A Review of National Fertilizer Regulatory Authorities in...
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50ParkPlace,Suite1003Newark,NJ07102Tel:+1(973)679-6870
AReviewofNationalFertilizerRegulatoryAuthoritiesinTanzania
September2016
PreparedbyAFAP
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ACKNOWLEDGEMENTS
ThisstudywascommissionedbytheAfricanFertilizerandAgribusinessPartnership(AFAP).
It ispartofasetofstudiescovering4countriesinEasternandSouthernAfricainSupport
fortheEstablishmentofaRegionalFertilizerPolicyandRegulatoryFrameworkforEastand
SouthernAfricawhich is fundedby theAlliance foraGreenRevolution inAfrica (AGRA)’s
ScalingSeedsandTechnologiesProgram(SSTP).WearegratefultoMrDavidKijaziandAFAP
Tanzania countryoffice for their facilitation role theyplayed throughout the studyand to
institutionsandindividualswhichwereinterviewed
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ACRONYMS
AGRA AllianceforaGreenRevolutioninAfricaAFAP AfricanFertilizerandAgribusinessPartnershipACTESA AllianceforCommodityTradeinEastandSouthernAfricaAMOFERT MozambicanAssociationforFertilizersCOMESA CommonMarketforEastandSouthernAfricaFAK FertilizerAssociationofKenyaFAO FoodandAgricultureOrganisationIFA InternationalFertilizerAssociationIFDC InternationalFertilizerDevelopmentCentreIFPRI theInternationalFoodProductionResearchInstituteMAFC MinistryofFoodSecurityandCooperativesMTI MinistryofTradeandIndustryNEMC NationalEnvironmentManagementCouncilSGS SocieteGeneraledeSurveillanceSSTP ScalingSeedsandTechnologiesProgramTABIRA FertilizerAssociationBurundiTBS TanzaniaBureauofStandardsTFC TanzaniaFertilizerCompanyTFDA TanzaniaFoodandDrugsAuthorityTPA TanzaniaPortAuthoritiesTFRA TanzaniaFertilizerRegulatoryAuthorityTFTA TanzaniaFertilizerTradeAssociation
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EXECUTIVESUMMARY
An assessment of the national fertilizer regulatory authorities in Tanzania reveals that
fertilizer production/importation, distribution, marketing and trade is regulated and
controlledbymultipleinstitutions.TheseinstitutionsareestablishedunderdifferentActsof
theLawsofTanzania.Incarryingouttheirmandates,theseinstitutionsalsodrawfromtheir
specific Acts, policies and regulations. This often leads to conflicts and/or overlaps and
replication making it difficult to reach consensus on certain issues. Further, there is no
nationalfertilizer-specificcoordinatinginstitutionthatguidesandcoordinateseffortsofthe
variousinstitutionstoavoidoverlapsand/orreplicationofefforts.Theweakregulatorylegal
instruments and harmonization standards undermine comprehensive and effective
coordinationinfertilizerproduction,markinganddistribution.
Inordertoaddressthesechallenges,improveagriculturalproductionandfoodsecurityand
establishameansthroughwhichgovernmentandtheprivatesectoroverseethefunctioning
ofthefertilizersector,thisreportmakesthefollowingrecommendations:
a) Strengthen the TFRA: In order to effectively coordinate the efforts of the variousinstitutions that are involved in fertilizer regulation there is need for improvedfundingandtrainingofTFRAofficials.InadditiontoavoidunnecessaryredtapeTFRAshouldadopttheone-stopshopmodel.
b) Train and gazette fertilizer analysts and inspectors: Like other COMESAmember
states,Tanzaniadoesnothaveanadequatepoolofqualifiedandgazettedfertilizeranalystsandinspectors.Toeffectivelyenforcefertilizerrulesandregulations,thereis need for trained and gazetted fertilizer analysts and inspectorswith knowledgeandunderstandingofregulatory.Theseofficersshouldbegazettedtogivethemthepowertotaketocourtallthosewhodonotcomplywiththerulesandproceduresforfertilizertesting.
c) Refurbishandequiptestinglaboratories:TFRAneedssupporttoconstruct itsown
laboratories.TodatetheagencyhasbeendependingonthelaboratoriesatTanzaniaBureau of Standards. In constructing these labs attention should be given toestablishmentofmicrobiologicallaboratoriesfortestingbio-fertilizerproductsintheTanzanianmarket.
