OPERATIONS PLAN OF TOGO - (2019-2020) AFRICAN RISK CAPACITY (ARC)
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TOGOLESE REPUBLIC
AFRICAN RISK CAPACITY (ARC)
OPERATIONS PLAN OF TOGO
(2019-2020)
TABLE OF CONTENTS
1 GENERAL INFORMATION ............................................................................................... 5
1.1 STATUS OF THE COUNTRY IN TERMS OF RISKS .................................................... 5
1.2 PURPOSE OF THIS OPERATIONS PLAN ..................................................................... 9
2 COUNTRY DROUGHT PROFILE...................................................................................... 9
2.1 GENERAL GEOGRAPHIC DISTRIBUTION OF DROUGHTS...................................... 9
2.2 GENERAL RAINFALL FEATURES OF THE COUNTRY ............................................ 11
2.3 SEASONAL AGRICULTURE CALENDAR..................................................................... 14
2.4 HISTORICAL DROUGHT DESCRIPTION ..................................................................... 15
2.5 HISTORICAL OF IMPACT OF DROUGHT (IN TERMS OF NUMBER OF
AFFECTED INDIVIDUALS/CATTLE) ............................................................................. 16
2.6 HISTORICAL DROUGHT RESPONSES ....................................................................... 18
2.7 DISCUSSION OF THE HISTORICAL DROUGHT CONDITIONS, VULNERABLE
POPULATIONS AND RESPONSES................................................................................ 20
3 INSTITUTIONAL ARRANGEMENTS .............................................................................. 21
3.1 EXISTING NATIONAL POLICIES OR LEGISLATION ................................................. 21
3.2 EXISTING ASSESSMENT PROCESSES...................................................................... 24
3.3 CONTINGENCY PLANNING PROCEDURES FOR DROUGHT................................ 27
3.4 DROUGHT RESPONSE COORDINATION MECHANISM ......................................... 28
3.5 PROPOSED FINANCIAL ARRANGEMENTS AND COORDINATION OF ARC
PAYOUT .............................................................................................................................. 29
4 RISK TRANSFER PARAMETERS (to be completed after discussion with ARCLtd ) .................................................................................................................................. 30
5 SCENARIO DEFINITION AND GEOGRAPHIC COVERAGE (to be defined with the
ARC technical team ) ...................................................................................................... 30
5.1 DROUGHT MODEL SCENARIOS .................................................................................. 31
6 INTERVENTION DETAILS .............................................................................................. 33
6.1 FIRST INTERVENTION .................................................................................................... 35
6.2 SECOND INTERVENTION............................................................................................... 42
6.3 THIRD INTERVENTION.................................................................................................... 49
6.4. FOURTH INTERVENTION ....................................................................................... 57
7 MONITORING & EVALUATION FRAMEWORK AND PLAN ........................................ 64
8 PROGRAM RISKS AND ASSUMPTIONS ...................................................................... 68
9 DEFINITION OF STANDARD OPERATING PROCEDURES ........................................ 701 GENERAL INFORMATION
Name of country: Republic of Togo
Legal representative Surname/Name: Doctor Hèlène Nèmè BALI
[General secretary (or Title: General Secretary, Strategic Coordinator of the PNIASAN, Supervisor of the ARC Programme
Permanent secretary) Ministry/department: Ministry of Agriculture, Animal Production and Fisheries
/ministry] for the plan:
Focal point (or primary Surname/Name: EGBARE Hèzouwè
contact person) for the Title: ARC Government Coordinator, Head of Planning Division
plan: Ministry/department: National Food Security Agency of Togo (ANSAT), Ministry of Agriculture, Animal Production and
Fisheries
Email: oscaregbare@yahoo.fr
Telephone: (+228) 90 15 22 03
Surname/Name: WAKE Kpatchim
Title: Head of Planning Division
Ministry/department: National Civil Protection Agency (Ministry of Security and Civil Protection)
Email: wakekpatchim@yahoo.fr
Telephone: (+228) 90 86 05 53
1.1 STATUS OF THE COUNTRY IN TERMS OF RISKS
1.1.1. Risks generally encountered by the country
Togo is a West African country, stretching from 6° to 11° North latitude and from 0° to 1°60’ East longitude. It covers an area of 56,600 km2 and
in 2018 had a population of 7.352 million inhabitants. It is located in the inter-tropical zone and enjoys a Sudanese tropical type climate to the
north and a Guinean tropical climate to the south. Over the whole territory, 3.6 million ha of land are arable, representing 60% of the national
surface area.
