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Undernutrition: What works?

Undernutrition: What works?


A policy briefing

Executive summary January 2011

W orldwide progress in reducing rates of child-


hood undernutrition has been relatively slow
and variable. Indeed, in too many countries, rates are
Key messages
■ A combination of six key success factors – strong
political will, civil society participation and owner-
unacceptably high. There is no doubt that the fight
ship, a multi sectoral and multi phase approach,
against undernutrition will remain relevant for many
institutional coordination and contintuity of sus-
years to come. Nevertheless, behind the global statis-
tainable financial investment – make up an ideal
tics lie some success stories. This briefing is based on
‘enabling environment’, which if in place should
the outcome of secondary research which examines
facilitate a reduction in rates of childhood undernu-
five such stories – Brazil, Peru, Mozambique, Malawi
trition. In contexts with the most demonstrable suc-
and Bangladesh – which have had relative success
cess all six factors are present in varying degrees.
in bringing down their rates of undernutrition over the
past fifteen years, in the quest to find out why and ■ Even in some places which have managed to
how these countries in particular have been success- successfully reduce rates of undernutrion, rates
ful. Research aimed to identify policies and practises remain unacceptably high. These are peaceful,
implemented to facilitate the success and analyse non emergency settings, yet high rates of under-
the extent to which a reduction in undernutrition has nutrition persist. Surely this demonstrates that
been achieved due to a responsive policy environment undernutrition is not just an emergency issue.
and or social/civil initiatives. Drawing on evidence pre- In fact, addressing undernutrition is clearly linked
sented in the full report, this briefing presents these six to poverty reduction; concrete steps can be taken
key success factors in turn, selecting particular exam- as the case studies show.
ples which stand out, from case studies examined.
■ Strong political will is key if the fight against hun-
ger and undernutrition is to suceed. Governments
with the political will and a signed, demonstrable

Action Against Hunger | ACF International is an international humanitarian organisation committed to ending child hunger. Recognised as a
leader in the fight against malnutrition, ACF works to save the lives of malnourished children while providing communities with sustainable
access to safe water and long-term solutions to hunger. With 30 years of expertise in emergency situations of conflict, natural disaster and
chronic food insecurity, ACF runs life-saving programmes in some 40 countries benefiting nearly 5 million people each year.

Action Against Hunger www.actionagainsthunger.org.uk


Undernutrition: What works?

commitment have put nutrition at the top of their


political agenda, with positive results. Box 1: Background

■ Civil society ownership and participation sig- In order to find out why some countries have had
relative success in bringing down undernutrition
nificantly contributes to the development of viable
rates, while others have not, ACFIN has embarked
and sustainable policies. Civil society participa- on a research project, entitled ‘Zero Hunger’. In
tion in the policy making process, and subsequent the first phase of this project, trends in indicators
ownership of the policies and practises developed relating to undernutrition were analysed. On
and implemented at community level is essential. It the basis of these trends, five case studies
is likely to improve acceptance and impact among with demonstrable success in reducing rates of
undernutrition were selected for further analysis:
affected populations.
Brazil, Peru, Bangladesh, Mozambique and
■ Undernutrition touches upon a wide range of sec- Malawi. Research then involved critical analysis
tors, including health, food security, agriculture, of policies and best practise implemented to
facilitate this success, with the aim of identifying
water and sanitation, education, gender, eco-
common success factors which have together
nomic and social development. This multi-causal-
led to a reduction in rates of undernutrition for
ity requires promoting a functional multi-sectoral the case studies in question. The outcome of
approach in order to enhance policy coherence this part of the project forms the basis for this
and coordination. policy briefing.The second phase of Zero Hunger
involves analysis of the extent to which these
■ Long-term, sustained and scaled-up action to ‘success factors’ are applicable in a context in
reduce undernutrition is more likely to succeed which undernutrition is a recurring problem; Niger.
with an institutionalised coordination council in The aim is to see if the lessons learned and best
place. These bodies need strong political back-up practise can be integrated in Niger and beyond.
Barriers to implementation are identified, alongside
to be able to mainstream nutrition and food secu-
recommendations for overcoming such obstacles.
rity in other ministries and institutions, and enough
financial resources to be effective. The third phase of Zero Hunger involves analysis
of regional level institutions in West Africa, which
■ The importance of continued financial invest- are involved in the prevention and treatment of
ment from host governments and the international undernutrition. It will examine both policy making
donor community cannot be overstated. This is processes and mechanisms.

particularly relevant in cases where budget sup-


port is compulsory for policy effectiveness, as in
Bangladesh, Malawi and Mozambique.

