presidential initiatives on cassava in africa: case studies of ghana and nigeria
DESCRIPTION
The development of the cassava sub-sector is emerging as a key component of a regional strong and diversified economy able to generate employment, contribute to food security and sustain incomes for populations of SSA. To achieve these potentials, however, it is necessary to put in place mechanisms and policies that ensure guaranteed regular supply of good quality cassavaTRANSCRIPT
PRESIDENTIAL INITIATIVES ON CASSAVA IN AFRICA:
Case studies of Ghana and Nigeria
Diakalia 5anogo and Olanrewaju Adetunji
April , 2008
NEPAD Pan African Cassava Initiative (NPACI)
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PRESIDENTIAL INITIATIVES ON CASSAVA IN
AFRICA:
Case studies of Ghalla alld Nigeria
By
Diakalia Sanogo and Olanrewaju Adetunji
NEPAD Pan African Cassava Initiative (NPACI)
April,2008
1 Corresponding Author Email: [email protected]; International Institute of Tropical Agriculture ; PMB 5320, Ibadan, Nigeria
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ACRONYMS
ACFA
ADPs
ASCO
BDS
BFICN
CIMIS
CAADP
CBN
CEAN
CEDP
CMD
COVE
CRI
CSDTF
EEG
FAO
FGD
FGN
FMAWR
FMCI
HQCF
TEC
!FAD
!ITA
MIS
MOFA
NAFDAC
NBS
NCAM
NEPAD
NEPC
Ayensu Cassava Farmers ' Association
Agricultural Development Projects
Ayensu Starch Company Ltd.
Business Development Services
Bureau of Food Imports Control of Nigeria
Company Management Information System
Comprehensive African Agriculture Development Program
Central Bank of Nigeria
Cassava Exporters Association of Nigeria
Cassava Enterprise Development Project
Cassava Mosaic Disease
Corporate Village Enterprise
Crops Research Institute
Cassava Sub-Sector Development Task Force
Export Expansion Grant
United Nations Funds for Food and Agriculture
Focus Group Discussion
Federal Government of Nigeria
Federal Ministry of Agriculture and Water Resources
Federal Ministry of Commerce And Industries
High Quality Cassava Flour
Information Education Campaign
International Funds for Agriculture Development
International Institute of Tropical Agriculture
Market Information System
Ministry of Food and Agriculture
National Agency for Food, Drugs, Administration and Control
National Bureau of Statistics
National Centre for Agricultural Mechanization
New Partnership for Africa's Development
Nigeria Export Promotion Council
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NlPC
NPACI
NRCRJ
NSPRJ
PI
PIC
PSI
RMRDC
RTEP
RTfMP
RTIMP
RTlP
SON
SSA
Nigeria Investment Promotion Council
Nepad Pan African Cassava Initiative
National Root Crops Research Institute
Nigerian Stored Products Research Institute
Presidential Initiative
Presidential Initiative on Cassava
Presidential Special Initiative
Raw Materials Research and Development Council
Root and Tuber Expansion Project
Roots and Tubers Improvement and Marketing Program
Tubers Improvement and Marketing Project
Roots and Tuber Improvement Project
Standards Organization Of Nigeria
Sub-Saharan Africa
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11
Foreword
The NEPAD Pan African Cassava Initiative (NPACI) has adopted the theme
"CASSAVA - A Poverty Fighter in Africa" because the goal of the initiative
is to tap on the enormous potential of cassava to contribute to food security and
income generation in Africa. NP ACI approach is based on a transformation
strategy that focuses on developing three interrelated levels comprised of:
market research and development, technology generation and development, and
competitive production using farmers' collective action.
NPACI philosophy is that production of cassava will be viable and sustainable
if it is driven by market forces . Production, technology generation and
development are expected to simultaneously respond to the market pull. This
will motivate the private sector, regional and national programs to develop
viable and sustainable production and technology interventions within various
cassava value chains (e.g. starch, animal feed, food, confectionery, ethanol, etc)
that address the demands of the markets suitable for their particular
circumstances.
NPACI strategy responds to NEPAD Comprehensive African Agricultural
Development (CAADP) pillars and will make a significant contribution to the
attainment of the Millennium Development Goals of alleviating hunger and
poverty by 2015.
NPACI is not an implementing organization, rather a facilitating and catalyzing
body in support of viable and sustainable national, regional and continental
interventions.
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The change strategy adopted is an integrated business approach to providing
technology to growers and linking farmers to markets with sustained support
from the government and private sector. Increasing the commercialization of
cassava is one of the central objectives of the Pan African Cassava Initiative. In
this regard, NPACI is delighted to see some African Heads of State launch
"Presidential Initiative on Cassava" (PIC). The presidential initiatives will
provide an enabling environment for cassava sub-sector development as the
government political support will promote ownership by various national and
regional stakeholders. NPACI Steering COlllillittee (SC) is therefore delighted to
have this booklet on PIC published in English, French and Portuguese to the
community and policy makers. NPACI SC would like to thank liT A for
spollsoring this study and allowing its scientist Dr Diakalia Sanogo and
Olanrewaju Adetunji to carry out the study.
The fmancial support from Kellogg Foundation, llT A and I FAD to SUppOlt
NPACI Coordination and steering conunittee meetings is much appreciated.
Since its inception and launching in 2004, eminent persons and scientists have
contributed to NPACI development, such effort is conunendable and profound
gratitude is extended to all of them.
Dr. Nzola M Mahungu (NPACI Coordinator)
Prof. Richard Mkandawire (NEPAD Secretariat. Agricllltllre)
Mr. Boma S. Anga (Chair. NPACI SC)
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ACKNOWLEDGEMENTS
This report was made possible with financial support from Research-for
Development (R4D) activities of the International Institute of Tropical
Agriculture (IITA). The authors would like to express their gratitude to Dr.
Paula Bramel (Deputy Director General R4D of liT A) for accepting to fund the
study. We thank Dr. Nzola Mahungu (IITA-Malawi) for providing necessary
background information on the work plan of NEPAD Pan African Cassava
Initiative (NPACI) and the expectations from this study. We also wish to
acknowledge the assistance of Mr. Boma Anga fro m NPACl's Secretariat in
Abuja, Nigeria for providing useful background information on the stakeholders
directly invo lved in the implementation of the Pi s and for arranging
appointments with key actors of the Presidentia l initiative on cassava (PIC) in
Nigeria. We thank Dr. A. Dixon, G. Tarawali and R. Okechukwu (IITA-lbadan)
and the field sta ff of CEDP-IJTA and ADPs in the study States in N igeria for
their assistance in organizing data co llection from the primary PI C
implementing actors. Lastly, we extend our sincere gratitude to the staff of the
PSI on cassava in Ghana, the farmers and farmers' assoc iat ions, the processors
and their assoc iations and to all other stakeho lders of the Pis fro m the public
and private sectors in Ghana and Nigeria (l isted in Appendix) for their patience
in providing the required information used to complete the study.
DISCLAIMER
The views presented in this book are those a/ the authors and do not necessarily
represent oJJicial positions o/NEPAD. IlTA and NPA CI.
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EXECUTIVE SUMMARY
The development of the cassava sub-sector is emerging as a key component of a
regional strong and diversified economy able to generate employment,
contribute to food security and sustain incomes for populations of SSA. To
achieve these potentials, however, it is necessary to put in place mechanisms
and policies that ensure guaranteed regular supply of good quality cassava.
To this end, a number of SSA countries, among which, Ghana, Nigeria in West
Africa have launched Presidential Initiatives (PIs) on cassava as part of
elaborate economic reform programs aimcd at promoting the diversification of
foreign exchange earnings base for these countries. The PI policies were
expected to encourage public-private sector partnership by creating, through
well-designed intervention mechanisms, a practical enabling environment for
identified competitively advantageous industries with potential for fast growth
and demand from export markets.
The Presidential Special Initiative (PS I) on cassava of Ghana began in 2001 , as
part of the government's policy of transforming cassava production from its
subsistence nature into a commercially viable agribusiness that can generate
substantial revenue locally and through exports. The major specific objectives
of the PSI on cassava were to: (I) transform the cassava industry into a major
growth pole; (2) establish 10 cassava starch processing plants; and (3) generate
annual export revenues of 100 million US dollars by the end of 2006. In
addition the initiative ambitioned to ensure that 50% of farmers participating in
the project are women. Although the government of Ghana is the main sponsor
of the PSI , the project was planned to be based on a farmer-ownership scheme
called the Corporate Village Enterprise (COVE). The COVE model seeks to
bring nlral communities into mainstream economic activity by establishing
large-scale export-oriented enterprises, which will be owned by farmers
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themselves but managed by professionals with industrial experience who will be
engaged on performance contracts. In line with this policy, farmers were
encouraged to form cooperatives.
The Nigeria Presidential initiative on cassava (PIC) launched in July 2002, aims
specifically to: (I) enhance the productivity and production of cassava by
increasing area cultivated to 5 million ha with the hope of harvesting 150
million tons of fresh cassava tubers annually; (2) produce 37.5 million tons of
processed cassava products for local and export markets; (3) organize the export
of cassava and processed-cassava products as a revenue-generating project; and
generate about US$5 billion annually from exporting value-added cassava
products. The PIC was planned to be implemented during the period 2002-
2007.
These Presidential Initiatives (PIs) on cassava had generated great excitement,
creating new hopes and greater expectations of relevant stakeholders. However,
various reports (mainly in the news media in Nigeria) and an impact study
published in Ghana (Tonah, 2006) have been highlighting difficulties in their
implementation. For example, processors failed to meet the deadline of January
2005 related to govenunent policy on 10% cassava flour inclusion in bread
making in Nigeria. In Ghana, Tonah (2006) found that farmers were unhappy
with low prices paid by the processors who, in tum, complain about insufficient
supply of raw cassava roots.
The perceived challenge at present is that ongoing efforts are not adequate and
that cassava sub-sector needs a further push for it to playa front role in the
agricultural and economic development of SSA countries. To this end, African
leaders made a call, through the New Partnership for Africa's Development
(NEPAD), to accord priority to cassava in the regional agricultural development
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strategies. This led to the creation of the NEPAD Pan African Cassava Initiative
(NPACI), which is a strategic institutional arrangement that is aimed at linking
national agricultural research and extension systems to regional initiatives on
cassava in order to ensure food security and income generation in Africa.
The present study was commissioned by NPACI to carry out a situation analysis
of the PIs in Ghana and Nigeria and identify key success factors and lessons
learned to examine the applicability of these PIs' models in other countries in
sub-Saharan Africa (SSA). This section summarizes the major findings of the
study.
[n general, the PIs have helped create awareness about the multiple possible
uses of cassava to produce value added products such as flour, starch, cassava
chips, glucose syrup, animal feed , ethanol, and composite (cassava- wheat)
baking flour. Both the public and private sectors have been giving increasing
attention to the cassava sub-sector. In Nigeria the PIC has stimulated an increase
in cassava production and processing by both microprocessors and medium
scale processors. The Ayensu cassava farmers' association (ACFA) and the
Densu cassava producers association are two success stories of the PSI in
Ghana. These were two dynamic producers ' organizations that contributed
significantly to early successes of Ayensu Starch Company Ltd (ASCO).
Overall in Ghana and Nigeria, PI-related government's programs aim at
improving cassava productivity and production while private-sector initiative is
expanding demand sources for cassava and cassava processed products. These
strategies can complement each other if the identified bottlenecks are
adequately addressed in the specific intervention areas that follow below.
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Implementation strategy of the PIs
Nigeria's Presidential initiative on cassava appears to be well focused as its
areas of intervention (development of cassava production and processing,
expansion of cassava and cassava processed products marketing) were
adequately integrated to the cassava value chain development activities of the
federal ministries (Agriculture and water resources, and Commerce and
industries) leading the implementation of the initiative. However, despite the
alleged good collaboration between the two ministries, it appears that the
implementation of the PIC suffered the lack ofa centra l coordination that would
have contributed to avoid or quickly overcome some of the implementation
bottlenecks.
In Ghana, the corporate village enterprises (COVE) model adopted by the PSI
was a new concept that most people did not understand. Furthermore, many
stakeho lders think that the program set up root in the civil service bureaucracy.
These are major bottlenecks to successful implementation of the PSI on cassava.
To achieve the set objectives of the Pis in both countries and possibly in other
African countries, we think that a well structured Secretariat of the initiative
would provide the kind of stronger and unique institutional support needed to
ensure proper implementation and management of such a program. This
Secretariat sbould be placed under the administrative authority of the Office of
the President. The decisions of the Secretariat would be operationalized by a
multi-disciplinary cassava sub-sector development task force (CSDTF). The
task force members should come from the relevant line ministries (e.g. Federal
Ministry of Food and Water resources in Nigeria, Ministry of Trade and
Industry in Ghana) . However, the task force should operate under the direct
authority of the PI's Secretariat, which should be granted adequate autonomous
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management authority (vis-a-vis the involved line ministries) to avoid
unnecessary bureaucratic and political obstacles.
MOllitorillg alld Evaluatioll (M&E)
There were no structured M&E activities during the implementation of the PIs
in both countries. In fact, there is practically no data collected by relevant
agencies, particularly on cassava processing and marketing. Hence, the
stakeholders, especially the Pis ' Secretariats were missing a valuable
information generating tool that would have enable them to monitor tbe
implementation of the initiative, assess progress made and take collective
decisions and actions to ensure that their respective program were on the right
course. Furthermore because there was no systematic M&E, it is now very
difficult to evaluate the full progress and impact of the targets and objectives set
by the two Pis.
It is only in Nigeria that the Cassava Enterprise Development Project (CEDP) is
regularly publishing reliable progress measures of its achievements in the
project quarterly and annual reports. This project that was established to support
the PIC has identified outcome and impact indicators, based on the specific
target objectives, which are being used to collect valuable progress measures of
its activities.
It is important to underline that M&E is essential for adequate management of
the PIs like any other project. Hence, efforts are needed to institutionalize M&E,
which should be participatory and implemented through learning-by-do ing and
feedback mechanisms. All key stakeholders, including researchers, farmers,
traders, processors, and policy makers will be involved in M&E to build
ownership, as well as individual and collective responsibility. Their
involvement will help ensure that their perceptions of progress are taken into
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consideration. It is important that all actors be involved in the identification of
relevant outcome and impact indicators to monitor the progress towards the
program objectives, and evaluate the achievements of the initiatives.