In terms of risks, the country is exposed to floods, strong winds, plagues and droughts. Indeed, according to the Third National Communication
(TCN) on climate change, climate observations reveal that, broadly speaking, in Togo, there is a decrease in rainfall, by 3 to 81 mm and in thenumber of days of rain as well as a rise in temperature of about 1° C, during the period running from 1961 to 2012. The rainfall/potential evapotranspiration (R/PET) ratio, which is the index of aridity, is also declining, reflecting the trend to the aridification of the climate. Overall, temperatures are on the rise, those of the months of February, March and April, which present with high temperatures, can exceed 35° C. The climate and climate change data shows that major climate risks can be summed up to situations of extreme droughts or paradoxically to situations of risk of flooding. This contradictory evolution of climate parameters has strong implication for the ecosystems, rural communities and their livelihoods. Moreover, according to the reference scenarios made under the TCN, for 2025 and 2100, simulations using SimCLIM 2013 have shown, based on latitudes, an overall increase of temperatures ranging from 0.63 to 4.5°C in Togo. Over the same period, rainfall increased from 3.26 to 39.2 mm, which is likely to exacerbate the climate impacts. Thus, between 1925 and 1992, Togo has recorded 60 urban and rural floods with extensive property damage and loss of human lives. Between 2007, 2008 and 2009 (from July to September), Togo experienced heavy rains with floods which resulted in the loss of life and significant material damage. In September 2007, flooding in the prefectures of Kpendjal, de Tône and Oti, in the Savanes (Savannahs) region, caused the death of 20 people and several injuries, 24,000 displaced people 22,129 destroyed houses and, 111 broken, smashed or washed away bridges and culverts. In addition, there were 46 educational institutions (schools and high schools) damaged or destroyed, 3 clinics whose activities were halted. In 2007, the number of flood victims throughout the national territory was estimated to be more than 231,147 people. The situation worsened in 2008 with the breaking of several bridges, including that of Amakpape on the National Road 1, paralyzing all economic activities between Togo -mainly the Autonomous Port of Lomé- and the hinterland countries. The country has also, in recent years, experienced situations of high winds that cause significant damage [PRP-AGIR, 2015]. In terms of plague and epizootic, the country is faced with caterpillar attacks as well as animal diseases such as bird flu AH5N1 -experienced between 2007 and 2008, Newcastle disease, bovine contagious pleuropneumonia (BCPP) and Anthrax. Thus, in crop production, focus has been placed since 2016, at national level, on the resurgence of the fall armyworm (Spodoptera frugiperda), which caused serious damage to crops, in this case to maize, thereby threatening food and nutrition security. One of the major risks also affecting the country remains drought. The observations of the climate between 1961 and 2012 show unequivocally, an increase in temperatures against a decrease in rainfall and in the number of rainy days (TCN, 2015). Indeed, apart from floods, the country also experienced droughts in 1943, 1961, 1969, 1976, 1977, 1983, 1986, 1987, 1992, with severe food insecurity widespread throughout the country and more specifically in the Savanes (Savannahs), Kara, Maritime regions as well as in the eastern part of the Plateaux (highlands) region (UNDP, 2012). Most recently in 2013, the climate variability led to severe droughts with losses in agricultural production on a total estimated area of 40,868 ha, thereby affecting nearly 40,000 households, mainly in the prefectures of Bassar and Dankpen in the Kara region. Similarly, in 2015, the prefectures of East-mono, Moyen-mono, Anié, Ogou and Haho in the Plateaux (Highlands) region experienced a severe drought, with
losses in agricultural production amounting to 23,971,543,090 CFA francs on a total estimated area of 137,877.34 ha and affected a rural farming population of 743,069 grouped in 92,841 farm households (DSID, 2015). In general, the country could suffer the effects of drought in the coming years. Indeed, the observations of the climate over the period 1961 to 2012 unequivocally reveal an increase in temperatures against a decrease in rainfall and the number of rainy days accompanied by a poor distribution of rains over time. The Pluviometry / Potential Evapotranspiration (P / ETP) ratio, which is the aridity index, is also declining, indicating a tendency towards aridification of the climate. (TCN, 2015) 1.1.2. Vulnerability The risks related to drought have a greater effect on rural and agricultural populations; they represent more than two-thirds of the country’s population and they alone represent 68.7% of individual poverty (CWIQ, 2015). These risks mainly affect crop farmers, stock farmers (sedentary or migratory), fishermen, etc. According to National Agricultural Census (RNA: Recensement National Agricole) data from 2012, the rural agricultural population numbers 3,121,385 individuals residing in 508,599 agricultural households. The consequences of the droughts remain easily discernible particularly on those fringes of the rural population that are classified as very vulnerable, especially women, children under the age of five, pregnant and nursing mothers, and women who are heads of households, the aged, and handicapped persons. Also, during the past five years, the water deficit and the increase in temperatures have led to decreases in crop yields, particularly in cereals (maize, sorghum, rice, millet) and legumes (beans) which form the base of the food supply of the population of Togo. With regard to livestock, the increasingly dry climate translates into dry water holes for animals, the degradation of pasturelands which leads to the death of cattle, a drop in income, for stock farmers and crop farmers. The fishing industry has also seen a drop in production because of significant disturbances in the reproductive cycles of fish as well as the death of fingerlings. An increase in the surface water temperature has led to frequent migrations of certain species of fish to the depth and a drop in volume of pelagic fishery resources. 1.1.3. National risk management capacity An analysis of the emergency situation in Togo reveals a feature that is increasingly recurrent in certain disasters and which, coupled with the negative effects of poverty, give the country a profile from the humanitarian point of view that has consequently become more complex as well as more concerning. In spite of certain advances, disaster management still shows poor resourcing and management mechanisms (coordination and interventions). In terms of its technical capacity to respond to drought-related disasters, Togo does not have much infrastructure or coverage of the national territory with regard to the means to provide relief and rescue. At the moment the country still does not have a single satellite data reception and
processing mechanism in case of emergency. With regard to management structures for emergency situations, the country’s capacity to respond to a crisis consists of technical humanitarian initiative coordination structures. These structures consist of the Ministries responsible for Civil Protection, Defence, Social Action, Agriculture, Territorial Administration, Health, Water and Sanitation etc. These structures play an important role in relief, assistance and logistic support. However, the budget provisions set up for emergency response at Ministerial level are difficult to fund and the structural inadequacy of the country is compounded by the state and obsolescence of public infrastructure such as roads bridges and culverts. The following efforts have been made to deal with risk specifically related to drought: (i) the launch in 1977 of the green revolution in Togo following a drought, the purpose being to boost agricultural production and guarantee food security; (ii) the establishment in 1997 of the Food Security Office of Togo (OSAT: Observatoire de la sécurité alimentaire au Togo), which in 2008 was converted into the National Food Security Agency of Togo (ANSAT: Agence nationale de la sécurité alimentaire du Togo), the main task of which is to set up a safety reserve at a national level. It is noted that the OSAT was purely a stock-building structure for food security and food price surveillance, while ANSAT, in addition to building up the security and price watch stock, acts for the regulation of food stocks. price in the market in case of excessive outbreak often linked to speculation. It works on behalf of agricultural producers for the marketing of their products at a lucrative price and the valuation of excess production, thus avoiding the latter to sell their products especially at harvest time. (iii) the formulation and implementation in 2013, with the support of the FAO, of the TCP/TOG/3404 project “Emergency assistance for the recovery of production activities in households affected by drought” - “Assistance d’urgence à la relance des activités productives des ménages affectés par la sécheresse”). Furthermore, in 2013, the country became a signatory to the regional programme for the establishment of a safety reserve at the 42nd Ordinary Session of the Heads of State and Government Conference of ECOWAS. However, it should be emphasised that the country has no strategic reserve. The inadequacy of human, financial and infrastructural resources allocated to ANSAT limits its actions in terms of establishing a safety reserve and this is currently still very low (a maximum of 15,000 tonnes per year). With regard to nutritional oversight and the management of acute cases of malnutrition, the systems of the Ministries of Health and Social Action make it possible to monitor the nutritional status of vulnerable populations on a continuous basis and to manage them in case of disaster. These systems relate to: (i) education on nutrition and the management of different forms of malnutrition especially in children and women through Centres for (intensive) Nutritional Recovery and Education (CREN: Centre de Récupération et d'Éducation Nutritionnelle); (ii) the establishment of food fortification programmes; (iii) the organisation of campaigns to supplement vitamin A intake; (iv) the establishment of school canteens; (v) money transfers to vulnerable nursing mothers. It should however be emphasised that these systems only have a limited effect because of inadequate financial, material and human resources.
