Various In-Country Factors Affect USAID and Implementing Partners’ Ability to Target Food Assistance Effectively to Vulnerable Groups

USAID and its implementing partners face a range of in-country factors  that, to varying degrees, affect their ability to effectively target food  assistance to vulnerable groups. These factors include (1) the quality of  data used to identify and reach recipients, (2) host government policies,  and (3) sharing of rations among recipients and community members. Targeting effectiveness is reduced when data quality is poor, host  government policies cause distortions in program design and  implementation, and sharing prevents food rations from being consumed  by the intended recipients in the intended amounts. USAID and its  implementing partners take steps to mitigate such challenges by, for  example, employing technology to improve data quality, coordinating  closely with government officials to foster better relationships, and  educating recipients about proper food usage to reduce sharing. In some  cases, host governments have facilitated targeting efforts by, for example,  establishing national targeting guidelines that set a common standard, or  national statistical offices that assist in collecting data. Nevertheless,  ensuring that food assistance reaches intended recipients remains  difficult. In the design phase of the  targeting process, USAID does not provide sufficient guidance on  whether and how to target specialized food products. Furthermore, its evaluations do not  systematically address targeting effectiveness. Without adequate  guidance, monitoring, and evaluations, USAID cannot ensure targeting  effectiveness in its food assistance programs. USAID is taking some  steps to improve both guidance and monitoring. For example, USAID has  a contract with Tufts University to develop updated guidance, and the  agency is taking steps to improve monitoring by planning to track  indicators such as detailed age breakdowns that are key to better  understanding targeting effectiveness. However, these steps do not fully  address the weaknesses in USAID’s targeting process. USAID Does Not Provide Sufficient Guidance in the Design Phase on Whether and How to Target Specialized Food Products, Although the Agency Is Starting to Make Improvements

			USAID’s Guidance for Targeting Is Neither Up-to-Date Nor Complete, Hindering Decision Making

We found that USAID’s guidance for targeting is neither up-to-date nor  complete for both emergency and development programs, which reduces  the ability of implementing partners to make informed decisions in the  design phase. Weaknesses in USAID’s Monitoring and Evaluation Efforts Related to Targeting Could Limit Targeting Effectiveness and Hinder Decision Making, but the Agency Is Starting to Take Steps to Improve Monitoring

			USAID Does Not Monitor Key Indicators of Targeting Effectiveness, but Is Initiating Improvements in This Area

USAID does not require monitoring of key indicators needed to determine  the level of targeting effectiveness, although it is beginning to make  improvements in this area. Recommendations for Executive Action

To improve USAID’s targeting of specialized food products to vulnerable  groups, such as children under 2 and pregnant women, we recommend  that the Administrator of USAID take the following two actions:
As USAID continues to purchase new specialized food products  without updated guidance, it should issue, as appropriate, improved  interim guidance to assist implementing partners in deciding whether  and how to target specialized food products. USAID agreed with our recommendation on establishing and reporting  program-specific indicators to allow USAID to assess its programs’  effectiveness in reaching targeted groups. Appendix I: Objectives, Scope, and Methodology

Our objectives were to (1) describe in-country factors that the U.S.  Agency for International Development (USAID) and its implementing  partners face in targeting vulnerable groups, and (2) examine the extent  to which USAID’s targeting process supports effective targeting.
Why GAO Did This Study

In fiscal year 2011, USAID spent approximately $1.7 billion on food assistance reaching over 46 million people in 48 countries. USAID targets food assistance so that benefits accrue selectively to only a portion of the overall population, typically the most vulnerable. Effective targeting is important to maximize the impact of limited resources, especially as USAID begins to use more nutritious but more costly specialized food products to address hunger and malnutrition among vulnerable groups. GAO was asked to (1) describe in-country factors that USAID and its implementing partners face in targeting vulnerable groups, and (2) examine the extent to which USAID's targeting process supports effective targeting. GAO analyzed program data and documents; interviewed relevant officials; convened a roundtable of food assistance experts and practitioners; and conducted fieldwork in Ethiopia, Guatemala, Sri Lanka, and Zimbabwe.

What GAO Found

In-country, the U.S. Agency for International Development (USAID) and its implementing partners face a range of factors that, to varying degrees, affect their ability to target food assistance effectively to vulnerable groups. These factors include (1) the quality of data used to identify and reach recipients, (2) host government policies, and (3) sharing of rations among recipients and community members. Targeting effectiveness is reduced when data quality is poor, host government policies cause distortions in program design and implementation, and sharing prevents food rations from being consumed by the intended recipients in the intended amounts. USAID and its implementing partners try to mitigate such challenges by, for example, employing technology to improve data quality, coordinating closely with government officials to foster better relationships, and educating recipients about proper food usage to reduce sharing. In some cases, host governments have facilitated targeting efforts by, for example, establishing national targeting guidelines that set a common standard, or national statistical offices that assist in collecting data. Nevertheless, ensuring that food assistance reaches intended recipients remains difficult.
Weaknesses in the design, monitoring, and evaluation phases of USAID's targeting process hinder targeting effectiveness, although the agency is taking actions to make improvements. In the design phase of the targeting process, USAID does not provide sufficient guidance on whether and how to target specialized food products. Specifically, USAID's guidance on design currently is neither up-to-date nor complete, and does not adequately address key benefits and risks that inform decisions on whether and how to target specialized food products. In USAID's monitoring and evaluation phases, weaknesses limit targeting effectiveness and hinder decision making. USAID currently does not require monitoring of key indicators needed to determine the level of targeting effectiveness. For example, during implementation USAID does not monitor actual recipients in its emergency programs. Furthermore, its evaluations do not systematically address targeting effectiveness. Without adequate guidance, monitoring, and evaluations, USAID cannot ensure targeting effectiveness in its food assistance programs. USAID is taking some steps to improve both guidance and monitoring. For example, USAID is updating guidance and plans to track indicators such as detailed age breakdowns that are key to better understanding targeting effectiveness. However, these steps do not fully address the weaknesses in USAID's targeting process.

What GAO Recommends

GAO recommends that the Administrator of USAID improve USAID's targeting of specialized food products to vulnerable groups by (1) issuing, as appropriate, improved interim guidance to assist implementing partners in deciding whether and how to target specialized food products; and (2) establishing and reporting program-specific indicators related to targeted vulnerable groups, to assess effectiveness in reaching such groups. USAID agreed with the recommendations and provided examples of recent efforts to address them.