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The World Bank Group has undertaken cotton-related activities in several developing countries. Traditionally, the Bank's involvement has taken the following forms: lending to support the cotton sector-for both investment and technical assistance-either from IBRD loans or IDA credits; and policy advice through economic and sector work, usually linked to policy reforms associated with quick-disbursing loans and credits.
Lending and Technical Assistance Projects
The World Bank has approved a number of cotton-related investment and adjustment op-erations. Two operations were approved during the 1990s. Approved in 1994 for a total of US$14 million, the Cotton Development Project in Uganda sought to improve performance in the cotton industry through liberalization of cotton processing and export marketing; establish an efficient regulatory framework for the cotton industry; and improve manage-rial, technical, and operating efficiency in a creditworthy ginning industry. The project also sought to improve efficiency of supporting services through support for national re-search and extension programs and also to improve delivery mechanisms and availability of credit and seeds. Approved in 1995 in the amount of US$66 million, the Cotton Im-provement Project in Uzbekistan was designed to liberalize prices of cotton seed, bring producer prices for seed cotton marketed under the state system closer to international prices, create a private cotton-planting industry, eliminate input subsidies, and shift cotton trade from barter-based to cash-based transactions.
More recently, the World Bank made loans in West and Central Africa that had components directly or indirectly affecting the cotton sector. The Cotton Sector Reform Project in Benin (approved in 2002), is expected to facilitate transition to a competitive sys-tem through support of private sector operations and institutional change resulting from the privatization of the National Company for Agricultural Promotion's (SONAPRA) gin-ning activities. This project component's main focus is supporting the institutions involved in cotton ginning and primary marketing to help them become strong and effective. Tech-nical assistance and advisory services will cover management responsibilities, auditing, and financing operations, including training for institutional capacity building. Further-more, the project will support the implementation of sectorwide technical-service pro-grams to help the private sector take over the agricultural services and other technical support functions carried out by SONAPRA. The effort to privatize SONAPRA's ginning plants includes assistance and advisory services, notably to address social issues and the financial needs of the government's conversion program.
The Second Poverty Reduction Support Credit Project in Burkina Faso, approved in 2002, is an integral part of the Country Assistance Strategy to support the implementation of the Poverty Reduction Strategy Paper (PRSP). It is the second in a series of three planned operations.
The project is designed to help the government achieve better out-comes in public resource management by
(i) strengthening program budgets and linking allocations to specific sector objectives, strategies, and action plans
(ii) improving service delivery in education, health, and rural development and
(iii) strengthening the fiduciary framework to promote accountability and transparency in the use of public funds, includ-ing external aid.
In the context of its rural development component, the government, in collaboration with the World Bank, will closely monitor the poverty impact of cotton liber-alization in the medium-term and take corrective measures if necessary. An upcoming PRSC III program ($50 million) is expected to continue to foster the reform process in the cotton sector by supporting participatory mechanisms for developing the rules and condi-tions governing the opening of two cotton zones to private investors, awarding the con-tracts, and addressing issues related to input financing.
The Structural Adjustment Credit Project V in Chad, approved in 2003, is designed to support the cotton-sector reform program. Its primary goal is to improve the livelihoods of about 300,000 poor families. Given the complexity of the reform program, which is be-ing introduced in a context of depressed world cotton prices and barely functioning rural markets, it will be a challenge to ensure the program's consistency with its stated objective. To overcome this risk, a study has been carried out to identify the most appropriate sce-nario for the state's divestiture from Cotontchad. Moreover, an extensive ex-ante and ex-post poverty and social impact analysis is being completed, the results of which will feed into the design of the reform program and allow for ex-post adjustments if necessary.
The Third Structural Adjustment Credit in Mali, approved in 2001 and currently under way, supports
(i) recovery and restructuring of the cotton sector to restore positive economic growth and
(ii) public expenditure reforms aimed specifically at advancing the government's poverty reduction objectives.