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d) Creating awareness and linkages with national and regional fertilizer regulatoryauthorities: There is need for the government to conduct campaigns to createawareness and educate agrodealers, farmers and the general public on differentfertilizersinthemarket,andthebenefitsandsafeuseoffertilizers.Priorityshouldalso be given to working with private sector stakeholders in the fertilizer sector,buildingthecapacityoffertilizerregulatorsandcreating linkageswithnationalandregionalfertilizerassociations.Anannualmeetingofnationalfertilizerregulatorstoshare experiences and emerging issues and working with regional fertilizerassociations, and private sector forums such as the East and Southern AfricaFertilizer Trade Platform (ESAF), is also recommended. In addition the on-goingproject on installation of an e-portal to improve ICT infrastructure in general iscrucial;thiswillhelptooptimizeTFRA’sefficiencyandprovidealinktotradersandother relevantstakeholders toapply forvarious licensesandpermits fromasingleplatform. Computers will be needed to enable networking with inspectors in thedistricts.
e) Capacitybuildingoffertilizerinspectorsandlawenforcersatdistrictandnational
levels;Toenableeffectiveenforcement,regulartrainingofinspectorsandotherlaw
enforcersincludinglegalofficersinthedistrictsshouldbeintroduced.
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TABLEOFCONTENTS
ACKNOWLEDGEMENTS....................................................................................................................IACRONYMS....................................................................................................................................IIEXECUTIVESUMMARY...................................................................................................................IIITABLEOFCONTENTS......................................................................................................................VLISTOFFIGURESANDTABLES........................................................................................................VISECTION1:INTRODUCTION............................................................................................................1
1.1 BACKGROUND.......................................................................................................................11.2 OBJECTIVESOFTHEASSESSMENT........................................................................................31.3 METHODOLOGY....................................................................................................................3
SECTION2:FERTILIZERLAWSANDREGULATIONSINTHECOMESAREGION....................................52.1 FERTILIZERREGULATIONS.....................................................................................................62.2 FERTILIZERREGULATORYAUTHORITIES................................................................................72.3 FERTILISERREGULATIONSENFORCEMENTCAPACITY..........................................................7
SECTION3:TANZANIA’SFERTILIZERINSTITUTIONALFRAMEWORK.................................................83.1 MINISTRYOFFOODSECURITYANDCOOPERATIVES(MAFC)..............................................103.2 TANZANIAFERTILIZERREGULATORYAUTHORITY(TFRA)...................................................103.3 TANZANIABUREAUOFSTANDARDS(TBS)..........................................................................113.4 MINISTRYOFTRADEANDINDUSTRY..................................................................................123.5 TANZANIAPORTAUTHORITIES...........................................................................................123.6 TANZANIAFERTILIZERSOCIETY(TFC)..................................................................................133.7 ATOMICENERGYCOMMISION(ATC)..................................................................................133.8 TANZANIAREVENUEAUTHORITIES.....................................................................................133.9 PRESIDENTIALSERVICEDELIVERYBUREAU.........................................................................143.10 AGRICULTURALCOUNCILOFTANZANIA.............................................................................143.11 CHAMBEROFCOMMERCE&INVESTMENTCENTRE...........................................................15
SECTION4:FACTORSAFFECTINGFERTILIZERLEGISLATIONINTANZANIA......................................154.1 PROLIFERATIONOFNATIONALINSTITUTIONSREGULATINGFERTILIZER...........................154.2 LIMITEDCAPACITYTOENFORCEREGULATIONS.................................................................154.3 INADEQUATEFACILITIESFORTESTINGANDANALYSISOFFERTILIZERS.............................16