Despite the dearth of information on progress towards achieving the set targets
of the Pis, the analysis of data collected from various actors involved in the
implementation of the programs generated valuable information and lessons
learned that could help to address some difficulties arising from the
implementation of the existing Pis as well as to advise countries that are
interested in having a similar program.
Cassava productioll
Available data showed that the initial stakeholders' enthusiasm about the PIC in
Nigeria contributed to a significant IDcrease in cassava production. But,
stakeholders' expectations have now dropped considerably because of the
various implementation constraints (e.g. low availability of improved clean
cassava planting materials, processing and marketing constraints, poor funding
of the initiative). Funding problem was particularly found to be very critical to
the successful implementation of the PIs in both countries. This situation has
affected the initial positive production trend experienced during the first years
(2001 - 2006) of implementation of the Pis. Efforts are needed for increased
local producers' access to appropriate credit sources such as micro-credit
schemes.
One of the lessons learned in Nigeria and confirmed in Ghana is that farn1er
friendly planting materials distribution is a key factor to the successful
dissemination of improved cassava varieties and to increase productivity and
production. Therefore, it appears that an initial substantial investment by the
government is called for, especially for the production and dissemination of
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sufficient supply of improved planting materials. To this end, the PIs should
continue promoting business opportunities in the production and marketing of
cassava planting materials to ensure a sustainable raw materials (fresh cassava
roots) supply to processors.
With regard to women participation to the Pis, there may be a need for land
tenure system reform in some cassava producing communities to help improve
women 's access to land and their involvement in the activities of the Pis in the
area of cassava production and processing.
Cassava IItilizatioll alld processillg
The Pis have stimulated an expansion in cassava production and this call for an
expansion of utilization, processing and commercialization to provide a range of
food , feed and other industrial products from cassava to ensure that the
objectives of the initiative are fully achieved. To this end, the following actions,
among others, are necessary in Nigeria: (i) increased research-For-development
efforts and investment in the area of cassava utilization and processing are
required; (ii) initial substantial investment by the government for the
establishment of farm gate processing centers ; (iii) joint partnership between
Nigerian entrepreneurs and foreign investors for a successful provision and
operation of adapted and efficient processing units; (iv) formal legislation
required to facilitate the compliance of relevant implementing actors for a
successful achievement of some of the objectives of the PIC, such as the
inclusion of cassava in baking flour.
In Ghana, future plans by public-private partnerships to establish cassava starch
factories should consider the availability of the primary raw materials (fresh
cassava roots) as an essential factor in the choice of the sites of the factories .
Relevant research organizations should be fi.llly involved and properly funded to
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ensure that new high yielding cassava varieties with desire starch content are
developed and disseminated to ensure reliable raw materials supply to cassava
starch processing factories. In addition the PSI's Secretariat and its partners will
need to develop cost effective and appropriate transport arrangements to
preserve the quality of both the raw materials and fmal processed-cassava
products.
One of the critical issues facing the PSI in Ghana is tbat the management of
ASCO 's farm operations and the factory running as a single economic entity bas
proven to be very challenging. Many actors of the PSI agree that the
management of ASCO's farm operations needs to be separated from the
ma~agement of the factory operations. Furtbermore, farmers should be duly
represented in the company's governing board and empowered to guarantee that
legitimate interests of farmers' groups are taken into account for making any
fmal decision related to the management of both operational components (farms
and factory) of the company. A Company Management Information System
(CIMIS) should be developed to help create a physical, technical, institutional
and human environment conducive to the efficient operation ofthe factory.
Ghana appears to have acquired international comparative advantage in the
production and market supply of high quality, food grade cassava starch through
the COVE approach. Nonetheless, the PSI on cassava should seriously
reconsider the possibility of implementing the second option that was identified
by the Presidential think tank as an alternative strategy of addressing the vital
rural and urban poverty reduction mission. This alternative was based on a
mobilization of small scale producers to strengthen their capacity for producing
fresh cassava and add value to it. Such model could be used to mcrease
econODllc opportunities through sustainable and competitive cassava
production, marketing and agro-enterprise development In selected
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communities. There would hence be an expansion of postharvest processing and
marketing outlets for cassava products, which could in medium term lead to the
development of viable micro-, small, and medium enterprises. This is exactly
the model being used by llTA-CEDP in support of the implementation of the
PIC in Nigeria.
Cassava marketillg
The Pis on cassava were instrumental in uncovering the pntential export market
for products from cassava. However, fmdings of the study show that there are
several constraints to both domestic and export marketing of fresh cassava and
cassava processed products that need to be sn lved. First of all, there is a
pressing need for a well-designed market information system (MIS) tn improve
the dissemination of market information to cassava farmers, marketers, and end
users in each country. At the regional level, trade and economic cooperation
between the producing and processing countries in sub-Saharan Africa must be
encouraged to reduce the negative effects of ineffective trade laws on the
development of the cassava sub-sector.
Elltreprelleurship motivatioll
Some government stakeholders perceive that the majority of entrepreneurs m
Nigeria had a misconception of the PIC, as they were under the illusion that
govenunent was to buy back what they produce (tubers, processed products).
There is a sense that most of these " businessmen" have yet to develop a
businesslike attitude to enterprise. This could be facilitated by providing
entrepreneurship development training needs to small and medium scale
producers, processors and marketers. Strategies should be developed to
encourage specialization of entrepreneurs in specific aspect of the cassava sub
sector along the value chain and operate either as producer, processor or
bulker/marketers.
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communities. There would hence be an expansion of postharvest processing and
marketing outlets for cassava products, which could in medium term lead to the
development of viable micro-, small, and medium enterprises. This is exactly
the model being used by liT A-CEDP in support of the implementation of the
PIC in Nigeria.
Cassava marketillg
The PIs on cassava were instrumental in uncovering the potential export market
for products from cassava. However, findings of the study show that there are
several constraints to both domestic and export marketing of fresh cassava and
cassava processed products that need to be so lved. First of all, there is a
pressing need for a well-designed market information system (MIS) to improve
the dissemination of market information to cassava farmers, marketers, and end
users in each country. At the regional level, trade and economic cooperation
between the producing and processing countries in sub-Saharan Africa must be
encouraged to reduce the negative effects of ineffective trade laws on the
development of the cassava sub-sector.
Elltreprelleurship motivatioll
Some government stakeholders perceive that the majority of entrepreneurs In
Nigeria had a misconception of the PIC, as they were under the illusion that
government was to buy back what they produce (tubers, processed products).
There is a sense that most of these " businessmen" have yet to develop a
businesslike attitude to enterprise. This could be facilitated by providing
entrepreneurship development training needs to small and medium scale
producers, processors and marketers. Strategies should be developed to
encourage specialization of entrepreneurs in specific aspect of the cassava sub
sector along the value chain and operate either as producer, processor or
bulker/marketers.
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Sustail/ability of tire PIs
The sustainabi lity of the PIs on cassava depends strongly on the effectiveness of
the public-private partnership advocated by these initiatives. However, it
appears that the majority of the implementing actors are relying essentially on
govemment intervention. It is advisab le that government provide an initial
adequate funding to SUpp0l1 all activities considered critica l for managing the
implementation of the program. After that the primary ro le of the govemment
should be to facilitate and promote private sector led strategies to ensure the
sustainability of the initiative. To this end, all stakeho lders must commit to the
initiative and be involved in the planning, implementation, monitoring and
evaluation of the program. Access to micro-credit needs to be improved for the
prinlary actors (e.g. cassava growers, cassava processors. cassava traders,
equipment fabricators). It is very important that the M&E component of the
initiative be reviewed, adapted, and institutionalized.
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Introduction
Cassava has been a strong growth engine for the rural economy in sub-Saharan
Africa (SSA), the cassava belt of the world. Its contribution to the agricultural
Gross Domestic Product (GOP) is increasing rapidly in most countries of West
and Central Africa (WCA) (e.g. 46% in Ghana), which reflects its growing
importance as a cash crop and urban food staple (I FAD, 2006). Trends in
cassava production in SSA indicate a steady growth over time. For example,
over the period 1961-2005 the cumulated annual growth rate of cassava
production was 3.85% in Western Africa and 2.60% in Central Africa (IFAD,
2006). In 1998. SSA produced 90 million metric tons, which was over half of
the total world production (Johnson et aI. , 2003). In 2004, production of fresh
cassava roots amounted to 56 million tons in Western Africa and 28 million
tons in Central Africa (IF AD, 2006).
However, the sub-sector of the traditional cassava food products still dominates
distribution channels of cassava products. This sub-sector currently provides
livelihoods to more than 30 millions processors (often poor rural and women),
as well as many equipment manufacturers, wholesale and retail traders, and
transporters. In addition, small scale cassava processing has gradually become
the main source of non-farm rural employment in many countries. Cassava
cultivation is still expanding further from coastal areas to the dry savanna as
farmers strive to diversify farm income generating opportunities. The
introduction of high yielding and disease tolerant varieties and mechanization of
certain processing stages has contributed to this expansive trend (IFAD 2006).
Nigeria is the world's largest producer of cassava (Knipscheer et aI., 2007), and
its production is concentrated in the hands of smallholders fanners located
primarily in the south and central regions of the country (Ezedinma et aI. ,
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2007). In 2005, Nigeria cultivated 3.782 million ha and harvested 41.565
million tons of fresh cassava roots. Ghana is the second largest producer of
cassava of Western Africa with about 750,000 ha of harvested area for 9.567
million tons of fresh cassava roots (FAO, 2007). Cassava plays a number of
important functions in Nigeria's economic development. Amongst these,
cassava is used as rural food staple, urban food staple, cash crop, industrial raw
material and livestock feed (Iweke et aI. , 2002; lIT A, 2006; Onabolu and
Bokanga, 1998; Johnson et aI. , 2003).
The development of the cassava sub-sector is emerging as a key component of a
regional strong and diversified economy able to generate employment,
contribute to food security and sustain incomes for populations of SSA, given:
(i) the importance of cassava in terms of household food security in rural areas,
especially for the rural poor; (ii) the gender dimension of cassava production
which sees women taking a leading role in processing and marketing activities;
(iii) the strategic dimension of cassava for the future generations of the region
- with increasing urbanization rates, cassava products can offer a response to
the growing demand for food products which might otherwise require an
increase in food imports- ; and (iv) the possibilities offered by the regional and
international export markets and the emerging market for industrially processed
cassava products. To tap these potentials, however, mechanisms and policies
need to be put in place to ensure guaranteed regular supply of good quality
cassava.
Consequently, since the early 2000s, a number of SSA countries, among which,
Ghana, Nigeria in West Africa have launched Presidential Initiatives (PIs) on
cassava as part of elaborate economic reform programs aimed at promoting the
diversification of foreign exchange earnings base for these countries. The PI
policies were expected to encourage public-private sector partnership by
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creating, through well-designed intervention mechanisms, a practical enabling
environment for identified competitively advantageous industries with potential
for fast growth and demand from export markets. The Pis on cassava were
intended to stimulate enterprise creation, productivity and jobs, both in
agriculture and in processing.
Presidential initiatives on cassava in Ghana and Nigeria
In January 200 I, the Presidential Special Initiative (PSI) on cassava was
established in Ghana as part of the govemment's policy of transforming cassava
production from its subsistence nature into a commercially viable agribusiness
that can generate substantial revenue locally and through exports, while at the
same time addressing rural poverty by bringing rural communities into
mainstream economic activity (Tonah, 2006).
The specific objectives of the PSI on cassava to be achieved by 2006 were to :
(i). Transform the cassava industry into a major growth pole by the end
of2006
(ii). Establish 10 cassava starch processing plants by the end of2006
(iii). Generate annual export revenues of 100 million US dollars by the
end of2006
(iv). Ensure that 50% of farmers participating in the project are women.
Although the government of Ghana is the main sponsor of the PSI, the project
was planned to be based on a farmer-ownership scheme called the Corporate
Village Enterprise (COVE). The COVE model seeks to bring rural communities
into mainstream economic activity by establishing large-scale export-oriented
enterprises, which will be owned by farmers themselves but managed by
professionals with industrial experience who will be engaged on performance
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N EPAD
contract s. [n line with this po licy, fanners were encouraged to fo rm
cooperatives. Members o f the cooperatives were expected to grow the crop on
their individually-owned farms and then be ass isted by the government to
collective ly own a starch process ing plant established by the government to
process cassava into starch (Tonah, 2006).
The Government and it s deve lopment partners were expected to complement
the efforts o f the private entrepreneurs by supporting the project w ith
infrastructural fac ilities namely (c.g .. construction and upgrading of access
roads, provis io n of conUllUnication fac il it ies. adequate power to the process ing
plant , and potable water to the factory as we ll as the surrounding communities).
Ad vocacy structures were a lso set using project fi e ld sta ff w ith ass istance o f the
Ministry of Food and Agriculture to in form the fa rmers abo ut the impending
project on cassava and the ro les expected of farmers and the governmcnt in the
project. They a lso had to convince rura l fa rmers about the benefit s of cassava
production and readiness of produce market.
A year and half after the launching of the PS I on cassava in Ghana, the
President o f Nigeri a announced in Jul y 2002 an initi ative which aims to create
awareness among fa rmers about the opportu nit ies that ex ist in the cassava
markets and expand cassava utilization and primary processing. To this end,
actions w ill be taken to increased productivity and expand annual cassava
production to achieve g lobal competitiveness. w hile integrating the rura l poor
(especia ll y wo men and youths) into the ma instream o f Nigeria's nationa l
economy. Furthermore, new market opportunities wi ll be ident ified and
deve loped to stimulate increased private sector in vestme nt in the estab lishment
o f export oriented cassava industries (FGN O ffi ce o f Public Communications,
2005 ; Knipscheer et aI. , 2007; Ezedinma et a I. , 2007).
4 PARTNERSHIPS IN SUPPORT OF CAADP
The spec ific objectives of the Nigerian presidential initiative on cassava (PIC)
set to be achieved by 2007 include:
(i). Enhance the productivity and production of cassava by increasing
area culti vated to 5 million ha with the hope of harvesting 150
million tons of fresh cassava tuber annually
(ii). Produce 37.5 million tons of processed cassava products (i.e. garri ,
pellets, chips, starch, and ethanol) for local and expol1 markets
(iii) . Organize the export of cassava and processed-cassava products as a
revenue-generating project
(iv). Earn about US$5 billion annually from exporting va lue-added
cassava products.