The government has laid out its policy for re-forming and liberalizing the cotton sector, including a plan to privatize the cotton com-pany's agro-industrial and commercial activities. The first phase of the project includes ini-tial divestment activities and design of a full sector-liberalization program. The restructur-ing program will necessarily span several years and require an effort to create an appro-priate framework to attract private capital and know-how and to build the capacities of key participants, notably the farmers' organizations. Reinforcement of the capacity of farmers' organizations to play an increasing role in the management of the cotton sector will be provided separately.
Finally, under the Agricultural Services and Producer Organizations Project, ap-proved in 2001, the authorities in Mali expect to implement the first phase of the reform program. Its objectives were to
(i) restore the cotton company's financial stability so as to allow it to secure financing for the forthcoming crop season
(ii) achieve efficiency gains in the cotton company through restructuring and divestment of non-core activities
(iii) di-vest to the private sector the cotton collection and marketing activities in one cotton grow-ing area
(iv) privatize the cotton-oil company
(v) assure that the producer price of cotton for the 2001-02 crop year was high enough so that confidence of the farmers would be maintained, compensate for the heavy losses in rural incomes suffered in 2000-01, and re-dress the impact on rural poverty and
(vi) define and prepare the final phase of the sec-toral reform program.
Non-Lending Activities
In addition to its lending operations, the World Bank has engaged in non-lending activities that include policy advice, sector work, dissemination activities, and, more recently, price-risk management.
The World Bank has been active in assisting the reform process in the cotton-producing countries of West and Central Africa. To that end, numerous consultations have taken place among the relevant stakeholders, including farmers' organizations, the cotton companies, the French cotton parastatal, and the multilateral donors. Initially, the discus-sion regarding the reasons for reform took a heated tone, most likely due to misunder-standing. Later, however, a consensus emerged. As the special issue of Cotton Outlook on the cotton sector of West and Central Africa noted : "Much of the impetus for change in the regions has come from ... the World Bank [which] provides a clear outline of the main policy options now under consideration. It is encouraging to note that the sometimes acrimonious nature of the recent debate with regard to the future of cotton in Francophone producing countries appears to be giving away to a more constructive dialogue."
The World Bank along with AFD convened two major regional meetings, a techni-cal symposium on cotton sector policies in Ouagadougou in 1999 and a ministerial meet-ing in Abidjan in 2002 on the cotton reforms and the global environment for cotton trade. Furthermore, the World Bank is currently finalizing a study on long term development strategies for the cotton sector in West and Central Africa countries, focusing on 4 main ar-eas: the potential for textile and garment sector development; future trading mechanisms for an expanding cotton sector; technology generation and dissemination to sustain long term competitiveness; and raising the poverty impact of cotton cultivation. The World Bank and ICAC co-sponsored a conference on "Cotton and Global Trade Negotiations" (July 8-9, 2002) that boosted awareness of the global policy environment in the cotton market. Cotton also figures prominently in Global Agricultural Trade and Developing Coun-tries, an edited volume forthcoming from the World Bank. Numerous commodity-related briefings of the Bank's Board of Executive Directors have taken place, including one that focused exclusively on cotton .
Managing price risk in the cotton sector is another area in which the World Bank has been active. Price-risk management in the cotton sector is complicated due to the pres-ence of high basis risk-that is, low correlation between the New York Board of Trade fu-tures contract and the A Index, the main price measure of the world cotton market. In ad-dition to the basis risk, use of the New York contract by producers and traders outside the United States involves currency risk (for example, Euro/$ exchange-rate risk in the case of West and Central Africa). Despite these difficulties, the World Bank recognizes that man-aging risk, especially in an environment where cotton growers are fully exposed to the forces of demand and supply, is an issue that must be fully explored. Currently, the World Bank and ICAC are examining the existing pricing and marketing systems in selected West and Central Africa countries in order to assess the potential of various devices to manage and mitigate risk. The work will focus on two key areas. First, it will examine the existing marketing and price mechanisms and the way in which risks are currently allo-cated. Second, it will study potential risk-mitigation devices that go beyond the existing New York futures contract, such as over-the-counter or forward contracts offered by large banks, cotton merchants, and investment houses.