At a pastoral level, a Transhumance Management Plan (PGT: Plan de gestion de la transhumance) was drawn up and has been instituted since
2016 in order to prevent conflicts which sometimes lead to the loss of human lives amongst crop farmers and livestock farmers in their search
for pasturage, particularly during periods of drought.
1.2 PURPOSE OF THIS OPERATIONS PLAN
This operations plan aims to ensure food and nutrition security of households affected by a water deficit and a drier climate. Its objective is to
ensure that any payout from ARC can be transferred in a timely and cost-efficient manner to beneficiary populations, victims of drought, so that
they can recover from their shock. In particular, this plan is a set of tools and mechanisms seeking to:
➢ provide appropriate and sufficient food assistance to drought-affected households as well as seeds, in order to safeguard their
livelihoods;
➢ safeguard livestock from a shortage of grazing; and/or,
➢ offer appropriate care to inhabitants affected by acute malnutrition in drought-affected areas.
2 COUNTRY DROUGHT PROFILE
2.1 GENERAL GEOGRAPHIC DISTRIBUTION OF DROUGHTS
Togo is located in the intertropical zone, and enjoys a Guinea tropical climate with four seasons in the southern part (two seasons of rain
alternating with two dry seasons) and a Sudanese tropical type climate with two seasons in the northern part (one rainy season and one dry
season). The country has five economic regions with 39 prefectures. In recent years, drought has been localised in a few places. For example,
in 2013, in the prefectures of Bassar and Dankpen, in the Kara region located in unimodal area, and in 2015 in the prefectures in the Plateaux
(Highlands) region located in bimodal zone.
Over the last ten years, the drought situation is as follows:Prefectures (districts under the Drought prone zones
Crops vulnerable to droughts Livelihoods
Regions authority of a prefect) (Yes/No)
Lacs No
Avé No
Zio No
Bas-Mono No
Maritime
Yoto No
Vo No
Agoè-Nyévé No
Golfe No
Ogou No
Haho No
Moyen-Mono No
Est-Mono Yes Maize, rice, yam Agriculture
Kpélé-Akata No
Anié Yes Maize, rice, yam Agriculture
Plateaux (Highlands)
Kloto No
Danyi No
Agou No
Amou No
Wawa No
Akébou No
Tchaoudjo No
Blitta No
Central Sotouboua No
Tchamba No
Mô No
Assoli No
Kara
Kozah NoDoufelgou No
Bassar Yes Maize, sorghum/millet, rice Market gardening
Dankpen Yes Maize, sorghum/millet, rice Market gardening
Kéran No
Binah No
Oti Sud No
Oti No
Savanes (Savannahs) Tandjouaré No
Tône No
Kpendjal Ouest No
Kpendjal No
Cinkansé No
2.2 GENERAL RAINFALL FEATURES OF THE COUNTRY
Togo enjoys a tropical climate influenced by two trade winds: the Harmattan (the northern trade wind), a hot, dry wind that blows from the north-
east to the south-west; and the monsoon (the southern trade wind), a hot, humid wind which blows from the south-east to the north-west (Figure
1.2).
From the coast to latitude 8° north, there is a subequatorial climate typified by two dry seasons and two rainy seasons, unequal in duration.
Annual precipitation varies between 800 and 1,500 mm divided between the two rainy seasons: a long rainy season from March/April to the end
of July and a shorter one from the beginning of September to mid-November, alternating with two dry seasons, the longer of which lasts from
November to March and the shorter from July to September. The number of days of rain varies from 130 to 240 with generally high humidity
fluctuating around an average of 90% and an average annual temperature of 27°C.
Beyond the 10° latitude north there is a semi-arid Sudanese type climate typified by a rainy season lasting from the May to October. The overall
rainfall varies between 900 and 1,100 mm spread out over 175 days. The temperatures vary between 17 and 41°C in the dry season and between
22 and 34° in the rainy season with intense evaporation and a relative humidity varying from 15 to 86%.
Between these two climatic zones there is a Guineo-Sudanese type climate corresponding to a transition zone. In this zone the annual
precipitations fluctuate between 1,400 and 1,500 mm with an average annual temperature of 26.5°C (min.: 15°C, max.: 37°C). The average
relative humidity varies from 60 to 80%.The average wind speed is 1.93 m/s and the average hours of sunshine per day is 6 hours and 37 minutes with maximum values recorded in the northern regions. Average national evapotranspiration is 1 540 mm/year. A consideration of the levels and effects of climate variability makes it possible to deduce that the Savanes (Savannahs) region suffers the most in terms of climatic conditions followed by the Maritime region.
Atlantic Ocean
Rainfall in mm Atlantic Ocean
Temperatures in degrees
Figure 1: Climate map of Togo
Source: TCN 20172.3 SEASONAL AGRICULTURE CALENDAR
Togolese agriculture has huge advantages and favourable conditions for development. However, it remains subject to fluctuations of climatic
conditions, which cause sometimes replanting and production losses. The start of the cropping season varies according to agro-ecological zones.