To achieve these objectives, there was a need to develop the domestic market
and create nat ional po lic ies in order to promote cassava development in the
country.
NEPAD Pan African Cassava Initiative (NPACI)
The Pis on cassava had generated great excitement , creating new hopes and
greater expectations of relevant stakeho lders. However, various reports (mainly
in the news media in Nigeria) and an impact study published in G hana (Tonah,
2006) have been highlighting difficulties in their implementation. For examp le,
processors failed to meet the deadline of January 2005 related to government
policy on 10% cassava flour inclusion in bread making in Nigeria. In Ghana,
Tonah (2006) found tbat farmers were unhappy with low prices paid by the
processors who, in turn, complain about insufficient supply of raw cassava
roots.
-,.-= ~!... ,.--r - -
PARTNERSHIPS IN SUP~AADP nTA 5
The perceived challenge at present is that ongoing efforts are not adequate and
that cassava sub-sector needs a further push for it to playa front role in the
agricultural and economic development of SSA countries. To this end, African
leaders made a call , through the New Partnership for Africa's Development
(NEPAD), to accord priority to cassava in the regional agricultural development
strategies.
The NEPAD Pan African Cassava Initiative (NPACI) was created as a means to
tap on the enormous potential of cassava for food security and income
generation in Africa. NPACI is a strategic institutional arrangement that is
aimed at linking national agricultural research and extension systems to regional
initiatives on cassava in order to ensure food security and income generation in
Africa. The initiative is in line with the NEPAD Comprehensive African
Agriculture Development Program (CAADP), which outlines the main
agricultural development pillars.
The specific objectives of NPACI are, among other, to i) accelerate cassava
contribution for food, feed and raw material for industry (starch, ethanol etc. )
and income security; ii) promote cassava commercialization and market
development; iii) expand local, domestic, regional and international markets for
food, feed , starch, ethanol etc. ; and iv) stimulate private sector development to
enhance cassava product value and market growth.
To achieve the above objectives, NPACI has designed an activity in its short to
medium term work plan (i.e. Activity 3) tbat aimed at assessing the efficiency
of various Presidential Initiatives on Cassava (PIC) in place in few countries.
Tbe lessons learned from tbese PIs will be used to examine tbeir applicability in
PARTNERSHIPS IN SUPPORT OF CAADP \\TA 6
other countries for wider African political and social marketing of NPACI
supported interventions at national level.
The objectives of the present study are to:
• Carry out a situation analysis of the PIC models using the cases from
Nigeria and Ghana,
• Identify key success factors of successful PIC, the lessons learnt and
their applicabi lity in other countries.
lake recommendations on communication strategy on policy advocacy and
ructure to be used by NPACI for the promotion (app licabi lity) of successfu l
PIC in other African countries depending on cassava production levels and
existing national and regional market.
Study methodology and data sources
The study employs both primary and secondary data. Primary data were
collected in Nigeria through field surveys in three states of the cassava belt
(Kwara, Abia and Edo states). These states were se lected from a list of the
states that participated in the implementation of the presidential initiative on
cassava (P IC) in southwestern and southeastern Nigeria, given their positions
that span the cassava belt of the country. Focus group discussions (FGDs) and
individual interviews were conducted with potential beneficiaries of the
activities of the PIC (cassava growers associations, small and medium scale
cassava processors, bakers, cassava and cassava products traders, fabricators of
cassava production and processing equipment , and cassava transporters). The
following random samples were selected: six cassava growers' associations (2
in each state); 15 cassava traders (5 in each state); fifteen cassava processors (5
in each state); s ix equipment fabricators (2 in each state); six bread bakers (2 in
PARTNERSHIPS IN SUPPORT.9F",:~DP UTA 7
NEPA D
,
each state) and six cassava transporters (2 in each state). Primary data was also
collected from the relevant key informants, using structured questionnaires. The
stakeholders that were interviewed include the committee members of the
presidential initiative on cassava in Nigeria from the Federal Ministry of
Agriculture and Water Resources (FMA WR) and the Federal Ministry of
Commerce and Industries (FMC I).
Literature review 0 f relevant publications was used to collect secondary data.
Secondary information was also searched for from relevant government
departments that played ancillary roles in the implementation of the PIC, such
as the Central Bank of Nigeria (CBN), Nigeria Export Promotion Council
(NEPC), Nigerian Stored Products Research Institute (NSPRl), Cassava
Exporters Association of Nigeria (CEAN), Nigeria Investment Promotion
Council (NIPC), and the Bureau of food imports control of Nigeria (BFICN).
In Ghana, primary and secondary data were also collected from the Secretariat
of the PSI on cassava, the management of the Ayensu Starch Company Limited
(ASCO), the Roots and Tubers Improvement and Marketing Program (RTlMP),
Crops Research Institute (CRl), farmer groups (Ayensu Cassava Farmers '
Association - ACFA- in Awutu-Bawjiase and Densu Cassava Growers
Association in South Senche), as well as relevant non-governmental
organizations and private sector stakeholders. Data collection in Ghana was
conducted, mainly, through key informants ' interviews with relevant public and
private sector agencies and focus group discussions with members of the
cassava farmers' associations in the regions covered by the PSI on cassava.
Descriptive statistics analysis and qualitative analysis methods were used to
assess co Ilected data.
PARTNERSHIPS IN SUPPORT OF CAADP "TA 8
Implementation of the Pis on cassava
Nigeria Presidential Initiative on Cassava
The lack of a commercial approach to cassava production and marketing 111
Nigeria justified a synchronized approach involving several partners in the
development of the sub-sector. Hence, the Federal Ministries of Agriculture and
Water Resources, and Commerce and Industries were assigned the
responsibilities to carry out the implementation of the PIC through their relevant
departments and some associated specialized public and private agencies. The
various actors involved in the implementation of the initiative are listed below
with a brief description of their main roles and responsibilities in the execution
of the program.
Government stakeholders
Federal Millistry of Agriculture all(/ Water Resources (FMAWR)
The initial design and planning of the stmcture and objectives of the PIC were
coordinated by the Ministry of Agriculture in collaboration with the Federal
Ministry of commerce and Industries. A cassava desk officer is posted at the
FMA WR in a role of supervision and coordination of the activities of the
departmental agencies involved in the implementation of the program.
Federal Millistry of Commerce alldlndustries (FMCI)
In addition to its role in the planning of the PIC, FMC I has been leading the
formulation of policies aim at encouraging exportation of cassava products
through the export expansion grant (EEG) scheme. EGG is approved to support
the development of export crops that have the potential for local value addition.
9
FMC! contributed to tbe implementation of cassava export promotion plan
through the following activities:
• Visits abroad (in Africa and Europe) to source for markets for cassava and
cassava products produced in Nigeria
• Set up of the Cassava Exporters Association of Nigeria (CEAN) to catalyze
cassava processing and export awareness,
• Promotion of the establishment of cassava roots bulking centers to further
stimulate cassava process ing.
Root alld Tllber Expallsioll Project (RTEP)
RTEP, an agency of the Federal Ministry of Agriculture, has been contributing
to the mUltiplication of improved cassava planting materials. [t has also helped
to carry out adaptive research and extension, and served as resourcc
organization in capacity building of the government's extension staff, cassava
producers as well as processors, and other actors involved in the execution of
the program of the initiative. RTEP has, in co llaboration with the lntcmat ional
Lnstitute of Tropical Agriculture (lIT A), ass isted with the establislm1ent of new
cassava processing centers and the upgrading of existing ones.
Raw Materials Research alld Developmellt COllllcil (RMRDC)
This is another agency of the FMA WR in charge of the training of actors of
small and medium enterprises (SMEs) in processing cassava into different
products (cassava flour, g lucose syrup, and cassava chips). RMRDC has
organized workshops and seminars to inform relevant actors of the cassava sub
sector on new development in the area of cassava process ing.
PARTNERSHIPS IN SUPPORT OF CAADP UTA 10
NEPAD '-'''--
Nigeriall Stored Products Research Illstitute (NSPRl)
NISPRJ was statutorily assigned to oversee the establishment of tbe cassava
bulking centres. However, according to the officials from this agency, tbeir
organization was neglected and not integrated into the implementation of the
PIC because of poor program. Key officials have just managed to participate to
exhibitions and to present papers at seminars and workshops organized by the
PIC.
Natiollal Celltre for Agricultural Mechallizatioll (NCAM)
The mandate of this agency is to promote farm mechanization (commercial
cassa va farming) by:
• Encouraging and engaging adaptive and innovative research towards tbe
development of indigenous machines for cassava production and processing,
• Designing and developing simple and low cost cassava production and
processing equipment which can be manufactured with local materials using
local skills and facilities,
• Standardizing and certifying (in close collaboration with Standards
Organization of Nigeria) cassava farming equipment and engineering
practices in use in Nigeria,
• Assisting in the conunercialization of proven machines, tools and
techniques used for cassava production and processing
• Disseminating information on metbods and programs for achieving speedy
cassava agricultural mechanization,
• Providing training opportunities through the organization of courses and
seminars designed to ensure the best training of manpower for appropriate
mechanization of cassava farming,
.---. -.." ~ .-'-PARTlIIERSHIPS IN SUPPORT OF CAADP UTA 11
,
• Promoting cooperation In cassava farming mechanization with simi lar
institutions within and outside Nigeria and with international organizat ions
connected to agricu ltural mechanization.
Stalldards Orgallizatioll of Nigeria (SON)
This agency is responsible for enforcing compliance of flour millers in Nigeria
with the PIC policy of inclusion of 10% cassava in baking flour.
Celltral Balik of Nigeria (CBN) alld Natiollal Bureau of Statistics (NBS)
These two institutions have the mandate to contribute to the implementation of
the monitoring and eva luation (M&E) component of the PIC. However, they
started collecting data on cassava production and export only in 2006. making it
difficult to measure progress made so far in the implementation of the program.
Nigeriall Export Promotioll COIII/cil (NEPC)
NEPC is an agency under the authority of the Federal Ministry of commerce
and industries with the mandate to co llect and keep records on the exports of
agricu ltural commodities and related processed products. However, this agency
has yet to deve lop its own database; it has been relying on external databases on
cassava export available on the web.
Primary actors of the cassava value chain in Nigeria
Cassava growers' associatiolls
Cassava producers' association plays a central role in the implementation
design of the PIC. The association is the link institution between farmers and
the government stakeholders and other support institutions involved in the
implementation of the PIC. Half of the six growers ' associations that
-PARTNIiRSHIPS IN SUPPORT OF CAADP
12 - - - I
participated in the study survey were established between 2003 and 2005, as a
result of the introduction of the PIC. The major roles that they played include
the following:
• Provide a platform used to bring technical assistance and training to farmers
• Assist members with the marketing of cassava
• Facilitate members ' access to micro-credit
• Contribute to the distribution of improved cassava varieties to members, and
promotion of fanner-to-farmer diffusion of improved production
technologies.
Cassava processors (medium scale alld micro processors)
The processors' associations play for their members similar roles that the
growers' associations engage in for cassava farmers. A majority of the
processors interviewed for this study were established between 2002 and 2006.
They are all equipped with modern cassava processing technologies.
The processors are of two types: microprocessors and medium scale processors.
Microprocessors in the three study States mostly process cassava into gar,.i and
figu for local consumers and into cassava cakes (semi-processed stage for
cassava flour) to supply the medium scale processors. The medium scale
processors process cassava into cassava flour to supply the flour millers and
into cassava starch to supply the local and international markets.
Equipmellt fabricators
The major roles of equipment fabricators in the implementation of PIC include:
• Improvement in the design and capacity of some cassava processing
machines
PARTNERSHIPS IN SUPPORT OF CAADP UTA 13 -....... N E PAO ._ ... _-
,
• Development of manpower in the fabrication of cassava production and
processing technologies (non-formal, apprenticeship etc.)
• Fabrication of high quality cassava production and process ing technologies
• Provision of opportunity for industrial training of students of tertiary
institutions
• Market promotion for cassava production and processing equipments.
Cassava traders
Cassava trading is unorganized in a larger part of Nigeria. There are only small
scale traders in the business. One major factor that appears to be responsible for
this is the fact that cassava is a very highly perishable crop. Unlike yam or other
tuber crops, cassava must be processed within a few hours after harvesting to
preserve the freshness of the tubers and to ensure that the end product (e.g.
garri, fit/u, and cassava chips) is of good quality. Consequently, the quantity
harvested or bought for marketing must not be too excessive as not to be able to
sell off within 24 hours. This is compounded by the fact that raw tubers are very
bulky to transport and the ratio of raw tubers to end product is quite high in
some instances (e.g. 4: I for garri). Most traders of raw tubers only confine
themselves to the supply and demand markets in their immediate environment.
The traders playa major role in raw cassava marketing under the PIC. The
survey results show that very few of them (2 out of the 15 interviewed) also
process cassava into fiiftl and garri and market them alongside raw cassava.
Bread bakers
The main role of bread bakers was to facilitate the local utilization of cassava in
Nigeria through the mandatory incorporation of 10% cassava in the baking flour
produced by the flour millers in the country. The survey results reveal that most
bakeries are still not using the composite baking flour. Only two (Kaka
PARTNERSHIPS IN SUPPORT OF CAADP UTA 14
.... EPA D _ ... _-
Confectionaries Limited in Umuahia, and Monas bakery and cassava processing
center in Arochukwu community, both in Abia state, southeastem Nigeria) of
the six baking firms visited were producing and using composite flour that
contains 10 and 20% cassava flour, respectively. With the assistance of IlT A,
both firms have installed the required machineries that enable them to mill their
own composite (wheat-cassava) baking flour.
Cassava trallsporters
Transporters are playing a critical role in movlllg harvested cassava to the
market and conveying purchased cassava from the market to the point of end
use. These transporters a lso convey other farm and forestry produces. The
genera l perception among transporters is that since the beginning of the
implementation of the PIC (particularly from 2003), there has been an increased
trend in the business of cassava transportation up to 2006. In 2007 cassava
transportation recorded a slight decline due to the poor market performance of
cassava (unprecedented fluctuations in the market price), and increased
transport costs.