SECTION5:CONCLUSIONSANDRECOMMENDATIONS..................................................................166 REFERENCES.......................................................................................................................187 ANNEXURES........................................................................................................................19
7.1 ANNEXURE1:LISTOFINTERVIEWEDKEYINFORMANTS....................................................19
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LISTOFFIGURESANDTABLES
Figure1: Aconceptualframeworkforinstitutionalanalysis..........................................................4
Figure2: Tanzania’sfertilizerinstitutionalframework...................................................................9
Table1: Presenceofnationalfertilizer-specificregulatoryAuthorities(includingfertilizerLaws)inCOMESAmemberstates..................................................................................................5
Table2: Listofinterviewedkeyinformants................................................................................19
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SECTION1:INTRODUCTION
1.1 BACKGROUND
The economies of eastern and southern Africa are heavily dependent on agriculture. It is
estimatedthatmorethan70%ofthepopulationinthisregionisinvolvedinagricultureandthe
majority of these producers are smallholders farming less than two hectares. Agriculture
contributesonaverage35%ofGDPandemploys65%ofthepopulation.Therefore,agriculture
is a critical driver of the future economic development of the region. However, while
economies inmanyAfricacountrieshaveexhibitedhealthygrowth - realGDP insub-Saharan
Africagrewatanaveragerateof5%between2003and2009-thisgrowthhasnotemanated
fromtheagriculturesector(CamaraandEdeme,2013).
Despite its importance to the economy, the performance of the agriculture sector is poor.
Cerealyields insub-SaharanAfricaarethe lowest in theworld,havingstagnatedataround1
ton/haforthepast50yearscomparedto4tons/ha indevelopingcountries.Thekeyreasons
for the poor performance of the agriculture sector are the continued reliance on traditional
agricultural practices in the region and the low adoption of modern productivity enhancing
technologies suchasmineral fertilizersandquality seedsof superior varietieswhich severely
constrainincreasedyieldsinEastandSouthernAfrica.
Farmers in the region use on average 10 kg of fertilizer per hectare, compared to their
counterparts in Asia who consume on average 209 kg/ha. The result is severe soil nutrient
depletion;theratesofsoilnutrientdepletionexceed60kg/ha(WanzalaandGroot,2013).This
lowrateofusageisduetoanumberofreasonsincludingathinnetworkofagrodealers;lackof
technicalknowledgeonappropriatefertilizers;lackofaccesstofinanceallalongthevaluechain
whichprohibitsthepurchasesofsufficientquantitiestocaptureeconomiesofscale;andhigh
transport costs due to inadequateports, rail and roadnetworks. These factors result in high
costs,puttingfertilizerbeyondthereachofmostfarmers.
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Thepolicyenvironmentoftenexacerbatesthesituation.Governmentsubsidyprogramscrowd
outcommercialdemandandintroduceuncertaintyintothesystem,whichcreatesdisincentives
for private companies to invest in distribution networks. Government’s lack enforcement
capacity tooverseequality control,which increases the riskof adulterated fertilizers, fosters
distrustof fertilizeranddiscourageshonestbusinesspeople fromparticipating in the fertilizer
trade. Outdated fertilizer recommendations in many African countries are outdated due to
defunctornon-existentresearchandextensionsystems.
Similarly,governmentsubsidyprogramsoftendonotinvolvetheprivatesectorinplanningand
distribution.Hencetheprivatesectorhasnoincentivetoidentifywhichnutrientsfarmersneed
fortheircropsandsoilsandprovidetheappropriateblends.Moreover,governmentpolicy in
many of these countries discourages blending. Many countries have a list of approved
fertilizers. If the private sector wants to introduce a new fertilizer it must undergo efficacy
testing,whichcantakethreeyearsthusimposingcoststheprivatesectorcannotafford. The
listorapprovedfertilizerproductsalsodiscouragescross-bordertradeandthedevelopmentof
regionalmarkets.Countrieshaveverystrictspecificationsforapprovedfertilizers,andalthough
often thereareveryminordifferences innutrientcontent thesedifferencescan result in the
entryofanewfertilizerproductbeingdelayedorevendenied.