The main (long) rainy season starts usually in March and ends in mid-July, while the short rainy season of the 3rd decade occurs between August
and mid-November in the sub-equatorial zone. However In the northern part, it extends from the 2nd decade of the month of May to the 3rd decade
of October. The following graph provides a detailed description of the agriculture calendar breakdown.
sale prepare sowing harvesting sale
Maize weeding
sale sowing harvesting sale
Sub- Sorghum weeding
Equatorial
zone sale preparation sowing harvesting sale
weeding
Cowpea
long dry S.dry short rainy long dry
season long rainy season season season season
sale prepare sowing harvesting sale
Maize
weeding
Semi-arid Sorghum
sale sowing harvesting sale
zone weeding
sale prepare sowing harvesting sale
Cowpea
P/weeding
dry season winter dry season
Feb Mar April May Jun Jul Aug Sep Oct Nov Dec Jan
Figure 2: Agriculture calendar for main food crops (main speculations)2.4 HISTORICAL DROUGHT DESCRIPTION
The reduced rainfall and the reduction in the water surface mainly characterize drought risk, just as the apparent time lag of the rainy seasons is
likely to penalize the development projects. Togo has experienced three major droughts that have caused a severe famine between 1942-1943,
1976-1977, and 1982-1983. The phenomenon of drought is mainly located in the Savanes (savannahs), Kara, and Maritime regions as well as
in the eastern part of the Plateaux (highlands) region (MERF (Ministry of Environment and Forest Resources), 2009). Over the last ten years, the
situation is as follows:
Year Key Source of drought Was drought officially Briefly describe the impact on the
regions/provinces information declared following the rainfall food security and livelihood
impacted deficit? (Yes/No) conditions
2008-2012 None -
2013 Kara/ Bassar and Agricultural Statistics, YES - Drop in production;
Dankpen Information and - Revenue decline;
Documentation - Selling prices increase for
Directorate (DSID : foodstuffs;
Direction des - Food shortage in the area
Statistiques - Livestock sales at a giveaway
Agricoles, de price
l'Informatique et de la - Degradation of natural resources
Documentation) (heavy deforestation);
- Rural exodus.
2014 None - -
2015 Plateaux/ Est-Mono and DSID - Drop in production;
Anié - Revenue decline;
- Selling prices increase for
foodstuffs;
- Food shortage in the area
- Livestock sales at a giveaway
price
- Degradation of natural resources
(heavy deforestation);Rural exodus.
2016-2018 None
2.5 HISTORICAL OF IMPACT OF DROUGHT (IN TERMS OF NUMBER OF AFFECTED INDIVIDUALS/CATTLE)
Impact of drought Year
by data source Source
2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018
A # of people ARV 0 0 0 0 0 355,174 4,591 75,109 0 0 0
affected, as
estimated by:
B # of people DSID 0 0 0 0 0 249,440 0 743,069 0 0 0
affected, as
estimated by:
As far as the 2013 drought was concerned, the situation was as follows:
• Nearly 40,800 hectares had been affected in the KARA region, particularly in the prefectures of Bassar and Dankpen, and about 45,686.3
tonnes of food crops had been destroyed;
35,777 vulnerable households Table 1: Populations and households affected in the region of KARA
Number of
Population
Prefectures Total population households
affected
affected
Bassar 119,717 119,717 17,102
Dankpen 130,723 130,723 18,675
Total 249,440 249,440 35,777
Table 2: Estimate of the areas lost for the prefectures of Bassar and Dankpen (KARA)PREFECTURES ESTIMATED AREAS (HA) Total
Maize Sorghum/millet Rice Groundnut Bean Soya Yam
Bassar 6,149 7,018 1,334 262 759 2,290 0 17,813
Dankpen 8,179 9,354 1,778 656 999 1,435 655 23,056
Total 14,328 16,372 3,112 918 1,758 3,725 655 40,869
Source: DSID, 2013
Table 3: Estimate of productions lost for the Bassar and Dankpen prefectures (KARA)
PRODUCTION ESTIMATED IN TONNES
PREFECTURES
Maize Sorghum/millet Rice Groundnut Bean Soya Yam
Bassar 6,089 4,714 2,423 176 333 2,382 0
Dankpen 6,713 8,515 1,329 2,116 1,717 1,920 7,260
Total 12,804 13,229 3,752 2,292 2,050 4,302 7,260
Source: DSID, 2013Table 4: Estimate of the value of financial loss for the prefectures of Bassar and Dankpen (KARA)
PREFECTU VALUE OF FINANCIAL LOSS IN MILLION CFA
Total
RE
Maize Sorghum/millet Rice Groundnut Bean Soya Yam
Bassar 949,946 839,128 433,681 59,811 136,781 316,779 0 2,736,127
Dankpen 1,047,244 1,515,563 237,837 721,692 705,893 255,373 900,203 5,383,805
Total 1,997,190 2,354,690 671,518 781,503 842,673 572,153 900,203 8,119,932
Source: DSID, 2013
2.6 HISTORICAL DROUGHT RESPONSES
During its recent history the country has experienced several episodes of drought which have had significant consequences on food and nutritional
security. Drought mainly occurs in the Savanes (Savannahs), Kara, Maritime and Eastern Plateaux (Highlands) regions (MERF (Ministry of
Environment and Forest Resources), 2009).
The damage caused by the various droughts has made it essential for the State and its partners to respond in such a way as to reduce the
consequences on the population. In general, the initiatives recommended in case of drought are short term emergency measures, medium term
coping mechanisms and the transfer of technology for adaptation to climate change in the long term.
The Green Revolution Programme was launched at the time of the 1977 drought. This programme was essentially developed to promote
motorised agriculture with the acquisition of 332 tractors, 88 transport units, 48 earth moving units, 31 bulldozers and more than 1000 accessories,
ploughs, harrows, seeders etc. (Alfred SCHWARTZ, ORSTOM, August 1989).
In response to the 2013 drought in Grand Bassar, the government undertook actions to build up and increase safety stock (or safety reserve)
managed by the National Food Security Agency (ANSAT) and increased the number of points of sale of cereals at subsidised prices in order to
bring these products closer to the populations affected by the disaster. Other measures were also taken to support the main overwintering of
2014-2015. Furthermore, the Togolese government sent a request for emergency assistance to the FAO asking for immediate support in inputsfor off-season crops. The FAO responded to this request with the TCP/TOG/3404 project: “Emergency assistance for the recovery of production
activities in households affected by drought” (Assistance d’urgence à la relance des activités productives des ménages affectés par la sécheresse)
for which it provided financing of 490,000 US dollars. This project made it possible to respond to the most urgent needs by supporting the
livelihoods of 2,000 vulnerable households through the distribution of 2,000 kits consisting of vegetable seeds, peanut seeds, fertiliser, plant
health products and small tools for the cultivation of vegetables in the off-season. (Evaluation report for the TCP/TOG/3404 project: “Emergency
assistance for the recovery of production activities in households affected by drought” (Assistance d’urgence à la relance des activités productives
des ménages affectés par la sécheresse), January 2015).
During the 2015 drought in the Plateaux region (Plateaux/East), the measures taken by affected households were increasing and diversifying
production, vegetable gardening, etc.