Table 1: Most significant ‘enabling’ factors by case study

Brazil Peru Bangladesh Mozambique Malawi

Strong political will ■ ■ ■ ■ ■


Civil society ownership and participation ■ ■
Multi-sectoral approach ■ ■ ■ ■ ■
Institutional co-ordination ■ ■ ■
Continued financial investment ■

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Undernutrition: What works?

Introduction has already been achieved. By highlighting examples


of best practise and key policy required for successful
ACFIN recognises that undernutrition rates in many nutrition outcomes, this research provides important
countries (including in some of the cases examined) lessons for policy makers and practitioners alike.
are unacceptably high. Nevertheless some positive
strides have been made, as outlined in this report. It Drawing on evidence presented in the full report,
is important to learn from these contexts so that our this briefing presents six key ‘enabling’ factors in
contribution to the fight against hunger builds on what turn, selecting particular examples which stand out,

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Undernutrition: What works?

from case studies examined. It will not include best policy-making since 2002. This political impetus has
practises identified at the programme level in case promoted policy coherence (social, education and
study contexts, or challenges ahead. These can be agriculture policies), appropriate resource allocation
found in the full report.1 The case studies analysed and stakeholder participation. The Brazilian govern-
are an example of how a combination of effective ment has focused on covering basic needs, by inte-
policy development, good practise at programme grating Millennium Development Goals into policy, 2
level, made possible by sustainable investment, some and developing the national Zero Hunger (Fome Zero)
countries have achieved positive results in their nutri- Programme as a decisive tool. At the core of the Zero
tion and hunger rates; evidence that reducing hunger Hunger Programme is the promotion of Brazilian citi-
and under nutrition is an attainable goal. All contexts zens’ right to adequate food through nutritional secu-
studied have prioritised food and nutritional security, rity and social inclusion.3 This rights-based approach
recognising that hunger and undernutrition represent is enshrined in the Food and Nutritional Security
major challenges. Organic Law passed in September 2006. The Right
to Food approach strengthens the engagement to fight
Key findings against hunger by legally binding the government to
fulfil its commitments.
Strong political will
The government of Peru has placed the fight against
First, the importance of strong political will. Despite child undernutrition at the top of the political agenda.
widely differing contexts (players, political economy Resources to address both the determinants of under-
and social dynamics) in all five case studies, strong nutrition and to improve the delivery of nutrition inter-
political commitment to reducing undernutrition is ventions through health services are in place. A joint
present, as indicated in Table 1, above. UN and NGO initiative, ‘Reduce Child Undernutrition’,
argues that stunting is the most significant handicap
Perhaps the most outstanding example of the impor- preventing economic and social development in
tance of political will is found in Brazil. Here, the Peru. As part of its advocacy effort, Reduce Child-
fight against hunger has been at the centre of social hood Undernutrition invited all presidential candidates

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Undernutrition: What works?