TheoutcomeoftheseconstraintsisthatfertilizermarketsineasternandsouthernAfricahave
failedtoreliablyprovidetherighttypeofqualityfertilizerstosmall-scalefarmers intherural
interiorinatimelymannerandatanaffordableprice.Ifagricultureintheregionistobecome
competitive,theperformanceofthefertilizermarketsintheregionneedstobeimproved.
Clearly no single interventionwill address these constraints effectively. Rather, a number of
interventions are required and many must be implemented simultaneously. These include:
investments in ports, roads and rail infrastructure to reduce transport costs; provision of
technical and business training to agro dealers; improving access to finance all along the
fertilizer value chain; and development of market information systems. However, an
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overarchingfactortofosterthegrowthoffertilizermarkets isastableandtransparentpolicy
andregulatoryenvironmentthatisconducivetoprivatesectorinvestment.
This study support SSTP’s mission and foster the creation of stable and conducive fertilizer
policyandregulatoryenvironmentintheregionbydoingthefollowing:
1) Developaregionalpolicyandregulatoryframeworkthatcanbeusedasaguide
bycountriesinEastandSouthernAfricatoembarkonapolicyreformagendafor
the fertilizer sector that will result in higher levels of fertilizer use and
concomitanthigherlevelsofagriculturalproductivityandfoodsecurity;
2) Prepare/revisedraftfertilizerlegislationforTanzania-whichiscompatiblewith
openmarketsandareharmonizedwitheachother;
3) Review and critique of Tanzania’s trade policies that impact fertilizer and
recommendationsforcommontradepolicies;and
4) Establish Tanzania’s action plans that also detail the requirements for
establishingfertilizerregulatorysystemsineachcountry.
1.2 OBJECTIVESOFTHEASSESSMENT
This report presents a review of national fertilizer regulatory institutions in Tanzania.
Specificallythereportattemptstodothefollowing;
a) Identify the presence of national fertilizer regulatory authorities in Tanzania and their
inherentcharacteristics
b) RecommendwaysofstrengtheningtheseinstitutionsforfertilizerregulationinTanzania
c) Recommendwaysoffacilitatinglinkagesbetweentheseinstitutionsinthefertilizerdomain.
1.3 METHODOLOGY
Both primary and secondary data collection techniqueswere employed. Secondary datawas
gathered through literature review on fertilizer policies in Tanzania. A number of literature
were consulted which includes previous work done by IFDC, AFAP, ACTESA, IFA, FAO in
Tanzania. In addition to this, National fertilizer policies and regulations were also reviewed.
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PrimarydatacollectionwasdonethroughinterviewswithkeyinformantswithintheTanzania
fertilizeractiondomain.InparticularthereportidentifiestherelevantplayersintheTanzanian
fertilizer domain and their attributes which have bearing on the fertilizer policy outcome
consequently influencing theenvironment.Figure1 indicates theschematic relationshipsand
interactionoftheenvironmentandthefertilizeractiondomainofTanzania.
Figure1: Aconceptualframeworkforinstitutionalanalysis
Adaptedfrom: InstitutionalEconomicsPerspectiveonAfricanAgriculturalDevelopment,2009;Kirstenetal
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SECTION2:FERTILIZERLAWSANDREGULATIONSINTHECOMESAREGION
Over80 percentofCOMESAmember stateshave legislations that regulate theproduction,
importation,distributionanduseof fertilisers. Theseareadministered throughoneormore
Ministries which include Ministries of Agriculture, Ministries of Trade, and Treasury. The
Ministry of Agriculture has vested interests in the production, importation, marketing,
distribution,standardsanduseoffertilizer.TheMinistryofTradeisconcernedissuesrelated
to the importation, distribution and export of fertilizers, including setting and enforcing
standards and the issuance of trade licenses while the Treasury has interest on revenues
(fertilizer taxes and duties). Coordination of such activities requires the presence of strong
institutionstoavoidcorruptionandrentseekingbehaviouramongregulatoryauthorities.