Support Institutions
/Iltematiollai/llstilllte of Tropical Agriculture (UTA)
Since its foundation in 1967, IITA has worked with the national agricu ltura l
research system as well as agricultural development organizations on the
improvement cassava and dissemination of improved varieties, and more
recently on the expansion of cassava enterprise in Nigeria. The implementation
of the PIC in Nigeria has built largely on the achievements of !ITA's research
activities. The I nstitute prepared a research report entit led "opportunities in the
PARTNERSHIPS IN SUPPORT OF CAADP \\TA 15
NEPAD .-.~--
industrial cassava market in Nigeria" that was made available to the government
of Nigeria and other stakeholders in 2002/2003 in support of the PIC. TITA is
currently collaborating with national and international agencies to back up the
PIC on cassava by promoting innovative technologies for cassava industrial
utilization and development in Nigeria.
In addition, the Cassava Enterprise Development Project (CEDP), which is in
support of the PIC on cassava, is being implemented through llTA as a lead
institution. This project is a public-private partnership between the USAlD and
the Shell Petroleum Development Company to support the development of the
cassava sector over a period of five years (2004/05 - 2008109), with the global
objective of increase economic opportunities through sustainable and
competitive cassava production, marketing and agro-enterprise development in
selected communities of the South-South and South-East States of Nigeria.
Under the CEDP, lIT A strengthened the human and institutional capacity of
producers, processors, commodity traders, and fabricators to produce, process
and to market cassava efficiently as well as foster increasing private sector
investment in the production, processing, storage and marketing of cassava.
NEPAD Pan African Cassava Initiative (NPACI) Secretariat
NP ACI 's Secretariat worked with actors of Federal government of Nigeria on
the conception and development of the objectives of the PIC. The Secretariat
has been collaborating with all relevant partners to ensure the successful
implementation of the program. It assists with the organization of workshops
and fora for the planning, funds allocation and execution of PIC's activities.
16 PARTNERSHIPS IN SUPPORT OF CAADP
Achievements of the PIC
Substantial progress has been made in implementing the PIC to ensure that the
objectives and targets of the program are successfully achieved. This section
highlights major achievements per intervention area of the initiative.
Institutional development
The two federal ministries (Agriculture and water resources, and Commerce and
industries) put in charge of leading the implementation o(the PIC, collaborated
very well early on to facilitate the establishment of the National Cassava
Development and Technical Committee. In addition, 'state implementation
committees were established in seven states covered by the program.
Cassava production
Available data (FAO, 2007) show that cassava production in Nigeria has
increased by 44% (34.120 to 45.721 million metric tons) over a period of 7
years from 1999 to 2006. However, Figure I reveals that the increasing trend of
the production actually started in 2002 that is the year the PIC was launched. It
would then be fair to assert that one of the key successes of the PIC is the
increased cassava production reaching about· 46 million tons in 2006 (FAO,
2007/. Nonetheless, it should be noted that this production quantity represents
only 33% of the target production of 150 million tons set by the PIC. It should
be also noted that local small farmers are responsible for a larger part of this
increase compared to the contribution of commercial large-scale producers.
2 Information obtained from F AOST AT was corroborated to a large extent by Ibe information supplied by Ibe PCV, Federal Ministry of Agriculture and Water Resources, Abuja.
PARTNERSHIPS IN SUPPORT OF CAADP UTA 17
Figure 1: Quantity of cassava produced in Nigeria, 1999-2006
50,000 ~
~ 45,000 o ~ 40,000 a !? 35,000 ~
§ 30,000
'B 25,000
" -g 20,000 .... c.. 15,000 '" ~ 10,000
'" c:l 5,000
a
Data source: FAOSTAT 2007
There was also a modest but steady increase in cassava-harvested area from
2001 to 2006 (Figure 2). According to FAO 2007 statistics, cassava crop area in
2006 reached 3.810 million ha, which represents about 76% of the set target of
5 million ha the PIC wanted to achieve by the end of its program. Studies have
shown that developments such as farmers ' access to and adoption of improved
cassava varieties (Oikeh, 1999) and the availability of improved cassava
processing technologies (Asinobi et a!., 2005) are sufficient to promote the
expansion of cassava crop area in a production region. As a matter of fact, the
majority of farmers who participated to the focus group discussions agreed that
one of the key changes in cropping systems in their communities since the
introduction of the PIC is the withdrawal of land and other resources from
cultivating other crops (e.g. cowpea and maize) to grow cassava.
PARTNERSHIPS IN SUPPORT OF CAADP 18
N EPAO ._.---
,
The increases in cassava crop area and production can then be related to the
following realizations of the PIC:
• Official release of 5 improved cassava varieties selected from 43 varieties
screened under the pre-emptive management of cassava mosaic disease
(CMD)
• National Root Crops Research Institute (NRCRI) has been planting annually
(from 2003 to 2006) 60 ha to produce 24,000 bundles of breeder planting
materials stock
• RTEP has been planting annually 80 ha to produce 72,000 bundles of
foundation cassava planting materials
• At the level of states' Agricultural Development Projects (ADPs), 148 ha
are planted annually to produce 59,000 bundles of certified cassava planting
materials
• Capacity building of extension workers in states covered by the PIC
(southwest, southeast and north central states of Nigeria)
• Capacity building of local cassava growers through farmers' associations
and NO Os assisted by the program.
In addition, the focus group discussions in the study States have revealed that
the investment in cassava production by growers' associations and their
members has increased almost three fold from 2003 to 2006.
19 PARTNERSHIPS IN SUPPORT OF CAAOP
Figure 2: Cassava harvested area in Nigeria, 1999-2006
4,000
.. 3,500 -= 0 0 3,000 0 ::... os .. 2,500 .. os ...
2,000 .. -~ .. ;> .. 1,500 os -= os
1,000 ;> os ~ ~ os
500 U
0
p,o, ,,'ll
s;:,<:) 'j,<:l
s;:," 'j,<:l
s;:,":> ~
Year
Data source: FAOSTAT 2007
Another factor that might have encouraged the increase in cassava production
could be the increasing trend of its farm gate price. Data provided by the
National Bureau of Statistics (NBS 2006) show that cassava farm gate price has
increased by about 25% between 1999 and 2005 (Figure 3). The survey results
show that there was a slight decrease of 6.5% in the farm gate price of cassava
from 1999 to 2000, and thereafter, it increased by a yearly average of 6%.
Members of the cassava growers associations in Kwara, Edo and Abia states
also attested (during focus group discussions) that the farm gate price of cassava
and the net marginlha of harvested cassava have increased during the period
2003- 2005. The results from the FGDs also showed that cassava market price
increased by 39.8% from 1999 to 2004.
PARTNERSHIPS IN SUPPORT OF CAADP \\TA 20
~ 25.00 -" ~ 20.00 . ; z - 15.00 " ~ .~ 10.00
~
" 5.00 .. E ~
" 0.00 "-
Figure 3: Trend of cassava farm gate price, t 999- 2005
Average farm gate price of cassava
• • • ... _--.• ----
Year
Data source: NBS, 2006
The increased availability of clean and disease free planting materials (Figure 4)
could also explain the relative increase in cassava harvested area and production
in Nigeria. In addition to the above factors relative to the release of disease free
varieties and the multiplication and dissemination of cassava planting materials,
the key factors to this increased availability of clean planting materials also
include the following:
• Establishment of the PIC state's implementation committees that facilitated
and coordinated activities at the state level.
• Integration of the PIC substructure to ongoing related projects in Nigeria,
such as tbe pre-emptive management of the CMD and the roots and tubers
expansion projects.
• Creation of effective linkages between the relevant collaborating agencies.
Particularly, the effective linkage between IITA, RTEP and the States '
21 PARTNERSHIPS IN SUPPORT OF CAADP
NEPAO ._ ... _-
Agricultural Development Projects (ADPs) assisted immensely in the
efficient multiplication and dissemination of improved cassava planting
materials. Data obtained from the NBS showed that the quantity of cassava
cuttings produced increased by about 14% over the 6-year period from 1999
to 2005. ·
• Local growers were able to access good planting materials as 10 improved
cassava varieties were deployed by RTEP in 3 years (2005- 2007) (Table I).
Figure 4: Quantity of cassava planting materials produced in Nigeria, 1999-2005
-;;;- 4500 ~ "0
§ 4000 .D o 8 3500 '-' "0
g 3000 "0
~ 2500 on en " .'" 2000 ':5 u
'" 1500 > '" on on
'" u 1000 "-
• 0
.q 500 ;:: '" ::l
CI 0
r--,-- r-- ,--
-
Year
Data source: NBS, 2006
PARTNERSHIPS IN SUPPORT OF CAADP
.--
.-- 0-
J
UTA 22
Table I: Improved cassava varieties deployed by RTEP for the PIC in Nigeria
Variety Year of release
TMS 97/2205 2005
TMS 98/0505 2005
TMS 98/0581 2005
TME/419 2005
TMS 9810510 2005
NR 87184 2006
TMS 9210057 2006
TMS 9210326 2006
TMS 9810002 2006
TMS 96/ 1632 2007
Data source: RTEP, 2007
Increased private sector investment in cassava processing and diversification
in cassava use
The Federal Ministry of Agriculture has reported an increase of the private
sector investment in the upstream as well as the downstream sector of the
cassava industry, as typified by the creation of companies, such as Ekha Agro
farms (Figure 5), Vesa Farms, Nigeria Starch Mills, and a glucose factory in
Ogun State, These companies have invested in large-scale cassava plantation.
There was also an increase of foreign investment in cassava flour production as
typified by the Dutch Trading Company (DATCO) in Benue and Niger States,
It appears then thai the PIC has stimulated an increase in cassava processing by
both microprocessors and medium scale processors, as the initiative has helped
create awareness about the multiple possible uses of cassava to produce
varieties of products like flour, slarch, cassava chips, glucose syrup, animal
23 PARTNERSHIPS IN SUPPORT OF CAADP
N EPAO .---._--
feed, ethanol, and composite (cassava- wheat) baking flour. For example, the
glucose factory in Ogun State commissioned in 2006 is a state-of the-art
cassava-based glucose syrup processing plant, first of its kind in Nigeria. The
factory has an installed annual production capacity of 30,000 metric tons of
glucose syrup.
Figure 5: A view of the cassava processing facilities ofEkha Fanns
(Photo from IITA-CEDP)
Other achievements related to development of small and medium processing
facilities include:
• Establishment of six primary processing centers. These primary processing
centers are located in Sepeteri (Oyo State), Makurdi (Senue State), Owerri
(Imo State), Akure (Ondo State), Ankpa (Kogi State) and Ilorin (Kwara
State)
PARTNERSHIPS IN SUPPORT OF CAADP \\TA 24
N E P AD
• Building and installation of micro processing centers for garri and medium
scale factories for cassava flour in all states covered by the program. These
micro-processing centers for garri and the medium scale processing
factories were equipped with improved and modern technologies to serve as
model for private individuals that are willing to invest in cassava
process mg.
Stakeholders who participated to the study have identified the following reasons
as key factors explaining the above successful expansion of investments in
cassava transformation activities, particularly with respect to the small and
medium processing:
• Capacity building in cassava processing: 7,500 cassava-processing manuals
were provided to farmers' organizations and NGOs for training of local
cassava processors
• I mprovement in the design and development of processing equipment by
mainstream fabricators as well as institutional fabricators like NCAM and
other medium scale fabricators
• Ability of local equipment fabricators to produce quality cassava processing
teclmo logies; there is less dependence on equipment importation
• Monitoring of the equipment fabricators by the National Agency for Food,
Dmgs, Administration and Control (NAFDAC) and SON to ensure that high
quality materials, such as stainless stee l for example, are used in equipment
fabrication
• llTA (under the umbrella of the integrated cassava project CEDP) and other
organizations provided training to stakeholders.
• Main raw material (cassava tubers) is readily available in the immediate
vicinity of the medium-scale processing units and microprocessors.
PARTNERSHIPS IN SUPPORT OF CAADP UTA 25
N EPAD
• Microprocessors of gar; and JUJII have their markets readily available;
buyers (final consumers, retailers and middlemen) are demanding high
quality gar; and Jllill processed under high hygiene standards by using
locally fabricated processing equipments (Figure 6). This finding support
the perception that the market for cassava products exists nationwide in
Nigeria and that demand has increased substantially since the beginning of
twentieth century due to increasing urbanization, population increase and
significant changes in food culture (Odebode, 2001).
Figures 6: Women process gari andfiifu under high hygiene standards by
using locally fabricated processing equipments
(photo by courtesy of llTA-CEDP)
Cassava products marketillg (domestic alld exports)
The PIC sub-committee in charge of marketing and export proceeds repatriation
was able to obtain purchase orders for Nigeria's processed cassava products
from China, South Africa, Bostwana, Namibia, Zambia and some EU countries.
PARTNERSHIPS IN SUPPORT OF CAADP UTA 26 - N EPAD ._ ... _-
It has been, however, difficult to fmd data to substantiate this statement, as none
of the agencies involved in the implementation of tbe M&E component of the
PIC was able to adequately fulfil its role and duties. The few data presented
below in Table 2 were downloaded from tbe Web by NEPC in response to our
request for export data.
Table 2: Export of cassava and cassava products from Nigeria (2004 - 2006)
Quantity Income Export
Product Year (mt) (USS '000) destination
I. Cassava chips 2004 506 III
2005 291 163
2006 315 179 USA, China
Total 1,112 453
2. Cassava starch 2006 163 206 Cote d' I voi re
3. Cassava fl our 2004 3,309 709 USA, UK.
2005 1,369 379 Canada, Ireland,
2006 472 430 Italy
Total 5,150 1,514
Data source: NEPC. 2007
Techllological improvemellt
The local (mainstream) fabricators have come up with diverse forms of
innovation and improvement to enable the processors to overcome some of their
limitations. The locally adapted postharvest technologies were introduced by
the IlTA-implemented cassava enterprise development project (CEDP) in
support of the PIC (Figure 7). These machineries include flash dryers,
pulverizers, centrifuges, and plate mills. Other low cost innovations suitable for
PARTNERSHIPS IN SUPPORT OF CAADP UTA 27
tJ E P AD -_ ... _-
microprocessing include the improvement of the cassava presser from screws to
hydraulic mechanism, design of a mobile grater, improvement in cassava sieve,
development of a low cost cassava dryer that can use charcoals and kerosene
(for drying of cassava chips and pellets), and the integration of cassava grater,
cassava press, cassava sieve and garri fryer in a single package.