to commit themselves to the reduction of stunting if interventions and food-based approaches. Malawi’s
elected. President Alan Garcia committed to reduce Growth and Development Strategy (2006-2011) high-
stunting by 5% during his five-year mandate (2006- lights six key priority areas, three of which are directly
2011). As a consequence, the government of Peru relevant to the fight against hunger: prevention and
has placed the fight against child undernutrition at the management of nutrition disorders and HIV/Aids,
top of the political agenda, a priority manifested in the agriculture and food security and irrigation and water
major national strategy, Crecer (‘to grow’). development. Government commitment to these three
areas was highlighted by a significant budget increase
Malawi has also demonstrated a strong political com- between 2005/6 and 2008/9: growth averaged 35%,
mitment to fighting hunger with extra impetus given 44%, and 115% a year, respectively.4
by the direct engagement of the Presidency. In 2004,
the Department of Nutrition, HIV and Aids was estab- Civil society ownership and participation
lished under the Office of the President and Cabinet
(OPC), and since 2006 has been managed directly The fight against hunger in Brazil started 30 years
under the aegis of the OPC, rather than under the Min- ago as a civil society initiative. Here, decades of pres-
istry of Health, as in most sub-Saharan countries. The sure from populations demanding transparency and
Department is led by Dr Mary Shewa, an extremely accountability led to governments opening dialogue
motivated and committed individual. Indeed some with civil society. Civil society (scientific experts, com-
commentators note that Malawi’s success is largely munity-based organisations, NGOs, solidarity com-
due to her strong leadership; there is no doubt that mittees etc) has continued to push public institutions
having a strong figure head is beneficial. This high to address hunger as a key political issue. The space
level political engagement has led to more coherent for participation promoted by the government, espe-
policy development and in particular the formulation cially since 2002, has been a decisive boost to the
of the national nutrition policy. While critics argue the empowerment of civil society. The National Council for
nutrition policy emphasises treatment rather than Food and Nutrition Security, under direct control of the
prevention, it does address many key determinants president, is the most visible example of a number of
of nutritional status including prevention, therapeutic initiatives promoting participatory budgets, implement-

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Undernutrition: What works?

ing local committees and monitoring social actions. improve the allocation of food aid and the management
The Council takes a multi-sector and multi-stakeholder of national food stocks. It also informs trade policy and
approach by integrating and coordinating all ministries procurement decisions, contributes to the design and
concerned (social action, public health, agriculture), targeting of agri-business development programmes
and has played a key role in the promotion of national and, by tracking agricultural imports, serves as an
policies in the fight against hunger. early-warning indicator for crop-production decisions
in coming seasons.
Multi sectoral approach
Mozambique’s National Adaptation Programme of
Mozambique provides a good example of the multi- Action (NAPA), prepared in 2007, sets out priorities
sector approach to food and nutrition security. In for the management of risk and natural disaster in the
Mozambique, a wide range of stakeholders such as shadow of climate change. Closely associated with
the government, NGOs and several civil society insti- this, is the disaster management institute, which was
tutions are involved in complementary initiatives. The set up in 2000, reflecting the government’s commit-
agricultural sector provides a good example of this ment to disaster preparedness and response. In terms
complementarity. In response to rapidly rising prices of health, the Ministry of Health developed a strategic
during the food crisis, the government introduced a plan for nutritional development in 2005. Focused on
plan to increase agricultural production between 2008 prevention, capacity building and advocacy, there are
and 2011 and reduce Mozambique’s future vulnerabil- six key priorities relating to micronutrient deficiency,
ity, 10% of the budget was committed to agriculture, in anaemia, iodine deficiency, chronic undernutrition and
line with the CAADP target.5 In conjunction with this, capacity development in nutrition research and advo-
WFP has implemented the cross-border food trade cacy. At the same time, the Government of Mozam-
monitoring system. The system monitors previously bique recognises the link between undernutrition
unrecorded informal trade flows across borders and and HIV/Aids and so has incorporated an integrated
incorporates data into national food balance sheets to

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Undernutrition: What works?

approach to nutrition related to HIV into its Strategic (HNPSP), and also by complementary actions from
Plan (2004 – 2008). the Ministry of Agriculture and the Ministry of Fisheries
and Livestock, among others. Key interventions that
Bangladesh provides another good example of the are currently being implemented under the HNPSP
importance of implementing a multi sectoral approach. include growth monitoring and promotion, infant and
The National Food and Nutrition Policy formulated in young child feeding, prevention and control of anae-
1997 by the Ministry of Health and Family Welfare mia, prevention and control of vitamin A and iodine
(MoHFW) was a first attempt to include food diver- deficiency. In addition to this, the government of Bang-
sification, health and nutrition as key priorities in the ladesh implements a Public Food Distribution System
national food security system. This later evolved into (PFDS) to address shortfalls in household access to
the National Food Policy (NFP) of 2006 which aims food. Assistance is mainly in the form of food or cash
to ensure food security for all by increasing food pro- based transfers and is targeted at poor and vulner-
duction and attaining self-sufficiency.6 The NFP was able groups.
formulated by the Ministry of Food and Disaster Man-
agement in coordination with partner ministries, devel- One of the best examples of an effecive multi sectoral
opment partners and NGOs. It is an unprecedented approach is found in Brazil. Here, initiatives in vari-
attempt to consolidate and harmonise existing policy ous sectors are implemented a complementary way
frameworks and actions for addressing all dimen- to achieve one goal; a reduction in undernutrition. The
sions of food security. The NFP framework is articu- parallel promotion of the different health services and
lated around three core objectives: the adequate and nutrition education basic packages, access to safe
stable supply of safe and nutritious food; increased water and sanitation programmes, social protection
purchasing power and improved access to food, and programs (cash transfers to purchase food and essen-
adequate nutrition for all individuals, especially women tial goods), school feeding initiatives, food production
and children. and household income generation initiatives are key to
this success. The Fome Zero progamme itself involves
Nutrition issues are addressed in the MoHFW’s work across sectors. Fome Zero is structured around
Health, Nutrition and Population Sector Programme four main axes: access to food, income generating