According to a study undertaken by the International Food Production Research Institute
(IFPRI, 2012) the countries that have promulgated specific legislations on fertiliser included
Burundi, Kenya, Uganda Zambia, and Zimbabwe. Those that have fertiliser policies or
strategies(drafts/final)includeEthiopia,Malawi,Kenya,Uganda,andZimbabwe.
Table 1 indicates COMESAmember states which have established national fertilizer specific
regulatoryauthorities,nationalfertilizerlawsandnationalfertilizerassociations.Outofatotal
of22countries,onlysix (6)haveestablishednational fertilizer-specific regulatoryauthorities;
andonlyfive(5)haveestablishednationalfertilizerassociations.
Table1: Presence of national fertilizer-specific regulatory Authorities (including fertilizerLaws)inCOMESAmemberstates
Country
NationalFertilizerSpecificRegulatoryAuthority
NationalFertilizerSpecificLaw NationalFertilizer
TradeAssociationBurundi NO YES YES(TABIRA)Comoros Djibouti NO NO NODRC NO NO NOEgypt Eritrea Ethiopia YES YES NOKenya NO NO YES(FAK)
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Libya Madagascar NO NO NOMalawi NO NO YESMauritius YES YES NOMozambique YES YES NOSeychelles NO NO NOSwaziland NO NO NORwanda YES YES NOSouthSudan NO NO NOSudan YES YES NOTanzania YES(TAFRA) YES YESUganda NO NO NOZambia NO NO YESZimbabwe YES YES YES(Informal)
Source: “Towards a framework for harmonization of fertilizer policies and regulations: Anationalandregionalsynthesisreport”,2014
2.1 FERTILIZERREGULATIONS
MostCOMESAmemberstateshavesomeformoffertiliserregulationsinplaceparticularlythe
twoelements thatpertain to registrationof fertiliseroperationsand inspections.Regulations
usuallycompriseof6distinctareaswhichinclude:
(i) Registrationofbusinessesand/ortheirproducts;
(ii) Inspectionof fertilizer premises, products and recordsby authorized inspectors(taking
samples,notingthelegalityofthelabels,checkingbagweights,inspectingrecords,etc.);
(iii) Analysisofsamplestakenbyinspectors;
(iv) Financing of the regulatory program through registration and inspectionfees;
(v) Administration,enforcement,andassessmentofpenaltiesbyadesignatedauthority;
and,
(vi) Publicationoffindings.
Thechallengeinfertilizerregulation,however, is that therearesomeomissionsofsomeof
theelementswithintheseregulationsrenderingthemincomplete. Themost commonmissing
element is thatofpublicationsof resultsoffertiliseranalysis,findingsofinspectionsandcourt
verdicts.Secondly,therearenointer-countrystandardproceduresorguidelinesforinspecting
premises, sampling, penalization and appointing inspectors. This may compromise
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transparency. As such the theory of incomplete contracts, moral hazards, shirking and
adverseselectionmaycomeintoplayinmostfertilizermarketswithintheregion.Itisforthis
reason that little progress has been made in the coordination and harmonization of these
activitiesattheregionallevel.
2.2 FERTILIZERREGULATORYAUTHORITIES
Institutions vested with the authority to administer the regulations vary from country to
country. Nonetheless the Ministry of Agriculture plays a central role in fertilizer
regulations in COMESA region. Apart from the Ministry of Agriculture (overall regulator),
there are also anumberof institutionswhich canundertake the inspections and/or analysis
which include Bureaux of Standards and international bodies such as SGS etc. There is
therefore,thequestionofwhoseinspectionoranalysiscarriesrecognition–nationalbureaux
or international bodies. Further, the documentation and inspections required of fertilizer
trans-shipments within the region varies from country to country. There are also no clear
policiesorguidelinesthatensurethatrevenueleviedoninspections,registrationandanalysis
is channelled back into enforcing the regulations. In some countries itgoestoTreasuryin
othersitisputinapoolofrevolvingfundswithintheMinistrythatadministerstheregulation.