Figure 7: Improved cassava processing technologies reduced drudgery and facilitated the
processing of high quality cassava products
(photo: lIT A-CEDP)
Cassava processors particularly perceived that the PIC has improved their
access to improved cassava processing technologies that reduce drudgery and
facilitate the processing of high quality cassava products. They also believe that
these technologies have enhanced their income earning opportunity.
PARTNERSHIPS IN SUPPORT OF CAADP UTA 28
R-;;'.w~~~ N EPAD ._ ... _-
Ellirallced rllrallivelilroods
In general, members of cassava growers associations, microprocessors and
cassava traders claim that there has been an increase in the employment of
women and youth in the rura l communities between 2003 and 2006 as a result
of the PI C. Furthermore, they perce ive that the initiative has contributed to
increasing rural income earning. According to these actors of the cassava sub
sector, household li velihoods have improved with regard to children education
(payment of school fees). feeding. c lothing and general welfare. However,
inadequate monitoring and eva luat ion or the PI C by relevant government
departments did not make it possible to have reliable stat istics to substantiate
this c laim.
Ellirallced lIa/iollal food secllrity
Cassava continucs to playa vital role in the enhancement of national food
security in Nigeria. There is the perception among the surveyed stakeholders of
the cassava sub-sector that the increased cassava production engendered by the
PIC is contributing to national food sccurit y. Cassava is a chief staple crop and
cassava-based processed foods such as garr; can be found in the market and is
consumed in a ll states of Nigeria. Recorded cassava production data shows that
between 200 I and 2006 the annual product ion grew at an average rate of about
6%. which the double of the about 3% population growth rate of country.
Oll/reaclr (Ic/ivi/ies ill West Aji-iCtl slIb-region
Federa l Ministry of Agriculture and water resources reported that the PI C was
able to reach out to some countries in west Africa to prov ide improved cassava
planting materia ls (e.g. Senegal), and improved techno logies for cassava
processing and capac ity building on cassava process ing (e.g. Sierra Leone). In
29 PARTNERSHIPS IN SUPPORT OF CAAOP
N EPA O -.---
addition, processed cassava (garri) was supplied to Liberia and Sierra Leone as
food aid under the sponsorship of the World Food Program (WFP).
Cassava Enterprise Development Project and the PIC
Institutional support to the cassava sub-sector in general and the PIC in
particular, comes from a number of sources, including the public sector,
research centres and the private sector. Support to the implementation of the
PIC includes identification of markets, development of new products and
development and promotion of processing equipment. In this section, the
support provided by the Cassava Enterprise Development Project (CEDP) and
its importance are highlighted.
The CEDP is a public-private partnership project between the USAID and the
Shell Petroleum Development Company to support the development of the
cassava sector in Nigeria over a period of five years. The project is
implemented through HT A in support of Nigeria ' s Presidential Cassava
Initiative. The objective of the Project is to increase economic opportunities
through sustainable and competitive cassava production, marketing and agro
enterprise development in selected communities of the South-South and South
East States of Nigeria. The Project's activities were designed to contribute to
the livelihoods improvement in selected areas with the following expected key
intermediate results: (I) increased market-driven employment opportunities, (2)
increased agricultural productivity and marketing, and (3) increased commercial
viability of micro-, small, and medium enterprises.
CEDP has been contributing to the establishment of micro- and medium scale
processing centers and the introduction of improved postharvest technologies
aimed at increasing the income from cassava-based products. The creation of
PARTNERSHIPS IN SUPPORT OF CAADP \\TA 30
these processing centers has contributed to new jobs for both rural women and
man. CMD resistant cassava varieties are being distributed directly by CEOP
and their partners in the project efforts aimed at increasing agricultural
productivity. The project has reported an average yield about 25.6 tlha for CMD
resistant cassava varieties compared to 12t/ha for the local varieties in farmers'
fields. It has been also reported that an increasing number of farmers are
adopting the new improved varieties.
An important component of the CEOP is capacity building of the established
micro, small, and medium enterprises. Existing enterprises and producers and
processors groups are provided business development services (BOS) training
by the project. BOS training includes product development, sensitisation and
mobilization, advice on building construction, machinery installation, enterprise
trainings, including business advice given to processors during visits. The
trainings include cessions on Starting a new cassava business, Enterprise
management , Book and record keeping and marketing, Equipment and general
factory maintenance and hygiene, and Product diversification and development.
Constraints to the implementation ofthe PIC in Nigeria
Some of the challenges that appeared during the implementation of the PIC are
as follows:
II/sufficiel/t supply of improved cassava plal/til/g materials
In spite of the efforts by the PIC partners (e.g. CEOP, RTEP, ADPs, and
farmers ' associations) in the multiplication and distribution of improved cassava
varieties, many actors have pointed out the insufficient supply of planting
PARTNERSHIPS IN SUPPORT OF CAADP UTA 31
, bI :':~ -~ " N EPAO ._ ... _-
materials as a major constraint to the successful implementation of the
initiative.
Cassava processillg, marketillg alld trallsportatioll
There was a positive response to the program by rural farmers and urban
entrepreneurs as manjfested in the steady increase in cassava crop area planted
that followed the launching of the PIC. The challenge from this development
was then how to quickly mop up and process the resulting increased cassava
tubers production. This challenge has exposed the inadequacies of the
processing facilities nationwide.
The issue of inadequate market access was also reported by the majority of the
stakeholders we met. In fact , there appears to be a dearth of information to
cassava farmers, processors and end users. Consequently, farmers do not have
required information on existing market demand, while cassava end users are
short of information on the existing sources of raw materials. Most of the
stakeholders perceive that this situation accounts, to a large extent, for the
cassava sub-sector actors ' perception of an apparent fresh roots production
"glut" in some parts of the country. In addition, there is the problem of lack of
access roads to local markets by both growers and processors.
A few microprocessors complained about problems of non-regular payment for
their supplies of semi-processed cassava products to the medium scale
processors. However, this situation is a fallout of difficulties that the medium
scale processors themselves are having with the flour millers, and the problems
include high inventory/unsold stock in the warehouse because most flour
millers do not appear to be incorporating any amount of cassava flour (whether
5% of 10%) in the baking flour that they are producing. Another constraint
.... --~ -. -.~-.- . tPA!m.:'I_~RSI-!IPS I,N SUPPORT OF CAADP UTA 32
N EPAD ._ ... _-
faced by the medium scale processors is that they usually produce below their
factory installed capacity, a situation which entails the same cost of production
as if they were producing at full capacity because of the fixed factory
overheads. Furthermore, the majority of the medium scale processors have very
limited access to distant industrial users of their products in the neighboring
states due to the high cost of transportation resulting from the lack of adequate
road infrastructures and high fuel cost.
In an attempt to cope with these myriad problems, some of the medium scale
processors have had to stop production and temporarily lay of'fworkers in order
to prevent the erosion of their working capital. Some of them have tried to
obtain short to medium term credits from the microprocessors (that supplies
semi-processed raw materials) to them. Unfortunately, it is the inability of the
microprocessors to withstand the fmancial stress of these short/medium term
credit arrangements that is threatening the very foundation of cassava
microprocessing enterprises.
In the three study States, only one (a medium scale enterprise in Abia State) out
of the fifteen cassava processors that were surveyed is engaged in cassava
products export. TillS company was established in 2006, year during which it
operated its first and only export of "garri flour". The total value of the
exported products was US$47,000. The major problem encountered by the
enterprise is the prohibitive freight rate to the United States of America (export
destination) , as well as the "corruption of government officials and
bureaucratic ineffectiveness" that cost to the enterprise so much resources
(time and money) before it could ship the first consignment offulished products
to the USA.
PARTNERSHIPS IN SUPPORT OF CAADP 33
The quality of raw materials is also considered by some actors as a constraint to
cassava processing and marketing. The cassava growers associations pointed
out that some of the improved varieties (e.g. popularly branded "agric
cassava ") promoted and disseminated under the PIC are less acceptable in the
local market because of their high moisture content, which affects their market
pnce.
The high cost of local cassava processing (engendered by the poor supply of
electricity and high fuel cost) as well as the high transportation cost to the
market (local and international markets) are affecting the market pricing, and
consequently the level of market competitiveness of the cassava products
processed in Nigeria. Because of the pervasive energy crisis in Nigeria, a vast
majority of the medium scale processors are currently operating at a loss.
Cassava transporters too perceived that this energy crisis is having negative
effects on transport fares leading to increasing cost of transportation. The
constraint emerging from this situation is that transports alone have to bear most
of the added cost, which cannot be passed on totally to cassava producers,
processors and marketers.
Finally, the high cost of improved processing technologies represents another
critical constraint to cassava processing. The vast majority of the rural poor
farmers and organizations are unable to raise the required capital to afford the
modern processing facilities.
Poor market price of cassava and cassava products in the last 1 years
The market price of cassava and cassava products started falling in 2005. The
results from the FGDs showed that price of fresh cassava roots fell in the
surveyed states by about 25% from 2004 to 2005 and about 2% between 2005
34 PARTNERSHIPS IN SUPPORT OF CAADP UTA
and 2006. Many growers have not yet harvested the cassava planted in 2005 as
a result of the poor market price. It is likely that the wide scale non-harvesting
of cassava planted in 2005 prevented further drastic falls in market price m
2006. However, the unharvested cassava has in some cases rotten or IS
experiencing unavoidable significant quality deterioration in most fields. This
has made it difficult for many farmers in the three study states to recoup their
investment in cassava planting in 2005 and 2006. Many of them did not plant
cassava in 2007.
Cassava processors, traders and transporters also perceived the poor state of
cassava and cassava products market, and the subsequent low profit margin
within the last 2 years to be a major inadequacy of the implementation of this
Presidential initiative.
Cassava utilizatioll
It is very doubtful that the flour millers are incorporating cassava flour (whether
5% or 10%) in the production of baking flour and this is particularly stalling the
achievements of the objectives of the PIC. During a visit to a flour Mill the
study team was shown a stock of cassava flour that was referred to as the
unutilized flour supply being use for the composite baking flour. However,
there was no material evidence (e.g. stock of produced cassava-wheat flour) to
confirm that the company was indeed processing the composite flour. The
cassava flour processors which are holding important stock on unsold cassava
flour (because of very little or no demand for it) suspect that each of the flour
millers have only made an initial order for cassava flour, which they have gone
ahead to stockpile in their warehouse. Such stock is then presented to visitors
and/or government officials making enquiries on the incorporation of cassava
flour in baking flour. The cassava flour processors would like to see a stricter
PARTNERSHIPS IN SUPPORT OF CAADP UTA 35
monitoring of the flour millers by NAFDAC and SON to enforce the policy on
the utilization of cassava in the baking flour production .
Institutional challenges to the successful implementation of the PIC
The implementation of the PI C was expected to run from 2003 to 2007.
However. implementation of some of the critica l activities stal1ed only in 2004
and the rev ised program completion date was pushed to 2009. The stakeholders
reported a number of constraints to the timely starting of the PIC's activities and
their successful implementation.
POOl' coordillatioll
Despite statement by some goverrUllent stakeholders referring to commendable
co llaboration between the two federal ministries leading the implementation of
the PIC, it appears that many of the above listed constraints were not adeq uately
addressed due to the lack of centra l coordination to oversee the g loba l
implementation of the initiative . It is our understanding that NPAC I 's Chairman
in Nigeria was to play the role of Coordinator of the PIC Secretariat, as he had
coordinated a ll planning studies. He was to deliver a monthly briefing to the
Pres ident of Nigeria on the PI C implementation progress. However. the
eva luation team was not given any document to substantiate the existence of an
operat ional PI C coordination Secretariat. It appears that this gap was left to be
filled by the two federal ministries (FMA WR and FMCI) that shared the
superv isory role (through appointed PI C desk officers) with consequent
ineffic iency.
The lack of spec ial izat ion of various stakeho lders a long the cassava va lue chain
was perceived as an important constraint to the successfu l implementation of
PARTNERSHIPS IN SUPPORT OF CAADP UTA 36
NEPAO _ .... _-
the program. This is reflected by the following statement by one of the
participants to the survey: 'Evelybody seems to be doing evelything at the same
time; e.g., same entrepreneurs wanl 10 plalll cassava, process and market; this
has led to confusion ill the chain' '.
blsllfficient fllnding
To date, the government has released less than 5% eN 130 million) of the W5.4
billion initially proposed for the fi.mding of the PIC. Many implementing states
also did not pay-up their counterpart funds.
In addition, there is a lack of affordable credit facilities for producers as well as
processors. Almost all the actors (cassava growers, processors and traders,
equipment fabricators, bakers, and transporters) operating in the cassava value
chain in the country, agree that the lack of access to micro-credit (from formal
credit sources) is a major limiting factor to from the successful implementation
of the PIC.
The survey results showed that the lack of access to micro-credit is a limiting
factor to the expansion of various activities such as cassava growing,
processing, utilization, transportation and marketing as well as the fabrication of
the production and processing equipment. This fmding corroborates the
observation by Sanni et a!. (2007) on the collective deleterious effects of the
lack of access to micro-credit facilities by stakeholders of the cassava sub-sector
in Nigeria.
Poor monitoring and evaillation
It appears that there have been no structured M&E activities since the start of
the inlplementation of the initiative. There is practically no data collected by
PARTNERSHIPS IN SUPF!ORT .... OQ,..CAADP 37
N EPA D _.---
relevant agencies on cassava processing and marketing in Nigeria. Hence, it is
very difficult to evaluate the filii progress and impact of the targets and
objectives set by the PIC. According to some of the key stockholders an M&E
system was designed at the inception of the initiative. However. there no
designated body in charge of this component that is instrumental to the success
of any development project.
The only reliable and regularly published progress measures are provided in the
quarterly reports ofCEDP. The project has identified outcomelimpact indicators
based on the specific target objectives as follows:
• Income from cassava-based products
Total gross income from the functional mobile grater, micro- processing
and smalVmedium-scale enterprises
• Increased Market-Driven Employment Opportunities
Job creation data (number of persons employed disaggregated - male,
female, youth)
• Increased Agricultural Productivity and Marketing
Sales of agricultura l commodities/products (garri. fufu, flour, high
quality cassava flour, cassava chips, and starch.)
Area under sustainable management: This is the total land area farmed
in targeted States, using at least one improved practice.