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Undernutrition: What works?

activites, social mobilisation and strenghtening small- Institutional coordination


holder agriculture. There are many initiatives designed
to improve access to food, the most noteworthy being Institutional coordination in Peru has been strength-
the Bolsa Familia programme, a conditional cash ened by the consolidation of nutrition programmes into
transfer (CCT) scheme now covering twelve million one integrated nutrition plan (Plan Integral Nutricional).
families.7 In order to receive the cash – up to a maxi- The Inter ministerial Social Affairs Commission (CIAS)
mum of US$ 42 per month 8 – families must agree to now coordinates 26 programmes in the fight against
the following conditions: health and nutritional follow child undernutrition. Originally encompassing a hefty
ups for all family members, enrolment in school cou- 82 separate programmes, the Government of Peru
pled with good attendance rates for school age chil- recognised the need to improve efficiency and so
dren, and attendance at nutrition education seesions. fused some programmes and cut others. This drastic
Strengthening smallholder agriculture is conducted slim lining strategy has led to improved efficiency and
through a number of programmes, one of which is the effectiveness, helping focus efforts and resources on
small holder credit programme. This facilitates access the main objectives of reducing stunting and anaemia
to investment capital, and the food acquisition pro- among infants aged 6-36 months and their mothers
gramme ensures state purchases for public institutions and, reducing anaemia in 3 to 12 year-olds.
(hospitals, schools and prisons) or for the creation
of national reserves.9 Alongside these activities, the Crecer (which means ‘to grow’) is a key intervention
Government of Brazil has identified public health as a implemented at national level by government (national,
top priority. The main four initiatives developed include regional and local), cooperation agencies, civil society
efforts to expand overall health services coverage, and private entities, with the aim of overcoming poverty
reduce crude child and maternal mortality, expand and chronic undernutrition. It aims, by 2011 to reduce
infant vaccination coverage and reduce rates of HIV/ chronic undernutrition in under 5s by 9% and reduce
Aids and malaria. poverty by 30%. Crecer involves a wide range of initia-
tives including literacy, food assistance, provision of

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Undernutrition: What works?

water and sanitation infrastructure, rural agriculture, nutrition as a national development priority and cre-
off farm employment with the continued participation ates a window of opportunity for nutrition advocates
of regional and local government. As in the Fome Zero to enter into national level policy debates. The NNCC
Programme in Brazil the central tenet of Crecer is a also lends permanency to long-term efforts to address
CCT programme, known as Juntos (together) which undernutrition in contexts where nutrition advocates
has focused on undernutrition since 2007. Evidence are usually able to coordinate efforts only via loose
suggests that Juntos is improving a number of key networks, informal coalitions and where the turnover in
welfare indicators for programme participants but so personnel and administration threatens the continuity
far there is little evidence of impact on final outcome of the progress.
indicators such as undernutrition rates and anaemia.10
This further reinforces the need for CCT schemes to Multi-phase approach
be complemented by adequate health services and
health and education practices. The Malawian approach to fighting undernutrition
demonstrates the multi phase approach well. The
In Mozambique, the emphasis on coordination national nutrition policy addresses approaches to both
is impressive. The coordination effort for food and treatment (short term) and prevention (long term).12
nutritional security institutions and initiatives is clearly Community based management of acute malnutri-
addressed through the National Nutrition Coordination tion (CMAM) was adopted as a national strategy in
Council (NNCC).11 The Council was set up to facilitate 2006, when its gradual scale up and integration into
inter ministry collaboration on nutritional policies and the primary health care system began. By 2009, the
programmes. It promotes the multi-sectorial approach programme had been scaled up to 330 outpatient and
outlined above by involving most of the key stakehold- 96 inpatient sites in all of the country’s 27 districts.13
ers in health, food (from production to trade), and basic
infrastructures. Development of the NNCC created an Between 2005 and 2007, the government implemented
essential institutional framework or ‘home’ for nutrition the Malawi Social Cash Transfer Scheme as well as
at national level. Although this ‘home’ may have little subsidizing maize production. This led to a reduction in
power to influence programmatic action, it legitimises cereal imports and avoidance of large price increases.