Response to droughts Year
By activity and source 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018
Individuals assisted through the sale of - - - - - 423,136 - 753,069 - -
food (rice and maize) at a subsidised
price (social price) (households)
Source: National Food Security
Agency of Togo (ANSAT: Agence
nationale de la sécurité alimentaire du
Togo or the
Households benefiting from the supply - - - - - 2,000 - - - -
of market garden kits (inputs and
small tools)
Source: FAO, Evaluation Report for
the TCP (Technical Cooperation
Programme)/TOG/3404 project
Beneficiaries of the supply of quality - - - - - 2,000 - - -
groundnut seeds
Source: FAO, Evaluation Report for
the TCP/TOG/3404 project
Households benefiting from training in - - - - - 2,000 - - - -
market gardening and mentoring
Source: FAO, Evaluation Report for
the TCP/TOG/3404 projectHouseholds benefiting from awareness - - - - - 2,000 - - - -
and training in resilience
Source: FAO, Evaluation Report for
the TCP/TOG/3404 project
2.7 DISCUSSION OF THE HISTORICAL DROUGHT CONDITIONS, VULNERABLE POPULATIONS AND RESPONSES
Over the past ten years, drought occurred in 2013 and 2015. This resulted in a deficit rainfall which led to a drop in production, a rise in food
prices, a massive rural exodus, and a decline in people's purchasing power. Of the two droughts, only that of 2013 experienced a response. This
response resulted in the distribution of agricultural inputs for market gardening. It was coordinated by the Ministry of Agriculture, Livestock and
Fisheries and implemented by FAO through a Technical Cooperation Programme (TCP). A total of US$ 490,000 (TCP 3404, FAO) made it
possible to provide assistance to 2,000 vulnerable households, or approximately 14,800 people including 30% of women. In addition, the
Government, through the National Food Security Agency of Togo (ANSAT or Agence nationale de la sécurité alimentaire du Togo), has taken
steps to reinforce and increase the food security stock and has expanded the points of sale of cereals. This response has been successful in
improving the incomes of the population and in ensuring availability of a varied diet.3 INSTITUTIONAL ARRANGEMENTS
3.1 EXISTING NATIONAL POLICIES OR LEGISLATION
The regulatory framework (legislation) related to droughts
- The National Development Plan (PND: Plan National de Développement)
Togo has drawn up a national development plan for the period from 2018 to 2022 (PND 2018-2022). The hope of the Togolese authorities is to
make Togo a middle-income country which is socially and democratically robust and stable, cohesive and open to the world. The overall objective
of the PND is to transform the economy structurally to attain a strong, durable, resilient, inclusive growth that will create decent jobs
and lead to an improvement in the well-being of society as a whole.
The 2018-2022 PND will be implemented in a context which presents risks which could impede the progress of Togo towards becoming an
emerging economy. The government is considering implementing a reasoned agenda of large-scale measures and reforms which will lead to a
lessening of these risks and the structural transformation of the economy.
Challenges will also be dealt in conjunction with the definition of a public investment policy, in particular in the sphere of infrastructure supporting
growth (energy, transport, agriculture, ICT, etc.), to facilitate the structural transformation of the economy and to strengthen the role of the private
sector in this process. The inclusion of climate-related scenarios in the design and sizing of civil engineering works and infrastructure (hydro-
agricultural, roads, tracks, docks etc.) will make it possible to ensure that they are tough and resilient in the face of disaster risks and the weather.
- Togo’s Agricultural Policy for 2016-2030 and the 2017-2026 PNIASAN
In 2015 Togo adopted an agricultural development policy for the period 2016-2030. This policy is accompanied by a strategic plan (2017-2026
PNIASAN: Programme National d’Investissement Agricole et de Sécurité Alimentaire et Nutritionnelle or National Agricultural Investment and
Food and Nutrition Security Programme). Togo’s new agricultural policy is based on eight fundamental principles including the Protection of the
environment and of available natural resources (v). This policy has identified the risks related to social and environmental factors such as the
major risk which could hinder the achievement of policy objectives and has therefore included mitigation measures in the action plan. Over and
above the option to promote the development of infrastructure to manage water for agricultural purposes and the adoption of innovative technology
adapted to climate change, the third (3rd) thrust of the national agricultural and food and nutritional security investment programme (2017-2026
PNIASAN) is focuses on improving the resilience, the provision of food and the nutritional status of inhabitants.The National Policy on Social Action The National Policy on Social Action was drawn up in 2014 with the purpose of making Togo a country where all inhabitants are protected against social risks and vulnerabilities with a significant participation of all their components in the production of national wealth and its full enjoyment. Programme 5 of this policy aims at “Building the capacity of resilience in inhabitants in coping with shocks and disasters” (Renforcement des capacités de résilience des populations face aux chocs et aux catastrophes), (i) building community capacity with regard to the prevention of and adaptation to the effects of disasters and (ii) building capacity for relief to be provided for victims of natural and man-made disasters. - The National Policy on the Environment (PNE) By 2025, the national policy on the environment aims to achieve the effective integration of the environmental dimension into development plans.. - The National Risk Reduction Strategy of 2009 In order to prepare itself to deal effectively with natural disasters and technological risks, the government has been drawing up a National Strategy on Risk and Disaster Reduction (Stratégie Nationale de Réduction des Risques de Catastrophes) since 2009, to act as a tool to guide all actions to be conducted in synergy in order to protect inhabitants from disasters. To this end, the government undertakes the following: (i) to build national capacity in terms of the reduction of the risk of disasters and management of natural disasters and technological risks; (ii) to integrate disaster risks into planning, design and management of development programmes and projects and to develop a paradigmatic and conceptual framework of RRC (disaster risk reduction) as well as the procedure for integrating them into the strategy; (iii) pursuing the drafting and implementing of texts pursuant to the Act on