Itsuseforstrengtheningtheenforcementoftheregulationcannotthereforebeguaranteed.
2.3 FERTILISERREGULATIONSENFORCEMENTCAPACITY
AlthoughalargenumberofCOMESAmemberstateshaveregulationsonfertiliserregistration
and inspection only about 50per cent of these are carrying outinspections.Thisisdueto
inadequatemanpowerandfinancial resourcestoundertakethistask.Forexample,Kenyahas
about70inspectorsagainst6200agro-dealers,importersandwholesalersoffertilisers;Uganda
hasabout50 inspectors againstover1000agro-dealers and importers;Burundi has about4
inspectors; Zimbabwehasabout8and, Egypthas slightlyover60 inspectorsdespite its large
consumption of fertilisers of over 10 million metric tonnes. In addition there is limited
infrastructure to aid the inspectionwork. In particularmost analytical laboratories are in
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adequately equipped to fully facilitate for analytical work. (COMESA/ACTESA Proposal on
fertilizer harmonization, 2014). The following section outlines institutions for fertilizer
regulationsandlegislationinTanzania
SECTION3:TANZANIA’SFERTILIZERINSTITUTIONALFRAMEWORK
UnlikemostoftheCOMESAmemberstates,Tanzaniadoeshaveanationalfertilizerlawwhich
regulatesthefertilizerindustry.TheFertilizerAct(2009)givestheTanzaniaFertilizerRegulatory
Authority (TFRA) the powers to govern the industry.Nonetheless theMinistry of Agriculture
andotherquasi-governmentalorganisationareactiveintheregulationoffertilizer.Anumber
of government Ministries administer different aspects of fertilizer regulations/ legislation.
These include: Ministry of Agriculture which plays the central role of national regulatory
authoritywith responsibility for registration, production, importation, distributionanduseof
fertilizers (including, inspection, testingof imported fertilizerunder thegovernmentsubsidy),
theMinistryofCommerce,Tradeand Industry,whichhas interests inaspectsof importation
anddistribution includingsettingandenforcingstandards, issuanceoftrade licences;andthe
Portauthorities. InadditiontotheMinistryofAgriculture,otherstatutorybodiesalsohandle
different aspects of fertilizer regulation. These quasi-government institutions include; the
TanzaniaBureauofStandards(TBS)andtheAtomicEnergyCommission.
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Figure2: Tanzania’sfertilizerinstitutionalframework
1. Policy statements on fertilizer issues are containedin the National Agricultural Policy produced in 20132. Fertilizer law enacted in 20093. No bio-fertilizers and blends policy
1.Fertilizersubsidies(evouchersystem2. Fertilizer packaging in smallquantities
1.Poor road and rail net works2. Port infrastructure poor3. Poor agro dealer network4. 17 suppliers registered with TFRA, butonly 6 major ones (oligopolisticmarket)
340 000mt marketsize
MinistryofAgriculture
TBS ACT/farmers
PortAuthorities
PresidentialServiceBureau
Chamberofcommerce/&InvestmentCentre
2 1
3
ClearingAgents
C
Outcomes• Average fertilizer use is
9kg/ha; soil nutrientneeds unmet due tolimited range ofregistered fertilizer
- eliminate VAT 18% onfertilizer services;reduce/eliminate portcharges
- Congested ports- Limited soil mapping to
inform blending- Fertilizer
recommendations areoutdated
- TFRA a one stop centre
A B
D
BusinessRegistration
FertilizerRegistration
Importing,ExportingandBlendinglicense
TanzaniaFertilizerSociety
RevenueAuthorities
Fertilizerregulation
TFRA
FertilizerregulationsEnforcement FertilizerUse
MinistryofTradeandIndustry
AtomicEnergyCommission
5
6 7
9 10
8
4
11 12
15
14
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3.1 MINISTRYOFFOODSECURITYANDCOOPERATIVES(MAFC)
TheMinistry of Food Security and Cooperatives still plays a central role in the regulation of
fertilizers in the country. Despite the provision of the 2009 Act which gives powers to the
Tanzania Fertilizer RegulatoryAuthority (TFRA) to register and license fertilizer dealers, issue
import permits, undertake training of inspectors, and collect andmaintain data on fertilizer
imports and use, these functions are still performed byMAFC. Furthermore, the Agriculture
Inputs Section of the Ministry of Food Security and Cooperatives (MAFC) functions as a
regulatorybodyforthefertilizersector.Fertilizerimportersareregisteredandrequireapermit
fromthisUnit.