Productivity of selected commodities/products
Clients using improved technologies
Number of farmers provided with number of bund les of improved
cassava varieties
• Increased commercial viabi lity of micro, small, and medium enterprises
Number of enterprises benefiting from Business Development Services
(BDS)
PARTNERSHIPS IN SUPPORT OF CAAOP UTA 38
N E PAO ._ ... _-
Lessons learned and the way forward for the PIC on cassava
Implemelltation strategy
Nigeria's Presidential initiative on cassava appears to be well focused as its
areas of intervention (development of cassava production and processing,
expansion of cassava and cassava processed products marketing) were
adequately integrated to the cassava va lue chain development activities of the
federal ministries (Agriculture and water resources, and Commerce and
industries) leading the implementation of the initiative. However, despite the
alleged good collaboration between the two ministries, it appears that the
implementation of the PIC suffered the lack ofa central coordination that would
have contributed to avoid or quickly overcome some of the constraints
described above.
We believe that a Secretariat of the PIC could provide a stronger and unique
institutional support to ensure proper implementation and management of the
program. This Secretariat should be placed under the administrative authority of
the Office of the President. The decisions of the Secretariat would be
operationalized by a multi-disciplinary cassava sub-sector development task
force (CSDTF). The task force members should come from the line federal
ministries of Food and Water resources and Commerce and Industries.
However, the task force will operate under the direct authority of the PIC's
Secretariat. Efforts should be made to provide autonomous management
authority to the Secretariat to avoid unnecessary bureaucratic and political
obstacles.
PARTNERSHIPS IN SUPPORT OF CAAOP UTA 39
N E P A D _._--
MOllitorillg alld E,'aillatioll (M&E)
M&E is essential for adequate management of the PIC. Efforts are needed to
institutionalize M&E, which should be participatory and implemented through
learning-by-doing and feedback mechanisms. All key stakeholders, including
researchers, farmers, traders, processors, and policy makers will be involved in
M&E to build ownership, as well as individual and collective responsibility.
Their involvement will help ensure that their perceptions of progress are taken
into consideration. It is important that all the implementation actors be involved
in the identification of relevant outcome and impact indicators to monitor the
progress towards the program objectives, and evaluate the impact of the
achievements. M&E reports will be disseminated to create awareness among all
stakeholders involved in the program.
Cassava prodllctioll
Available data showed that the initial stakeholders' enthusiasm about the PIC
contributed to a significant increase in cassava production. But, stakeholders'
expectations have dropped considerably because of the above implementation
constraints (i.e. low availability of improved clean cassava planting materials,
processing and marketing constraints, poor funding of the initiative) . This
situation has affected the inilial positive production experienced during the first
full three years (2003 - 2005) of implementation of the PIC.
It appears that an initial substantial investment by the government is called for,
especially for the production and dissemination of sufficient supply of improved
planting materials. To this end, the program needs to put more emphasis on a
nationwide promotion of community-based multiplication and marketing of
good, true-to-type cassava planting materials. It is also necessary to improve
producers' access to farm inputs by creating adequate linkage between cassava
growers and inputs suppliers.
~ ~ __ • •• T __ ~ F.
PAR1:NE~HIPS IN SUPPORT OF CAAOP UTA 40
Cassava processing and utilization
The PIC has stimulated an expansion in cassava production and this call for an
expansion of utilization, processing and commercialization to provide a range of
food, feed and other industrial products from cassava to ensure that the
objectives of the initiative are fully achieved. To this end, the following actions
are necessary:
Increased research-for-development efforts and investment in the area of
cassava utilization and processing are required
Initial substantial investment by the government for the establishment of
farm gate processing centers
Joint partnership between Nigerian entrepreneurs and foreign investors for a
successful provision and operation of adapted and efficient processing units
Formal legislation required to facilitate the compliance of relevant
implementing actors for a successful achievement of some of the objectives
of the PIC, such as the inclusion of cassava in baking flour.
Cassava marketing
The PIC was instrumental ill uncovenng the potential export market for
products from cassava. However, findings of the study show that there are
several constraints to both domestic and export marketing of fresh cassava and
cassava processed products that need to be solved. First of ali, there is a
pressing need for a well-designed market information system (M1S) to improve
the dissemination of market information to cassava farmers, marketers, and end
users. Second, there is the need to reduce export tax on cassava products and
adjust some of the stringent export laws to make export of cassava products
attractive to processors] This could help stimulate the entry of nascent Nigerian
3 A medium scale processing company in Umuahia, Abia state (Aquada Nigeria Limited) gave a vivid account of the experience of the company on exportation of processed garri flour to USA
PARTNERSHIPS IN SUPPORT OF CAADP UTA 41
companies into the cassava international market. Third, concerted policy
measures must be taken to stabilize cassava market price and prevent the almost
yearly recurrent cassava supply glut from June to November, when cassava
market price is usually low due the abundance on the market of several staple
food substitutes to cassava. Finally, regional trade and economic cooperation
between the producing and processing countries in sub-Saharan Africa must be
encouraged to reduce the collective deleterious effects of the ineffective trade
laws on the development of the cassava sub-sector.
Entrepreneurship motivation
Some government stakeholders perceive that the majority of entrepreneurs had
a misconception of the PIC, as they were under the illusion that government
was to buy back what they produce (tubers, processed products). There is a
sense that most of these .. businessmen" have yet to develop a businesslike
attitude to enterprise. This could be facilitated by providing entrepreneurship
development training needs to small and medium scale producers, processors
and marketers. Strategies should be developed to encourage specialization of
entrepreneurs in specific aspect of the cassava sub-sector along the value chain
and operate either as producer, processor or bulker/marketers.
Sustain ability of ti,e PIC
The sustainability of the PIC depends strongly on the effectiveness of the
public-private partnership advocated by the program. However, it appears that
the majority of the implementing actors are relying essentially on government
intervention. As proposed above, we think that government should provide an
initial adequate funding to support all activities considered critical for managing
the implementation of the program. After that the primary role of the
in 2006. Amongst the problems encountered by the company are high export tariff, official corruption and bureaucratic bottlenecks.
. ~ -- .
PARTNERSHIPS IN SUPPORT OF CMOP UTA 42
government should be to facilitate and promote private sector led strategies to
ensure the sustainability of the initiative. To this end, a ll stakeholders must
commit to the initiative and be involved in the planning, implementation,
monitoring and evaluation of the program. Access to micro-credit needs to be
improved for the primary actors (e.g. cassava growers, cassava processors,
cassava traders, equipment fabricators). It is very important that the M&E
component of the initiative be reviewed, adapted, and institutionalized.
43 PARTNERSHIPS IN SUPPORT OF CAADP
, "-' '
Ghana Presidential Special I nitiative on cassava
The presidential Think Tank that initiated the PSI on cassava has identified the
establishment of the corporate village enterprises (COVE) - under a farmers'
ownership model- as the best strategy to address poverty reduction problem in
both rural and urban communities. Starch was identified as the product with
higher value. Hence, plans were made to harness the best technology to produce
best starch in the region. The COVEs were to establish cassava starch factories
that would then serve as the fulcrum of activities on the development of the
cassava sub-sector. The expectation was that the provider of the processing
technology would facilitate the starch market entry to the established factories.
The implementation of the initiative was devolved to the secretariat of the PSI
on cassava under the President Office and the direct supervision of the Ministry
of Trade and Industries. The various actors involved in the implementation of
the PSI on cassava in Ghana are listed below with a brief description of their
main roles and responsibilities in the execution of the program.
Government stakeholders
Secretariat of the PSI 011 cassava
The secretariat of the PSI on cassava coordinates all aspects of the design,
planning and implementation of the PSI on cassava. It was mandated to
coordinate the establishment of three pilot cassava-starch processing factories.
To date, only one of the factories, the Ayensu Starch Company Limited, has
been established. Other practical tasks of the Secretariat included:
Coordination of the provision of planting materials to farmers
Facilitating the organization of farmers into enterprise groups
PARTNERSHIPS IN SUPPORT OF CAAOP UTA 44
Sourcing for market for cassava starch in the domestic and export markets
Providing training for the technical personnel
Facilitating the development of social infrastructures (roads, electricit~,
water supply etc) in the project communities
Sourcing for fmancial support to the PSI on cassava, to help the
establishment of the cassava starch factories.
Millistry of Food alld Agriculture (MOFA)
MOFA collaborates with numerous primary stakeholders on the implementation
of the PSI on cassava in order to ensure the success of program implementation.
It collaborated with the secretariat of the PSI on cassava (on project design and
planning, sourcing for funding and establishment of ASCO), the Roots and
Tuber Improvement Network (on the production and distribution of good
planting materials to local producers), and with Crops Research Institute (on the
selection and multiplication of the most appropriate cassava varieties to suit the
objectives of the initiative).
Crops Research Illstitute (CRl), Kumasi
CRI is assisting in the development of food and industrial crops in Ghana. To
that end, the institute had been working to help with the conservation of all '
cassava germplasm even prior to the introduction of the PSI on cassava. With
the launching of the initiative, CRI took on new responsibilities and played key
roles in the implementation of the PSI on cassava. It contributed to the release
of four improved cassava varieties in 2005 and to the supply of adequate
quantity of the foundation stocks of high quality planting materials to farmers.
A researcher from the institute was seconded to the established pilot starch
factory for technical backstopping of the management team of the company.
PARTNERSHIPS IN SUPPORT OF CAAOP nTA 45
• • 1
The Roots and Tuber Improvement Project (RTIP)
This agency was recently reorganized and is now known as the Roots and
Tubers Improvement and Marketing Project (RTIMP). It has collaborated with
other agencies such as CRI to help provide good planting materials to farmers.
RTIP has also provided counterpart funding for the initiative to cover for the
lack of direct funding by the central government, as its objectives were
complementary to the goal of the PSI on cassava. RTlP in collaboration with
CRI also promoted the development of community-based cassava multiplication
scheme to improve the access of local producers to superior planting materials.
Primary actors of the cassava value chain in Ghana
Cassava growers associations
Some of the growers associations have up to 10, 000 members (e.g. Ayensu
cassava farmers' association). Their major roles in the implementation of the
PSI include: ensuring adequate linkages between the local cassava producers
and the cassava starch factory, supplying raw materials (i.e. fresh cassava roots)
to the starch factory, assisting members to expand cassava production. These
associations were also meant to contribute to the creation of more rural
employment through cassava production, to assist members for improved access
the local market, and work with relevant government structures to ensure the
successful establishment of the cassava starch processing factories as planned
by the program.
Ayensu Starch Company limited (ASCO)
The frrst public-private partnership enterprise, ASCO was established in 200 I,
but it began production only in 2003. It has an installed capacity to produce 3
tons of cassava starch per hour (or to process 300 tons of raw cassava per day).
PARTNERSHIPS IN SUPPORT OF CAADP UTA 46
U EPAO .-~ .. --
,
The expected contribution of the ASCO factory to the implementation of the
PSI on cassava includes:
Value addition to cassava through the processing of high quality and food
grade cassava starch
Wealth creation for farmers in the catchments areas of the factory (nine
contiguous districts to the factory) through job creation
Increased marketing of cassava starch on domestic, regional and
international markets
Acceleration of economic growth in the non-traditional export sector.
Organized private sector
This comprises the privately founded companies prior to the PSI on cassava and
new emerging enterprises thanks to earlier achievements of the PSI on cassava.
These enterprises are making efforts to harness private capital to establish
and/or up·grade processing plants to process diverse cassava products (e.g.
CALTECH on cassava ethanol), hence increasing the contribution of the private
sector to the successful implementation of the government's initiative on
cassava. The organized private sector is expected to provide employment
opportunities in the cassava sub-sector (through the engagement of the contract
growers and other factory workers), and lay the foundation for the sustainability
of the PSI on cassava.
Support institutions
The Intemational Institute of Tropical Agriculture (/ITA), Ibadan
The implementation of the PSI on cassava in Ghana had also built greatly on the
cassava improvement research at liT A: The three major cassava varieties with
good starch content (Afisiafi, Doku Duade and Agbelefia) deployed on the
implementation of the PSI on cassava were all developed at IlTA, Ibadan.
PARTNERSHIPS IN SUPPORT OF CAAOP 47
N EPAO .- ... --
IITA's links with national systems are of great importance for the realization of
common goals. I IT A has been active in maintaining and further improving
linkages between the cassava program and the national root crops programs in
Ghana and other African countries.
NOIl-govertlmellfal orgallizatiolls (NGOs)
The roles performed by some of the NGOs, such as the Farmers ' Organization
Network of Ghana (FONG), include the multiplication and distribution of
cassava planting materials to farmers (in collaboration with RTlMP) , capacity
strengthening of local processors to produce cassava starch using traditional
processing technologies, and the coordination and technical backstopping of
farmers ' groups. These NGOs also provide training to farmers on the best
agronomic and crop management practices. They have played advocacy role to
ensure guaranteed adequate producer prices to cassava farmers' groups.
Achievements of Ghana PSI on Cassava
The PSI on Cassava has made some progress (although this was below
expectation) towards the Ghanaian government's goal of adding value to
cassava to tap in the potential of the cassava sub-sector. The major
achievements are highlighted below per intervention area of the initiative.
Illstitutiollal developmellt
Several key ministries were put in charge of handling various aspects of the
implementation of the PSI. The Ministry of Food and Agriculture (MOFA) and
the Ministry of Finance are in charge of the estab lishment of the cassava starch
factories . The Ministry of Works and Housing was leading the provision of
PARTNERSHIPS IN SUPPORT OF CAADP \\TA 48
infrastructures (road, potable water supply system) in the communities where
factories were to be located. The Ministry of Energy was in charge of ensuring
correct provision of electricity, while the Ministry of Communication was in
charge of provision of telephone and other telecommunications services to the
factories and the surrounding communities. The Secretariat of the PSI on
cassava (Figure 8) was successful in coordinating the activities by these various
ministries to establish the ASCO factory. The philosophy behind the PSI on
cassava could have greatly enhanced rural transformation in Ghana if the
government and its partners had succeeded in establishing the planned 10
cassava starch factories.
Figure 8: Office oflbe Secretariat oflbe PSI on cassava in Accra, Ghana
Cassava production
Farmers were organized into vibrant well-structured groups; this qualified them
to benefit from government assistance program for cassava production. The
creation of farmers ' organizations was facilitated by the Secretariat of the PSI
on cassava and few active NGOs in the targeted project areas. The program
helped significantly to improve farmers ' access to good quality cassava planting
PARTNERSHIPS IN SUPPORT OF CAADP "TA 49
M E PAO
materials of 3 varieties (ajilsiaji , tek and abasaJeta) . Between 200 I and 2004,
RTiP cultivated a total of 11 ,969ha to produce improved cassava planting
materials. Furthermore, a total of 11 ,563 community-based planting materials
production units were established between 200 I and 2003.