biotechnology. - Country Resilience Priorities (PRP-AGIR) In 2015 Togo drew up a document on priorities in terms of the country’s resilience (Country Resilience Priorities or Priorités résilience pays: PRP- AGIR). The general purpose of the first five-year plan from 2015-2020 in Togo is to make vulnerable households more resilient to disasters by the end of the five-year plan and provide its inhabitants with acceptable and safe living conditions. The specific objectives and effects/impacts hoped for within the 5 year period can be visualised as the four pillars of the alliance: (i) improve social security in vulnerable households and communities in order to secure their means of livelihood; (ii) improve nutrition in vulnerable households; (iii) lastingly improve agricultural and food productivity, the income of the most vulnerable and their access to food; (iv) strengthen the governance of food and nutritional security. - The National Multirisk Contingency Plan of Togo for 2015-2016 (Plan National de Contingence Multirisques du Togo)
This plan aims to provide information on the country's risk levels, the skills and resources available and their locations, the sources of emergency funding, and to bring together the actors of the Civil Security Response Organization Plan (ORSEC Plan), civil society and the community of partners before, during and after the crises. For this update, three (03) hazards were selected: epidemics, floods, and high winds. Unlike the 2015-2016 plan, which considered drought, the 2018-2019 plan did not include it because of the hydrometeorological forecasts announced. However, it is not excluded that the hazard may be included in the next update. The overall objective of this plan is to provide disaster relief and assistance to affected and vulnerable people in the most rapid and effective manner possible, avoiding waste of time, duplication of interventions, omissions or even injustices, in accordance with universal humanitarian principles. These are specifically: ▪ clarify the relationships and responsibilities between the various technical services of the State and the Humanitarian Partners; ▪ identify and reduce the most probable risks; ▪ provide a general framework for joint planning covering emergency risks; ▪ integrate the process of prevention, preparedness and response to emergencies into national development plans and programmes; ▪ reduce response times and the number of human casualties. - The National Policy on Civil Protection for 2030 (February 2017) (Politique Nationale de la Protection Civile, horizon 2030) The vision of the national civil protection policy “up to 2030 is for Togo to become a country where security and the protection of persons and goods are guaranteed by reducing disaster-related risks of all kinds in a peaceful political environment, through respect for human rights, the workings of democracy, social and economic justice and lasting stability to promote economic growth and job creation”. The regulatory framework (legislation) related to Disaster Risk Management At a national level, several mechanisms within the framework of prevention, management and response to disasters were instituted and have already been the subject of experiment in the field with the involvement of various Ministries and non-government role-players, such as international and/or humanitarian organisations, the private sector, the United Nations System and other technical and financial partners. The following mechanisms can be quoted as examples: the Integrated Disaster and Land Management Project (PGICT: Projet Gestion Intégrée des Catastrophes et des Terres), the disaster relief organisation plan (ORSEC: Plan d'Organisation des Secours en cas de Catastrophe), the National Multirisk Contingency Plan (Plan National de Contingence multirisque: PNC, PRC), the National Analysis System and Risk Cover (le Système National d’Analyse et de Couverture des Risques: SNACR). Within the context of disaster risk management and prevention, the government has developed organisational, technical and material capacity building systems which play a part in disaster risk management. In this way, the National Civil Protection Agency (ANPC: Agence Nationale de
la Protection Civile) was adopted by government in January 2017, and it adopted the national civil protection policy in February 2017. Moreover,
data-collecting officials, supervisors and facilitators of the early warning system (EWS or SAP: Système d’Alerte Précoce) at community level
were trained, twenty tree (23) local and regional disaster management platforms have been established in those prefectures that are most
exposed to climatic hazards. These are the prefectures of Zio, Yoto, Bas-Mono, and Lakes in the Maritime Region; Haho, Middle Mono, East
Mono, Anie, Ogou, Wawa, Danyi, Kpele, Kloto and Agou in the Plateaux region; Blitta, Tchamba, Chaoudjo and Mo in the Central Region;
Dankpen, Binah and Kozah in the Kara region and; Tône and Kpendjal in the Savannah region.It is within this framework that the technical unit
of the fire-brigade was reinforced with communications equipment including 44 radios, 2 relay antennae, and 10 portable post storage batteries
to facilitate rapid intervention in case of emergency. Similarly, to make the intervention of the fire brigade more rapid, 4 emergency rescue units
were built in Dapaong, Sokodé, Atakpamé and Lomé North GTA, 5 ambulances and 4 motor pumps and accessories were acquired and made
available to regional rescue units; this has made it possible to increase the resilience of inhabitants of the country’s interior when dealing with
disasters. These actions have also made it possible to increase the coverage of the national territory by an early warning system which went from
a rate of 2% in 2013 to 10% in 2015, then to nearly 14% in 2016.
3.2 EXISTING ASSESSMENT PROCESSES
The Ministry of Agriculture, Livestock and Fisheries production is responsible for the coordination of ARC in Togo. The Secretary General (or
Permanent Secretary) of the Ministry of Agriculture, Livestock and Fisheries ensures the national co-ordination of ARC.
At the operational level, monitoring and evaluation is performed by the National Agency for Civil Protection (ANPC)) and the Agricultural
Statistics, Information and Documentation Directorate (DSID: Direction des Statistiques Agricoles, de l'Informatique et de la Documentation).
The evaluation will be participative and performed by an interministerial committee, composed, among others, local authorities, NGOs, UN
agencies, ministries of agriculture, civil protection, social action, health, finance etc.
The DSID and INSEED carry out the data gathering and analysis processes.
EXISTING ASSESSMENT PROCESSES
All of the following tools allow you to evaluate food and nutritional status of the population. It is a participatory assessment.
