide appropriate technical guidance for NEPAD. Thus, NEPAD’s political oversight function
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Overview of CAADP Implementation Functions and Processes
CAADP: Comprehensive Africa Agriculture Development Program; NEPAD: New Partnership for Africa’s Development; RECs:
Actors Implementation Dialogue & Review
Government reps Round Table Progress Review & Dialogue:
Country ‐Stocktaking and Country Review Teams
REC Reps
Stakeholders Analytical studies ‐Improved Implementation
‐Develop and ‐Progress Performance and
CAADP Focal
Implement Country Tracking
Points Compact ‐Improved Governance
Regional RECs: RIF Peer Review & Dialogue: CAADP
COMESA ‐Develop & implement Advisory Council and Support
ECOWAS Regional Compact Group
SADC ‐Support & Coordinate ‐Benchmarking and Leaning ReSAKSS
ECCAS National ‐Best Practices ‐Strategic Analysis
CAADP Focal Points Implementation ‐Improved Governance ‐Capacity Building
‐M &E
‐Knowledge, Tools
Africa‐ African Union ‐Facilitate overall Mutual Review & Dialogue:
wide Commission implementation Africa Partnership Forum &.
CAADP Partnership Platform
NEPAD ‐Mobilizes Resources ‐Improved Coordination
Secretariat & technical expertise ‐Improved Governance
Strategic Guidance: Pillar Framework Documents
Africa‐ Pillar 1: CILSS &
wide UNZA
Pillar 2: ACFS/UKZN Pillar 1 Pillar 2 Pillar 3 Pillar 4
& CILSS SLWM FIMA FAFS FAAP
Pillar 3: CMAWCA
Pillar 4: FARA M&E
CAADP: Comprehensive Africa Agriculture Development Program; NEPAD: New Partnership for Africa’s Development; RECs:
Regional Economic Communities; RIF: Regional Implementation Framework; M&E: Monitoring and Evaluation; CMAWCA:
Conference of Ministers of Agriculture of West and Central Africa; CILSS: Permanent Inter‐State Committee for Drought Control
in the Sahel; ACFS/UKZN: African Center for Food Security at the University of KwaZulu Natal; UNZA: University of Zambia;
FARA: Forum for Agricultural Research in Africa; SLWM: Sustainable Land and Water Management; FIMA: Framework for the
Improvement of Rural Infrastructure and Trade‐Related Capacities for Market Access; FAFS: Framework for African Food
Security; FAAP: Framework for African Agricultural Productivity; ECOWAS: Economic Community of West African States;
COMESA: Common Market for East and Southern Africa (COMESA); SADC: Southern African Development Community; ECCAS:
Economic Community of Central African States; and ReSAKSS: Regional Strategic and Knowledge Support Systems
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has been overemphasized at the expense of technical oversight, which is equally, if not more,
important to the program’s success.
Second, reporting relationships among the NEPAD Secretariat, the Heads of State and
Government Implementation Committee and the AU Commission did not allow for close
oversight of NEPAD activities. The NEPAD Secretariat is required to report to the Heads of
State and Government Implementation Committee, which then reports to the AU General
Assembly. The Committee which meets twice a year and covers the entire NEPAD agenda,
does not have the opportunity to provide consistent guidance and feedback to the secretariat.
The latter struggled hard to formulate and implement the program’s technical agenda, but it was
not getting the proper political and technical oversight and support.
Weaknesses in technical oversight have affected the quality of dialogue and engagement
between international partners and the NEPAD secretariat despite aggressive, early outreach to
secure support for CAADP at the highest levels. Specifically, the lack of oversight and political
leadership at the highest level on the African side prevented the alignment and buy-in by
multilateral and bilateral agencies from taking place speedily during the early stages of the
CAADP agenda.
The leadership of a core group of development partner agencies, in particular USAID and Dfid,
whose governments held the presidency of the G8 during the first two years of the CAADP roll
out process, the inception of the CAADP Partnership Platform, and the proactive role of the
Global Donor Platform for Rural Development have made the difference in getting buy-in from
international partners. The latter two mechanisms created an environment where the lack of
technical and political oversight on NEPAD’s part could be overcome. The platforms provide
regular forums for CAADP exchange and dialogue that aren’t available through either the APF
or NEPAD.
Changing mindsets at the country-level
CAADP calls for significant change at the country level related to planning and implementation
of agricultural programs; transitioning to evidence- and outcome-based policy planning; and
instilling mechanisms for review, monitoring and evaluation, and benchmarking. CAADP also
calls for a rethinking of partnerships and alliances at the country level, to include all
stakeholders in dialogue and policy planning, as well as for renewed national government
leadership in agricultural policy. Moreover, CAADP puts on its head the traditional, externally
driven model of development partnership. It requires African countries to fully own and lead the
development agenda, a step that few countries, if any, have ever taken in their post-
independence history.