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Undernutrition: What works?

Cash transfers are an effective developmental instru- tor and approximately €10 million in the health sector
ment, and resources are being mobilised for national between 2001 and 2007. The EU recommends the
scale up. Cross border food trade monitoring is a long integration of both sectors on the basis that improved
term initiative which has had a significant effect on health and access to basic services has a positive
food aid allocations and government management of effect on household productivity, therefore increasing
national stocks. Benefits have been felt by national food security and helping to break the poverty cycle.
governments, regional bodies and donors alike. This, Increased agricultural production is one of the main
in combination with a strong early warning system aims of the National Indicative Plan, which aims to
(implemented by the Malawi Vulnerability Assessment empower small producers by transforming public serv-
Committee) is part of Malawi’s long term approach to ices into facilitators and supporters and reinforcing
fighting undernutrition and food insecurity and should their role in extension services. The Country Strategy
allow Malawi to act on evolving food security issues Paper for 2008–2013 predicts a total of €622 million
before they become critical. from the 10th EDF, with approximately €95 million
(15%) earmarked for food security and agriculture,
Continuity of financial investment and €56 million (9%) for the health sector (focused
on reducing HIV/Aids prevalence).
The importance of continued financial investment from
host governments and the international donor com- External funding has also played a key role in address-
munity cannot be overstated. There is no doubt that ing hunger and undernutrition in Malawi. Bilateral
sustained financial commitment has been instrumental donors have maintained regular and significant fund-
in enhancing policy coherence and coordination for ing in the country. The EU, a long-time donor to Malawi
both Malawi and Mozambique. recently launched the 10th European Development
Fund. This aims to improve the country’s macro-eco-
International development assistance plays a cru- nomic situation, strengthen public finance manage-
cial role in Mozambique’s fight against poverty. The ment systems and carry out education and health pol-
9th European Development Fund (EDF) invested icy reforms. With a budget of €451 million, the Country
approximately €35 million in the food security sec-

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Undernutrition: What works?