➢ Permanent Survey System (SPE)The permanent survey system (SPE) was set up following the completion of the fourth National Census of Agriculture (4th ANN) carried out in 2012-2013. This device is part of the intervention logic of all agricultural census work. It is set up for a period of 10 years and makes it possible to collect current statistics from the sample operators or to carry out, if necessary, specific surveys to evaluate an economic situation. I.e natural disasters, surveys periodicals, etc. This survey system has a network of 220 survey agents deployed in all prefectures in the country and is based on a representative sample of 2000 farms set up for this purpose. This sample was broken down by region as follows: 432 in the Maritime Region, 532 in the Plateaux, 300 in the 368 Central in the Kara and 368 in the Savannas. ➢ The National Agricultural Census (RNA): was carried out in 2012 by the Directorate of Agricultural Statistics, Informatics and Documentation (DSID), which has five regional coordinators, who are the heads of the agricultural statistics sections; accompanied by five supervisors and forty controllers and a vast network and three hundred enumerators spread throughout the country, all equipped with rolling stock, GPS, ribbons and collection tools (questionnaires and agents' guide) developed for this purpose. The data analysis was carried out by the statistical division and the IT division, which has 80 data entry officers. The evaluation started with the pre-census of all rural households. This pre-census was accompanied by the additional module which consisted in counting cattle, sheep, goats, poultry and objective measurements of crop plots etc. and provided data on agricultural activities. This census is a follow-up to the 1996 census. ➢ The CWIQ (Core Welfare Indicators Questionnaire; known in French as QUIBB: Questionnaire Unifié des Indicateurs de Base de Bien- être) survey: is designed to gather significant data sources to assess the situation of poverty and measure inequalities in the redistribution of the growth produced within the population. It was carried out by the General Directorate of Statistics and National Accounts (DGSCN), which has now become the National Institute of Statistics and Economic and Demographic Studies (INSEED). These surveys, called "Survey on the Questionnaire of Core Welfare Indicators (QUIBB)", were conducted in 2006, 2011 and 2015. The much more detailed 2011 survey covered 5,532 household’s representatives of the Togolese population at the national level. All three surveys have the same objective, which is to provide the necessary evidence for poverty assessment. This includes socio-demographic information (household composition, education, etc.), housing characteristics, ownership of durable goods, access to basic infrastructure. It also collects sufficient information to estimate the total consumption expenditure of each household. This covers both food and non-food expenses. Food and non-food products can be purchased by households or acquired in another way (self-consumption/supply, remuneration for work in kind, gifts received). ➢ The Multiple Indicator Cluster Survey (MICS4): was conducted in 2010 using four types of questionnaires and was coordinated by the INSEED. The collection tools were pre-tested for five days from July 15 to 19, 2010. Based on the results of the pre-test, changes were made to the wording of some questions. The training for the main survey brought together about 100 agents at different locations and lasted three
weeks (from 9 to 28 August 2010). During the first two weeks, all candidates participated in a training program dedicated to the various theoretical and practical aspects of the survey. Specialists (doctors, nutritionists and health technicians) supplemented the training of collection agents with presentations on the specific aspects covered by the questionnaires. After the training and selection tests, thirteen teams were formed: each team consisted of nine members including a team leader, a controller, three investigators, an investigator, a scaler and an assistant scaler and a scaler supervisor. The survey data were processed as the fieldwork progressed. The data entry began on 13 September 2010 and was carried out using the CSPro software on about ten microcomputers by ten data entry operators supervised by two supervisors. In order to ensure quality control, all questionnaires were double entered and internal consistency checks were carried out. Standard procedures and programmes developed as part of the overall MICS4 programme and adapted to Togo's MICS4 questionnaire were used from the beginning to the end of the data processing process. The data were analyzed using the Statistical Package for Social Sciences (SPSS) software, Version 18, based on the syntax model and data exploitation plans developed by UNICEF. ➢ The Togo Demographic and Health Survey (EDST: Enquête démographique et de santé du Togo): provides reliable and detailed data on demographic, socio-economic and health factors that are likely to influence the health and demographic situation. Amongst other things, it evaluates the nutritional status of children and women as well as the food practices of children, including breastfeeding, as well as measures the consumption of iodized salt at the household level. ➢ The SMART (Standardised Monitoring and Assessment of Relief and Transitions) Survey: is a targeted and localised survey methodology. It is used to assess the nutritional status among children aged between 0 and 59 months. ➢ Food Security analysis: it is a periodic analysis cycle that is carried out twice per crop year using a harmonized framework that identifies and maps risk areas and food and nutrition insecure populations. It is carried out by a national team composed of focal points from the various structures involved in monitoring food and nutritional security, whose coordinating structure is the Directorate of Agricultural Statistics, Informatics and Documentation. This analysis consists of collecting data on outcome indicators such as consumption and food diversity scores, household economy analysis (HEA) results, mortality rates, etc. and those of contributing factors such as data on vulnerability hazards (bushfires and refugee situation); food availability (year-round rainfall, coverage rate / Prefecture, food and livestock production, cash crops, fishing, forage production); Accessibility (prices of basic foodstuffs in all prefectures, livestock/by region, coffee, cocoa and cotton), Use (coverage rate, admission rate of malnourished children to CRENI and CRENAS for all regions); Stability (institutional stocks at national level and production trend).
3.3 CONTINGENCY PLANNING PROCEDURES FOR DROUGHT As soon as the software triggers the drought alert in a given locality, a field mission is conducted in order to verify the veracity and scale of the phenomenon. If the alert is verified, a crisis meeting, gathering all stakeholders, is convened to prepare a damage assessment, as well as an appraisal of affected people and assistance needs in the concerned area. At the end of the crop year, an assessment is made. Emergency food assistance for victims is unlocked by the National Agency for Civil Protection (ANPC) through the National Solidarity Agency (ASN) of the Social Action Minitry with the support of the National Food Security Agency of Togo (ANSAT). Institutions such as health, address malnutrition issues. Institute for Agricultural Extension (ICAT: Institut de Conseil et d’appui technique), and the Togolese Agricultural Research Institute (ITRA: Institut togolais de recherche agronomique) in the production and dissemination of technologies and useful advice and practices for better agriculture production for the next agricultural seasons (planting seasons). In its regalian role, the Government carries out initiatives aimed at protecting its people in times of drought that can be strengthened with an ARC payout. As such, this payment can be used, in an intervention, as follows: 1. A payout of less than USD 1 million For a payout of this order, actions will be mainly orientated towards supporting the livelihoods of affected communities (50 000 people) through cash transfers, food distribution 2. A payout of USD 5 million In addition to the initiatives mentioned in point 1 above, they will be sale of food at social price (for 250 000 people) 3. A payout of USD 15 million
With this payment, the country will deploy the three interventions identified, such as food distribution, cash transfer and food sale at social
price, and/or support to the off-season crops practice (500000 people)
3.4 DROUGHT RESPONSE COORDINATION MECHANISM
In times of emergency due to drought in Togo, the ANPC coordinates the intervention of the actions to be taken in the areas concerned. In
drought conditions, a rapid assistance needs assessment mission in the affected areas takes place. The evaluation will be participatory and
ensured by a multi-sectoral committee made up of, local communities, NGOs, UN agencies, civil society organizations such as the Togolese Red
Cross and other humanitarian organizations. , ministries responsible for agriculture, civil protection, social action, health, finance, planning etc.