The initial well-elaborated launching and sensitization campaIgn by the
Secretariat of the PSI was instrumental in creating awareness on the potential
economic profitability of cassava enterprise. Activities were undertaken to
enhance capacities of farmers and farmers ' groups and facilitate best practice in
cassava production, and to help in the development of agri-business ventures
and related entrepreneurial skills.
The market condition was favorable to farmers from 2001 to 2003 and cassava
production increased during that period. Results showed that in 200 I, cassava
land area in Ghana was 0.726 million ha while production quantity was 8.97
million tons (FAO, 2007). By 2003 the cassava land area increased by about
II % while production quantity increased by 14%.
The key factors of this increase in cassava production include the fo llowing:
Initial successful coordination work performed by the PSI ' s Secretariat
through a system of Cassava Desk Officers that were posted in all the
implementation districts in Ghana. The desk officers contributed to the
implementation of the program by providing required back-stopping to
various relevant actors involved in the program.
Increased farmers ' access to good quality planting materials of disease
resistant and high yielding cassava varieties. This resulted partially from the
establishment of a proper network for the multiplication of planting
materials through a network that includes: (i) MOFA (providing and
managing primary multiplication sites); (ii) the contract growers (providing
50 PARTNERSHIPS IN SUPPORT OF CAADP ........
N IfPA D .-~ .. --
and managmg secondary multiplication sites); and (iii) the individual
farmers (providing and managing tertiary multiplication sites).
Extensive collaboration between Crop Research Institute (CRl) and Root and
Tuber Improvement and Marketing Program (RTIMP) to ensure provision
of technical support to the PSI. RTIMP had also on ground a
multidisciplinary inspection team to certifY planting materials before
coppicing and distribution to local producers.
The farmer-to-farmer diffusion approach enables the rapid dissemination of
quality planting materials.
The strong commitment of the government extension agency to mobilize
farmers through a participatory information and education campaign.
The district assemblies joined efforts with the PSI on cassava and farmers '
organizations (e.g., ACF A) to multiply planting materials and to produce
cassava as raw materials for the anticipated starch factories.
Unfortunately, the above emerging cassava production success was only for a
very short period. The study [mdings presented in figures 9 and 10 show that
from 2004 both cassava land area and production quantity began to fall.
Cassava land area fell by 2.9% in 2004 and 4.3% in 2005. Production quantity
also fell in 2004 by nearly 5% and by about 2% in 2005. In 2006, there was a
little upward swing (of about 5%) in cassava land area, but the production
quantity barely changed.
Farmers groups in the focus group discussions confirmed this fluctuating trend
in cassava production in Ghana. It is explained in part by the inability of the
government to fi.lI1d the initiative and contribute to establishment of the other
nine planned cassava starch-processing factories. The inefficient functioning of
the only cassava starch factory (ASCO) established through the program has
also negatively affected farmers ' production activities.
PARTNERSHIPS IN SUPPORT OF CAAOP UTA 51
Figure 9: Quantity of cassava produced in Ghana, 2001-2006
12000 '" '" E 10000
0 0 0 "--' 8000 '" .S -u 6000 " .", 0 ... 0- 4000 '" ;>-
'" '" 2000 '" '" U 0
s:::.' ",,1::5
Year
Data source: FAOSTAT 2007
Figure 10: Cassava cultivated area in Ghana, 2001-2006
~ .. 800
.c 700 Q Q
E 600 '" ~ .. 500 ... ::: ::: 400 > ... ~ 300
'" > 200 '" .. .. " 100 U
0
s:i' ",<:5
Data source: FAOSTAT 2007
PARTNERSHIPS IN SUPPORT OF CAADP "TA N E P A D ._ ... _-
52
Cassava starch processillg
To date, only one out of the planned ten factories has been established under the
PSI on cassava. The Ayensu Starch Company limited (ASCO) was created. This
state-of-the art cassava processing factory (Figure II) was commissioned in
February 2004 by the Ghanaian President. The necessary infrastructures
(telephone, roads, potable water, electricity etc) that were supposed to go with
the factory (to rural the community) were also provided.
Figure 11 : ACFA's President and ASCO gatekeeper pausing in the factory
ASCO was producing a high-standard and food grade cassava starch thanks its
ultra-modem equipment required for high quality cassava starch processing.
Another factor that enabled ASCO to produce such a quality starch has to do
with the improved availability and access to high-grade cassava varieties (e.g.
Ajisiaji --TMS 30572--, Doku Duade and Agbele/ia) suitable for the production
of cassava starch (Table 3). Hence, Ghana established a comparative advantage
in the international market in the area of production of high standard (food
grade) cassava starch, but the ASCO factory was operational for only a very
short period (2003-2006) and the program was not successfi.1l in establishing
any other company as previously planned.
53 PARTNERSHIPS IN SUPPORT OF CAADP
Table 3: Improved cassava varieties deployed by RTIP for the PSI on
cassava in Ghana
Variety Year of Characteristics
release
Afisiafi (TMS 1991 High yielding (27 - 30 t/ha), disease resistant,
30572) high dry matter content
Abasafihaa 199 1 High yielding
Tekballl.y e 1994 High yielding and can be pounded
Agbelefia 2005 High starch content
Doku Duade 2005 High starch content
Data source: RTfMP, 2007
Cassava starch (domestic and exports) marketing
The demand of the cassava starch produced in Ghana has been high on both
domestic and export markets. The cassava starch produced by ASCO was
appreciated in the regional (West African) market as well as the European
market. In the first year of the factory operation, finn starch orders exceeded
market supply by ASCO. From 2003 to 2006, ASCO exported a total of 3206
tons of cassava starch to Cote d' lvoire and Denmark. Furthennore, the price of
cassava starch increased by 105.9% between 2003 and 2006 (Table 4).
Stakeholders we have met admitted that efforts by the Secretariat of the PSI
significantly contributed to the success of the cassava starch made in Ghana on
local and export markets. Unfortunately, production has been interrupted since
December 2006 due to fmancial and other management difficulties.
PARTNERSHIPS IN SUPPORT OF CAADP UTA 54
Increase private sector investment
A number of private enterprises are investing in cassava production, processing
and utilization in Ghana. Examples are CAL TECH, Amantin Village Company,
and Brong Ahafo regional company. These enterprises are targeting the
production of various processed cassava products such as ethanol for biofuel,
high quality cassava flour and feed. Caltech Ventures Ghana Limited has
established a plantation of 162 ha of improved cassava. This company has also
organized a scheme of cassava outgrowers to provide the needed raw materials
for take-off of its ethanol production scheduled to start in 2008. It is planning to
produce annually six million liters of ethanol, 60% of which would be exported.
It appears that the current increase in investment by most of these private sector
initiatives directed to the processing and marketing of new cassava products
(e.g. biofuel, chip, high quality flour and starch) stemmed from the awareness
created by the PSI on the economic importance of cassava, the initial increased
cassava production and the successful debut of ASCO.
Constraints to the implementation ofthe PSI on cassava
A significant numbers of technical and operational constraints have held back
the correct and full implementation of the PSI on cassava.
ASCO factory location, inefficient operations and "nfavorable operating
environment
Although the ASCO factory is not located in the major cassava belt of Ghana,
the company has planned that 70% of cassava roots to be processed would be
supplied by local farmers (members of Ayensu cassava farmers' association) ,
while the remaining 30% is provided by the factory's own plantation. This
PARTNERSHIPS IN SUPPORT OF CAADP 55
N EPAO . __ .. _-
situation affected seriously the adequate supply of raw materials to the factory
and subsequently its efficient operation. Factory workers we met during the
study admitted that the factory was never able to operate at its full installed
capacity of processing 300 tons of cassava/day (or production of 3 tons of
starch!hour).
Furthermore, because of the low level of cassava production in Awutu-Bawjiase
(i.e. actual location of the factory) , ASCO has competed over the years with the
local cassava users in the district as well as local users, from neighboring
communities of Togo Republic, who attend the local market regularly to buy
cassava. The effective operational cost of the factory was too high due to its
operation below factory installed capacity. This considerably affected the
company' s profitability, as well as its ability to pay good salaries and maintain
good working conditions for its staff.
The lack of adequate road infrastructure has made very difficult for the
suppliers to bring in raw materials to the ASCO factory from locations out of
the company's surrounding districts. It appears that the PSI strategy favored a
shift of the burden of transport from individual farmers or farmers ' group to the
established COVE. Farmers were selling fields of ripe cassava instead of
harvested produce to ASCO. The company then harvest amount of roots that
could be easily transported by trucks to the factory. Unfortunately, due to poor
funding of the company' s activities, ASCO has been unable to ensure a regular
supply of fresh cassava roots to the factory.
The financing problem has also affected the ability of the factory to raise the
needed working capital required for its operations and the ability of the
management to pay for raw material supply on time. Initial funds for the
implementation of the PSI on cassava (including the establishment of ASCO)
56 PARTNERSHIPS IN SUPPORT OF CAADP
N EPAD .- ... --
were borrowed from commercial banks, and were to be reimbursed when the
government would bring promised money to carry out the initiative. However,
the banks that were providing this initial financial support eventually backed-up
when they realized that their investment to the PSI venture has not been
yie lding the expected returns.
ASCO has not been able to satisfy the market demand for its products. The lack
of technical expertise in some areas (such as export marketing) affected the
competitiveness of the company on the international market. The company
exported 1600 metric tons of cassava starch in 2003, but the export volume
recorded a dramatic fall to the very low figure of just II metric tons in 2006
(Table 4). Some stakeholders attributed this failure to poor management and
various marketing constraints, such as discriminatory importing laws in some
potential buyer countries (e.g. Nigeria banned the importation of cassava
products from other African countries to ensure the success of its own PIC).
The ASCO factory stopped operating in 2006 and the plant had not yet resumed
production when the evaluation team visited company in December 2007.
Table 4: Export of cassava starch by ASCO, 2003 - 2006
Year Export quantity (mt) Price per ton ($) Total export value ($) Export destination
2003 1600 170 272000 Denmark
2004 1100 200 220000 Denmark
2005 495 320 158400 Cote d ' lvoi re
2006 II 350 3850 Cote d ' lvoire
Total 3,206 654,250
Data source: ASCO. 2007
This disruption in the starch producing activities has affected the ability of the
company to meet its obligations to its contract growers. Because the factory has
PARTNERSHIPS IN SUPPORT OF CAADP \\TA 57
not been buying raw materials, farmers cannot harvest the cassava that they
were contracted to grow in 2005. Some of them, particularly members of the
Ayensu Cassava Farmers Association (ACFA) and Densu cassava growers
association, are getting concerned that unharvested cassava is loosing starch
content because the ripen roots have remained too long in the soil. The most
popular cassava variety grown by members of these farmer groups is ajisiaji
(TMS 30572), and only the starch processing factory would accept it because of
its high starch content. The local market demand for such variety is very low
because it is not good for the production of local foods (e.g. fitfu and gari) . The
suspension of ASCO's starch factory production activities has also led to a
slight fall in the market price of cassava in 2006/2007. This situation tS
seriously compromising the prospect of success of the PSI on cassava.
Figure 12: An ACFA member's unharvested
cassava field located at about 5 km from tl,e
Ayensu starch factory in the district of Awutu
Bawjiase, Central Gbana.
PARTNERSHIPS IN SUPPORT OF CAADP
Figure 13: A view of the FGD session with
members of the Densu cassava producers
association of South Senchi vi llage,
Asuogyaman district in Eastern Ghana
58
N EPAD ._ ... _-
Poor fUlldillg
The lack of the promised government financial support to the initiative was a
major limiting factor to the implementation of the PSI. ASCO could not support
the high operational cost of the factory, as well as raw material supply prices
that farmers were asking for. The coordinating secretariat then opted for
borrowing from the private financial institutions in order to be able to carry out
relevant activities at both farm and factory levels. But, private credit sources
were starting to be reluctant to funding fresh cassava production activities and
the starch factory.
Low availability of raw materials (fresh cassava roots) supply
From 2003 to 2006 when ASCO starch factory was still running, the small scale
farmers (especially members of ACFA) on which the company depended for the
supply of fresh cassava roots were unable to meet the factory's demand of raw
materials. The program then tried unsuccessfully to bring in commercial
farming to grow cassava for the factory. Most of the targeted richer agricultural
producers did not fmd the activity as an attractive investment, and they would
rather invest in the production of crops such as pineapple that has a better
recognized economic status in Ghana.
Womell participatioll
It has not been possible to achieve one of the primary objectives of the PSI on
cassava that was to have women representing 50% of farmers involved in the
program. However, women have traditionally been involved in the local micro
processing of cassava (e.g., garri,fufu, flour, chip and starch) to meet the needs
of local consumers. In 1999 a study by F AO found that about 40 percent of chip
processors were women in some key cassava producing areas in Ghana. Now
that there is a greater awareness about· the high potential benefit of cassava
PARTNERSHIPS IN SUPPORT OF CAADP UTA 59
N EPA O ._ ... _-
enterprises and the fact that cassava is fully integrated into the cropping system,
opportunities exist to bring women in cassava growing activity if there is no
problem of access to land and labour cost is kept at a reasonable level.
Institutional challenges to the successful implementation of the PSI
Weak stakeholder Iillkages
It appears that there were no well established linkages between the principal
actors involved in the implementation of the PSI on cassava. For example there
was no memorandum of understanding between the Secretariat of the PSI and
farmers/farmers ' associations. This has negatively affected the commercial
relationships between the program and farmers, making it very difficult to
overcome various implementation problems.
Prior to the PSI, there were number of projects such as the IF AD-funded
initiatives that were supporting the development of the cassava sub-sector in
Ghana. Sasakawa Africa Foundation has completed a project that disseminated
cassava-processing equipment, especially to women 's groups. Lessons learnt
from another important development initiative (the Village Infrastructure
Project) by the Ghana Government would have helped in the implementation of
the PSI on cassava. This project contributed to the development of village-to
farm tracks that were complemented by the introduction of intermediate means
of transport to replace carrying loads on the head. Such transport arrangements
could have facilitated the movement of cassava and help to strengthen the
linkages between cassava farming and the non-farm sector (the starch factory).