Strategy Paper 2008 – 2013 has allocated 25% of its It is well known that childhood undernutrition has
budget to ensure agriculture and food security mulitiple causes. Indeed, it touches upon a wide
range of sectors, including health, agriculture, water
UN priorities are outlined in the UNDAF (United and sanitation and education, with the relative impor-
Nations Development Assistance Framework) 2008– tance of each differing according to context. This multi
2011, with efforts particularly focused on nutrition and causality requires promoting a functional multi sectoral
health, and basic services such as water and sanita- approach in order to enhance policy coherence and
tion and education. Agriculture, disaster reduction and coordination. Long-term, sustained and scaled-up
social protection are also part of this integrated and action to reduce undernutrition is more likely to suc-
multi-sector approach. Undernutrition will be tackled ceed with an institutionalised coordination council in
by addressing its underlying causes and by supporting place. These bodies need strong political back-up to
a more integrated response. Moderate and acute mal- be able to mainstream nutrition and food security in
nutrition among children under five will be treated with other ministries and institutions, and enough financial
supplementary and therapeutic feeding respectively, resources to be effective.
and community therapeutic centres will be expanded.
Capacity for emergency prevention, preparedness and The combination of both short and long-term
response will be strengthened at all levels. UNDAF approaches to nutrition has proved effective in many
forecasts US$12.6 million for the nutrition sector. . of the contexts studied. Long-term initiatives, such as
the promotion of food production for self-reliance and
Conclusion the reinforcement of access to employment for the
most vulnerable, have been complementary to short-
The case studies examined are peaceful, non emer- term approaches, such as the improvement of health
gency settings, yet high rates of undernutrition persist. services to mothers and children alongside social pro-
This demonstrates that under nutrition is not just an tection strategies such as CCT programmes. Indeed,
emergency issue. In fact, addressing undernutrition a recent review of CCT programmes emphasises the
is clearly linked to poverty reduction; concrete steps need for a multi-phase approach. It concludes that
can and are being taken, as the case studies show. CCT will not reduce undernutrition in isolation, but
should be integrated into a more holistic, integrated
Despite widely differing contexts, the case studies approach together with education services and pro-
analysed demonstrate that reducing rates of under- ductive or economic development initiatives.14
nutrition is attainable, given the appropriate ‘enabling’
environment. Our research has found that govern- It is essential that governments implement strate-
ments with the political will and a signed, demonstra- gies which address both the immediate and underly-
ble commitment have put nutrition at the top of their ing causes of undernutrition. Fighting undernutrition
political agenda, with positive results. Political impetus involves implementing both prevention and treatment
provided by governments is key. Indeed it is a pre activities; the priority given to each will vary according
requisite for ensuing policy development. Civil society to context and depends on the wider political econ-
ownership and participation significantly contributes omy. Both prevention and treatment are integral ele-
to the development of viable and sustainable policies. ments of the fight against undernutrition. Continued
Civil society participation in the policy making proc- investment and support from state and donors alike is
ess, and subsequent ownership of the policies and fundamental if the relative success already achieved,
practises developed and implemented at community is to be built upon.
level is essential. It is likely to improve acceptance and
impact among affected populations.

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Undernutrition: What works?

Endnotes
1 See Sanchez, M. and Salse, N 2010, Undernutrition: What works? 11 Benson, T. 2004 Improving Nutrition as a Development Priority:
A review of policy and practice ACFIN/Tripode London Addressing Nutrition in National Policy Processes in SSA, Interna-
tional Food Policy Research Institute, Research Report 156.
2 Objetivos de Desenvolvimento do Milenio, Presidência da Repú-
blica. Relatório Nacional de Acompanhamiento, Grupo Tecnico 12 Treatment involves therapeutic interventions and food based
para acompanhamento dos Objetivos de Desenvolvimento do approaches.
Milenio, Março 2010.
13 UNICEF 2009 Tracking progress on Nutrition UN New York
3 Definición programa Fome Zero, conceito http://www.fomezero.gov.
14 Garret et al. 2009 Designing CCT programs to improve nutrition
br/o-que-e
impact: principles, evidence and examples. FAO Rome
4 Tavakoli, Hedger 2009 Public Expenditure in Malawi: Analysis of
Trends and Performance, ODI London

5 Club of Mozambique, 10 March 2009. ‘Mozambique plans to


increase its grain harvest by 13 percent in 2009 /2010’,
http://www.clubofmozambique.com/solutions1/sectionnews.php
?secao=mozambique&id=14405&tipo=one

6 See http://www.nfpcsp.org/Downloads/Homep/National%20
Food%20Policy%202006%20English%20Version.pdf

7 http://www.mds.gov.br/bolsafamilia
Action Against Hunger briefing papers provide information
8 Paes-Souza, R. and Pacheco L.M. 2009 Measuring the impact of
Bolsa Familia Program based on data from Health and Nutrition
on important development and humanitarian issues.
Days (Brazil) FAO Working papers 7. http://www.rlc.fao.org/ Readers can reproduce material or quote from these
iniciativa/pdf/WP7.pdf (Accessed 06/09/2010) briefing papers if Action Against Hunger is named
9 OXFAM 2010 Halving Hunger: Still Possible? Building a rescue as the copyright holder and is given appropriate
package to set the MDGs back on track OXFAM UK acknowledgement. Please email details of publications
10 Perova et al. 2009 Welfare impacts of the ‘Juntos’ Program in Peru: that quote Action Against Hunger briefing papers to
Evidence from a non-experimental evaluation World Bank Washing- hungerwatch@aahuk.org
ton
Action Against Hunger briefing papers and publications
are available at www.actionagainsthunger.org.uk

Action Against Hunger (ACF-UK)


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