Data collection and analysis is provided by the Directorate of Agricultural Statistics, Informatics and Documentation (DSID).. This rapid
assessment report provides the fundamentals for the deployment of emergency care and the launch of a call for international assistance if
necessary. With regard to the technical aspects associated with agricultural production to be achieved on the field, , under the coordination of
the Ministry of Agriculture.
The drought response coordination mechanism can be summarized as follows:-Directions régionales ANPC
-DSID ANPC et Secrétariat National Direction chargée des
-Direction régionales du ministère de ARC opérations à l’ANPC/Agence
l’agriculture de solidarité nationale (ASN)
-Structures déconcentrés des ministères Coordination des
Implémentation des
sectoriels interventions
-ONG et OSC interventions
-Collectivités locales
-Agences SNU
Ciblage géographique, évaluation
des impacts et identification des
Assemblée de village et de quartier
ménages affectés
(Chef de village, CVD, CDQ)
-ANSAT
Validation de la liste des -Autres sociétés
ménages ciblées de distribution de
produits
alimentaires
-Société de
transfert
monétaire
Bénéficiaires
3.5 PROPOSED FINANCIAL ARRANGEMENTS AND COORDINATION OF ARC PAYOUT
• Establishment of a special account for the project tithin the Public Treasury, the Coordination (Permanent Secretary of the MAEP) is the
administrator of this account;• Disbursement on request to Treasury. In case of disaster, other development partners (UNDP, World Bank, FAO…) bring their aid, if
necessary. However, only ARC funds can be transferred into the account dedicated to the ARC programme ;
• Funds disbursed from ARC cannot be merged with other contributions, since the Coordination is the exclusive manager of the ARC
programme and associated funds;
• Funds disbursed from ARC are intended to finance activities included in this Operations Plan. However the Government will discuss the
possibility of reallocation of ARC with the ARC institution, while taking due account of reality;
• Allocation of funds to each implementing partner according to their activities;
• Monitoring transfer spending to beneficiaries and other various activities by the Coordination and staff of the implementing body at regional
and prefectural level;
• Internal audit by the implementing body;
• Inspection by the National Directorate for Financial Auditing and the Inspection of Finance (Direction Nationale du Contrôle Financier
and Inspection des Finances).
4 RISK TRANSFER PARAMETERS (TO BE COMPLETED AFTER DISCUSSION WITH ARC LTD)
5 SCENARIO DEFINITION AND GEOGRAPHIC COVERAGE
Scenario Description
#1: Small payout Below average rainfall, coinciding with the severity of a 1 in 5 year drought. Expected ARC payout below USD
1 million. Food distribution and cash transfer activity will be implemented#2: Medium payout Below average rainfall, coinciding with the severity of a 1 in 7 to 10 year drought. Expected ARC payout around
USD 5 million. Cash transfer and food distribution will be implemented
#: 3 Large pay out Well below average rainfall, coinciding with the severity of a 1 in 30 year drought. Expected ARC payout of the
ARC maximum of USD 15 million, OR the maximum granted to the country based on the risk transfer
parameters. With this payment, the country will deploy the three interventions identified, such as food
distribution, cash transfer and social price sale, and/or support to the off-season crops practice.
5.1 DROUGHT MODEL SCENARIOS
Estimated number of vulnerable people affected under each payout scenario
Admin Level Admin Small payout Medium payout Large pay out
1 Level 2
Region Prefecture Men Women Total Men Women Total Men Women Total
Central Blitta 15,523 15,542 31,065 20,872 20,898 41,770 22,655 22,683 45,338
Central Sotouboua 13,925 13,582 27,507 18,723 18,263 36,986 20,323 19,823 40,146
Central Tchamba 14,724 14,857 29,581 19,798 19,977 39,774 21,489 21,683 43,172
Central Tchaoudjo 21,553 21,572 43,125 28,980 29,006 57,986 31,456 31,484 62,940
Kara Assoli 4,906 4,858 9,764 6,541 6,477 13,019 6,839 6,772 13,611
Kara Bassar 11,186 11,410 22,597 14,915 15,214 30,129 15,593 15,905 31,498
Kara Binah 6,616 6,728 13,344 8,821 8,970 17,792 9,222 9,378 18,600
Kara Dankpen 11,874 12,625 24,498 15,831 16,833 32,664 16,551 17,598 34,149Kara Doufelgou 7,143 7,830 14,974 9,524 10,441 19,965 9,957 10,915 20,873
Kara Keran 8,630 9,093 17,722 11,506 12,124 23,630 12,029 12,675 24,704
Kara Kozah 21,270 21,893 43,164 28,360 29,191 57,552 29,649 30,518 60,167
Maritime Ave 5,701 6,214 11,915 7,307 7,964 15,272 7,709 8,402 16,111
Maritime Bas-Mono 5,349 5,851 11,200 6,856 7,499 14,355 7,232 7,911 15,143
Maritime Lacs 10,559 11,339 21,898 13,534 14,533 28,066 14,277 15,331 29,608
Maritime Vo 12,524 14,029 26,553 16,052 17,981 34,033 16,934 18,969 35,903
Maritime Yoto 10,122 10,794 20,916 12,973 13,835 26,807 13,685 14,595 28,280
Maritime Zio 16,987 18,332 35,319 21,772 23,496 45,267 22,968 24,787 47,755
Plateaux Akebou 13,260 12,797 26,058 15,064 14,537 29,601 15,276 14,742 30,018
Plateaux Amou 22,243 22,243 44,487 25,268 25,268 50,537 25,624 25,624 51,249
Plateaux Anie 26,022 26,521 52,543 29,561 30,128 59,689 29,977 30,552 60,529
Plateaux Danyi 8,484 8,020 16,504 9,638 9,111 18,749 9,773 9,240 19,013
Plateaux Est-Mono 25,558 25,594 51,153 29,034 29,075 58,109 29,443 29,484 58,928
Plateaux Haho 50,903 53,220 104,123 57,826 60,458 118,284 58,640 61,309 119,950
Plateaux Kloto 29,266 30,228 59,494 33,246 34,339 67,585 33,714 34,823 68,537
Plateaux Kpele 16,255 15,827 32,082 18,465 17,979 36,445 18,725 18,233 36,958
Moyen-
Plateaux 14,294 17,966 32,260 16,238 20,409 36,647 16,467 20,697 37,163
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