PARTNERSHIPS IN SUPPORT OF CAADP UTA 60
N EPAO ._ .----
However, there was no effort to link the implementation of the PSI on cassava
to the outcomes of these past projects. Hence, potential useful lessons were not
drawn from past and/or on-going activities in the cassava sub-sector. In
addition, a number of relevant research institutes (e.g. CR! , RTlP, Food
Research Institute, Natural Resources Institute) were not fully involved at the
planning stage of the initiative. Representatives of the PSI 's Secretariat do not
think that RTIP was supporting the initiative in a specific way. International
Research institutions operating in the region, such as liT A, were completely out
of the picture.
Lastly, it appears that the NEPAD Pan African Cassava Initiative Secretariat
(NPACI) has not significantly contributed to the implementation of the PSI on
cassava in Ghana. The Secretariat of the PSI on cassava would have benefited
tremendously from the NPACI's support.
Lack of a fitllctiollillg M&E system
Like in the case of the PIC in Nigeria, there was no operational M&E system to
assess the progress towards the objectives of the PSI on cassava. The
stakeholders, particularly the PSI Secretariat was therefore lacking a valuable
information generating tool that could enable them to monitor and assess
progress and take collective decisions and actions to ensure that the program is
on the right course.
Political rivalry
According to some major actors, political opposition failed to see the PSI on
cassava as a program that was targeted at rural development in Ghana. Members
of some opposition parties saw it as a propaganda instrument of the incumbent
governing party, and they were willing to see the initiative thwarted. Some of
61
N EPA O _ ... _-
them even try to create disagreement between some local stakeholders
(particu larly farmers supplying the raw materials) and ASCO and its
management.
Lessons learned and the way forward for the PSI on cassava
Implementation strategy
The corporate village enterprises (COVE) model was a new concept that most
people did not understand. Furthermore, the PSI set up root in the eivil service
bureaucracy. These were the major bottlenecks to successful implementation of
the PSI on cassava.
To achieve the set objectives of the initiative, the Secretariat of the PSI should
provide a strong institutional support to ensure proper implementation and
management of the program. This could be done through a design simi lar to the
one described above for the PIC in Nigeria.
The PSI was successful in the creation of farmers' organizations. The Ayensu
cassava fanners ' association and the Densu cassava producers association are
two success stories of the PSI. These were two dynamic producers '
organizations that contributed significant ly to early successes of ASCO.
Unfortunately, farmers are loosing the enthusiasm that was generated by the
launching of the initiative. There is today a need to remobilize farmers and fully
involve all other relevant partners (espec ially research institutions, development
agencies and NGOs) and a ll major political wings in PSI related program
planning, implementation, monitoring and evaluation.
PARTNERSHIPS IN SUPPORT OF CAADP UTA '~/-""'~" f ~ "f 'i
"O. "
62
The participatory Information Education Campaign (IEC) at the beginning of
the PSI contributed to the successful creation of fanners' organizations and the
establishment of the ASCO factory. The lack of information and misinformation
of stakeholders are currently among the chief implementation constraints of the
PSI's activities. The task force that would be fonned should develop a
cOlTununicationiadvocacy system aimed at . . Improvlllg information
dissemination, favouring participatory and informed debate related to the
implementation and monitoring and evaluation of the program.
MOllitorillg ami Evaillatioll (M&E)
M&E is essential for adequate management of a program such as the PSI.
Efforts are needed to institutionalize M&E, which should be participatory and
implemented through learning-by-doing and feedback mechanisms. All key
stakeholders, including researchers, farmers, traders, processors, and policy
makers will be involved in M&E to build ownership, as well as individual and
collective responsibility. Their involvement will help ensure that their
perceptions of progress are taken into consideration. M&E reports will be
disseminated to create awareness among all stakeholders involved in the
program.
Cassava prodllctioll
One lesson learnt in this area is that farmer friendly planting materials
distribution is a key factor to the successful dissemination of improved cassava
varieties and to increase productivity and production. Therefore, the program
should continue the promotion of business oppOltunities in the production and
marketing of cassava planting materials to ensure a sustainable raw materials
(fresh cassava roots) supply to processors. The PSI should make efforts in
building farmers ' capacity on best practices for the production of cassava
planting materials as well as fresh cassava roots.
63
N E PAD _ ... _-
Funding problem was also found to be very critical to the successful
implementation of the PSI. Efforts are needed for increased local producers'
access to proper credit sources such as micro-credit schemes.
Finally, there may be a need for land tenure system reform in some cassava
producing communities to help improve women's access to land and their
involvement in the activities of the PSI.
Cassava starch processi"g
Future plans by public-private partnerships to establish cassava starch factories
should consider the availability of the primary raw materials (fresh cassava
roots) as an essential factor in the choice of the sites of cassava starch factories.
Raw cassava is bulky to transport, and the ratio (in tons) of some of the
available varieties to finished product (cassava starch) is too wide (5.5:1). The
bulk and perishability of fresh cassava mean that demand for transport is high.
PSI's Secretariat and partners will need to develop cost effective and
appropriate transport arrangements to preserve the quality of both the raw
materials and fmal processed-cassava products.
The management of ASCO's farm operations and the factory running as a
single economic entity has proven to be very challenging and this contributed in
part to current inoperative status of the PSI on cassava. Many actors of the PSI
agree that the management of ASCO's farm operations need to be separated
from the management of the factory operations. Furthermore, farmers should be
duly represented in the company' s governing board and empowered to
guarantee that legitimate interests of farmers ' groups are taken into account for
making any final decision related to the management of both operational
64 PARTNERSHIPS IN SUPPORT OF CAADP
components (farms and factory) of the company. A Cumpany Management
Information System (C/MIS) should be developed to help create a physical,
technical, institutional and human environment conducive to the efficient
operation of the factory.
The Secretariat of the PSI and the CSDTF will regularly review the results
achieved by the company and take appropriate necessary actions to ensure the
sustainability of the venture. In addition, the task force should, on the basis of
identified training needs of stakeholders (farmers, traders/processors) , provide
tailor-made training programs with a view to promoting stakeholders
participation in effective execution ofthe company's activities.
Critical technical and financial assistance through proper affordable credit
sources is required to help ASCO factory to resume production at optimum
capacity and prevent an irremediable shutdown of the company.
Relevant research organization should be fully involved and properly funded to
ensure that new high yielding cassava varieties, with desire starch content , are
developed and disseminated to ensure reliable raw materials supply to cassava
starch processing factories.
The government should catalyze the public-private sector partnership by
providing the enabling environment (through legal, policy and institutional
reforms) to help build more cassava starch processing factories. Ghana appears
to have acquired international comparative advantage in the productio n and
market supply of high quality, food grade cassava starch.
The PSI on cassava should seriously reconsider the possibility of implementing
the second option that was identified by the Presidential think tank as an
~" \\T~ 65
alternative strategy of addressing the vital rural and urban poverty reduction
mission. This alternative was based on a mobilization of small scale producers
to strengthen their capacity for producing fresh cassava and add value to it.
Such model could be used to increase economic opportunities through
sustainable and competitive cassava production, marketing and agro-enterprise
development in selected communities. There would hence be an expansion of
postharvest processing and marketing outlets for cassava products, which could
in medium term lead to the development of viable micro-, small, and medium
enterprises. This is exactly the model being used by IlTA-CEDP in support of
the implementation of the PIC in Nigeria.
Conclusion
The Nigerian Presidential initiative on cassava and the Presidential Special
Initiative on cassava of Ghana have adopted two different approaches to
promote cassava production, processing and marketing to tap on the enormous
potential of cassava for food security and income generation in both rural and
urban communities. In Nigeria the PIC's strategy was to increase economic
opportunities through sustainable and competitive cassava production,
marketing, and micro-, small- and medium-scale agro-enterprise development.
The Ghanaian approach is based on a farmer-ownership Corporate Village
Enterprises (COVE) model, which seeks to bring rural communities into
mainstream economic activity by establishing large-scale export-oriented
enterprises.
Despite the difference in approach, both countries are facing similar problems
in the implementation of their respective program. The major constraints
include institutional challenges (poor coordination of program implementation,
PARTNERSHIPS IN SUPPORT OF CAAOP UTA 66
N EPAO ._ ... _-
poor funding and access to credit, lack of an operational M&E system, cassava
production constraints (e.g .. low availability of improved planting materials),
and processing and marketing constraints (e.g. management difficulties of
established processing enterprises, inadequate market access due to lack
performing market information system).
Nonetheless, the PIs have helped create awareness about the multiple possible
uses of cassava to produce value added products such as flour, starch, cassava
chips, glucose syrup, animal feed , ethanol, and composite (cassava-wheat)
baking flour. Both the public and private sectors have been giving increasing
attention to the cassava sub-sector. In Nigeria the PIC has stimulated an
mcrease in cassava production and processing by both microprocessors and
medium scale processors. In general, government programs are aimed at
improving productivity and production, while the private-sector initiative is
expanding demand sources in Ghana and Nigeria. These strategies can
complement each other if the identified bottlenecks are adequately addressed.
For example, a coordinating Secretariat of programs such as the PIs would
provide a stronger and unique institutional support for proper implementation of
the programs. This Secretariat should be under the direct authority of the Office
of the President. It should operate with a multi-disciplinary cassava sub-sector
development task force , which members will come from the relevant line
ministries (e.g. Ministry of Food and Agriculture, Ministry of Commerce and
Industry). Strong linkages between different actors including the Secretariat of
the PI, public and private key implementing institutions, and
producers/processors associations are essential for the successful
implementation of a program such as a PIon cassava.
Institutional support from national public services such as research institutions
and external institutions such as liT A would significantly contribute to the
" PARTNERSHIPS IN SUPPORT OF CAADP
67
, .,
growth of the private sector initiatives aimed at the development of the cassava
sub-sector. As a matter of fact, the Integrated Action Program for Cassava
Starch Production and Export in Ghana and then the PIC in Nigeria were
respectively launched following successes of the cassava research-for
development by liT A and partners in sub-Saharan Africa.
The findings of the present study fall short of giving a detail account on the
progress of the specific objectives of the Pis on cassava in the study countries.
Because of the lack of an operational M&E system, there is limited awareness
of the actual impact of the PIs and progress towards their set objectives. This
situation poses basic questions about the effectiveness and efficiency of targeted
interventions and whether they have achieved the intended benefits. There is
little or no documentation of the outcomes of the Pis' activities in both study
countries.
Nonetheless, findings of the study on the lessons learned could help NPACI to
assist the current Pis and countries planning to have their own initiative in
designing programs and subsequent implementation plans that would help to
successfully achieve the set objectives.
It is especially important to develop techniques generating data on regular basis
to carry out actual data collection and analysis for M&E in partnership with
stakeholders. Such participatory M&E will document, store, and share PI
implementation processes, outcomes, impact and lessons learned using a range
of mechanisms, including regular bulletins, annual review and stakeholders
work planning meetings, monitoring visits, PI progress reports. On the basis of
the results 0 f the M&E activities, actions will be taken with a view to ensure
that the goals and objectives of the initiative are being or will be achieved.
PARTNERSHIPS IN SUPPORT OF CAADP UTA 68
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References
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Appendix
List of interviewees
Name Country Address Telephone / E-mail
Mr L. A. Nigeria Federal Ministry of Agriculture, 0805 961 0052 Fashola Area II, Garki, Abuja 0802 337 0646
Dr. S. Nagedu Nigeria Federal Ministry of Agriculture,
Area II , Garki. Abuja
Dr. A. Adenij i Nigeria Roots and Tubers Expansion 08032727759 Project, Federal Department of Agriculture, Ijebu-Ife
Alhaji limoh Nigeria Roots and Tubers Expansion 08032727759 Project, Federal Department of
Agriculture, Ijebu-Ife
Mr. William Nigeria Nigerian Export Promotion 0803 588 0345 Ezeagu Council
Export House. Block 312. Kumba street, Wuse Zone 2, Abuja
Mr. Anthony Nigeria Nigerian Export Promotion Ajuruchi Council
Export House, Block 312, Kumba
street, Wuse Zone 2, Abuja
Mr. Boma Anga Nigeria Cassava Agro Industries Services 0803 303 1097 Limited, The Cassava House,
House 32,351 Road, Off3'" Avenue, Gwarinpa, Abuja
Mr A. Madu Nigeria Federal Ministry of Commerce, 0804 215 4569 Garki, Abuja
Mr. Timothy Nigeria Central Bank of Nigeria (CBN), 08033944144 Onyenankeya Abuja
Mr. Tunde Nigeria Raw materials Research and 08033025064 Aluko Development Council, 17 Agunyi
Ironsi Street, Maitama District, P.M.B. 232 Garki, Abuja
Dr. A.a. Nigeria Nigerian Stored Products Research 08033908094 Oyebanji Institute, Km 3 Asa Dam Road,
P.M.B. 1489, lIorin
Professor ani Nigeria National Centre for Agricultural 08033649168
PARTNERSHIPS IN SUPPORT OF CAADP \\TA 72
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Mechanization, Ajasepo Road,
lIorin
Mr. Sola Nigeria National Centre for Agricultural 08033649168 Ogunjirin Mechanization, Ajasepo Road,
lIorin
Mr. Abiola Nigeria Standards Organization of Nigeria,
Komolafe Lagos
Mr. Kwaku Ghana President's Special Initiative, + 233 21 665442 Bonsu Office of the President, State
House. P.O. Box 46, Accra
Mr. Papa Kow Ghana President's Special Initiative,
Bartels Office of the President, State House. P.O. Box 46, Accra
Mr. Osei Owusu Ghana President's Special Initiative,
Agyeman Office of the President , State House. P.O. Box 46, Accra
Mr. Amoah Ghana FONG. P.O.Box MD 772, Madina +23321 502673 King-David Haatsol Atomic Road Bus stop,
Accra
Mr. Akwasi Ghana Root and Tuber Improvement and +2335 133159
Adjei Adjekum Marketing Programme, P.O.Box , 7728, Kumasi, Ghana
Mr. Samuel Ghana ACTA, P.O. Box 40, Awutu- 0244576008
Dodo Bawjiase, Central Region, Ghana
Dr. J.J. Afuakwa Ghana Crops Research Institute, Kumasi
Dr. J. Adu- Ghana Crops Research Institute, Kumasi
Mensai
- , -~
PARTNERSHIPS IN SUPPORT OF CAADP UTA 73
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