At CAADP’s inception, the African side and international development agencies agreed that
change was needed in each of these areas. Change could only happen, however, with heavy
involvement of other parts of country governments, in particular the Ministry of Finance, in
addition to the Ministry of Agriculture, the private sector, farmer’s groups and other local
stakeholders. Securing widespread country-level support for CAADP has been a continuing
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challenge. Insufficient capacities for effective political and technical leadership from NEPAD and
tensions between the latter and the AU Commission over several years around leadership and
direction of the CAADP agenda prevented the two continental organizations from effectively
leveraging their considerable political capital to raise CAADP’s political profile at the country
level and boost the pace of its implementation by member countries.
Mobilizing funding for CAADP implementation
CAADP has faced early on significant challenges in getting in-country international partner
agencies to follow-up on their respective governments’ commitments to the agenda, and, at the
country level, to get governments to honor the 10 percent agricultural budget share commitment
agreed to under the Maputo Declaration. Ministries of Agriculture have had to push Ministries of
Finance and presidential offices to support the 10 percent pledge, often without sufficiently well
coordinated political and technical leadership from the AU Commission and NEPAD. The fact
that only 8 countries had met the 10 percent budget share target by 2007 is a good indication of
how much more stronger the advocacy work at country level needs be.
Consistent, effective, and high quality dialogue is necessary to engage the highest levels of
government and development agencies, particularly given the required high profile of CAADP
and the significant level of resources that are needed for its successful implementation. Much of
the advocacy work has been left to the RECs and Ministries of Agriculture, who have tried to
make the case for CAADP government-wide. Fortunately, the recent management level
changes at the AU Commission and NEPAD Secretariat have brought in strong leadership and
created the conditions for effective political engagement to ensure proper dialogue on CAADP
at the cabinet and development agencies’ leadership levels.
B. Successes
Creating a collective framework for planning and implementation partnership
The CAADP roadmap, adopted by the APF in late 2004, was a turning point in the
implementation of CAADP. It defined a new, framework-oriented approach to empower RECs
and country governments to choose their own priority areas for investment in agriculture;
outlined an initial six-month action plan; and clearly defined roles for all partners. It effectively
formulated and communicated CAADP as a simple and crisp agenda around 4 pillars and a
handful of principles and targets, to add value to ongoing efforts by RECs and their member
states to accelerate growth, reduce poverty, and improve food and nutrition security. This clarity
gave CAADP the credibility it needed to achieve buy-in from key stakeholders and allowed
development partners to plan for long-term financial support of the project.
Since 2004, CAADP has made major strides as a collective agenda and framework to
accelerate economic growth and reduce poverty and food insecurity across Africa. For the first
time in the history of agricultural strategy development and cooperation on the continent, there
is broad consensus on objectives, targets, implementation processes and partnership principles
for agricultural growth. While many countries are still working toward the CAADP goals of a 10
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percent budget share for agriculture and 6 percent annual growth in the sector, CAADP has
already succeeded in creating a new model for development --one that is led by Africans and
insists on technical excellence and accountability--that should serve Africa for decades to come.
Maintaining African ownership and leadership
CAADP is led by the RECs, NEPAD member countries and Africa-based technical institutions,
who are charged with overseeing content for the program’s four pillar areas. RECs have taken
solid leadership of the CAADP agenda and work with countries to use the CAADP framework
and support countries’ own efforts to achieve economic growth, poverty reduction and food
security objectives. The RECs support countries to take stock of ongoing efforts and identify
gaps with respect to meeting CAADP objectives and principles. Countries take ownership of the
process by engaging with civil society and development partners to strengthen implementation
at the country level, and in reviewing national commitments to make sure CAADP goals are
met. With as many as 20 countries expected to complete the roundtable process by the end of
2009, national governments are well on their way to fully integrating CAADP into their
development strategies.
In addition, the four pillar institutions have provided world-class expertise and facilitation to
guide CAADP program planning and implementation. The pillar framework documents
developed under their guidance serve as critical technical reference and guidance to the RECs
and countries as they develop and implement investment programs under CAADP. They have
effectively mobilized African experts to analyze key challenges and identify success factors,
best practices and partnership models to accelerate CAADP’s progress and improve outcomes.
Promoting subsidiarity, participation and inclusiveness
Incorporating the principle of subsidiarity in the 2003 CAADP roadmap was key to ensuring
African ownership over the program. Decentralizing decision-making authority to the lowest
level stakeholder, through the RECs and country leaders, allowed countries to adapt CAADP
activities to their own needs, making the program much stronger than it would have been if
administered out of the NEPAD secretariat as an Africa-wide operational program.
Participation in CAADP has been facilitated primarily through the CAADP Partnership Platform,
which brings stakeholder voices to bear on the implementation process. The Platform’s twice-
yearly meetings encourage policy dialogue and review among the AU, NEPAD secretariat,
RECs, member countries, development partners, the private sector and farmers’ groups. The
meetings ensure that major strategy and policy issues are identified and handled at the highest
level and in a timely fashion to facilitate steady implementation progress.
Moving toward evidence- and outcome-based planning and implementation
Under the leadership of the RECs and CGIAR, the ReSAKSS was created to facilitate peer
review, benchmarking, adoption of best practices, and mutual learning among member
countries in order to improve policy and program planning and outcomes. ReSAKSS’ regional
nodes have strengthened CAADP’s impact by linking regional research organizations and
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