3.2 TANZANIAFERTILIZERREGULATORYAUTHORITY(TFRA)
UnderthenewacttheTRFAisresponsiblefortheissuanceofbusinesslicences.Foronetobea
fertilizer traderonehas toobtainabusiness license fromTFRAasa fertilizer traderandalso
obtaina trading license from localauthorities forbusinesspremises. Forone to registerasa
fertilizertraderonealsoneedstohavereliablestoragefacilities.Thelicensingprocesswiththe
TFRAandlocalauthoritiestakesamaximumperiodoftwomonths.Theselicensesarevalidfor
ayearandhavetoberenewedannually.OnpapertheTanzaniaFertilizerRegulatoryAuthority
(TFRA) remains the main fertilizer regulatory and enforcement authority in Tanzania. This
agencyisresponsibleforthebulkofregulatoryworkincluding:
• Regulateandcontrolimportation,production,transportation,tradingstorage,disposal
andexportationoffertilizersincludingissuanceofpermits;
• Registrationofnewandapprovedfertilizers;
• Issuepermitsforimportationandexportationoffertilizers;
• Registrationandlicensingofallfertilizerandsupplementtraders;
• Maintainaregisteroffertilizers,supplementsandsterilizingplants(sterilizingplants
applytofertilizerproduction,blending,storageandsalesfacilities);
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• Qualitycontrolenforcementandregulationofallmattersrelatingtoqualityof
fertilizers,fertilizersupplementsandsterilizingplants;
• Publishfertilizerstatisticsandalistofregistereddealers;
• Promotesafeandeffectiveuseoffertilizer(publicandstakeholderawareness).
TFRAenforcestheFertilizerActof2009whichstatesthatnofertilizerorfertilizersupplement
shall be used in Tanzania unless it has been sampled, tested, analysed, evaluated and
recommended for use. All imports have to conform to these standards. In addition TFRA
performssurpriserandomchecks,samplingandothercontrolsperiodicallyalongthefertilizer
supplychannel.TFRAhasthejurisdictionalpowersofrevokinglicencesfornon-conformitywith
theprovisionsoftheAct.For instance,Greenbelt,aZambianblender,wasproducingtailored
blendsinTanzaniabasedonsoiltestingin2012.ItwasshutdownbyTFRAfornotmeetingthe
threeseasonstestingrequirement.
Although equipped with the Fertilizer Act of 2009, TFRA remains under-funded with few
professional staff, and hence poor staff motivation. It depends on 100 “inspectors” in the
districtswhosesalariesarepaidbytheMinistryofLocalGovernmentandwhoreporttolocal
districtgovernments.Theseinspectorsdonotprovidereliableinspection(andtesting)services
to TFRA, as they have multiple responsibilities and lack the resources (transport, testing
equipment)andtechnicalskill(propertakingofsamples)todotheirjobproperly.TFRAhasto
pay supplemental allowances for these inspectors to do site inspections.What should be an
important regulatorybody is, therefore,quiteweakdue toa lackof institutional andhuman
resource capacity. TFRA is alsomandated by the fertilizer law to provide indicative fertilizer
prices.
3.3 TANZANIABUREAUOFSTANDARDS(TBS)
Most fertilizer imports into Tanzania come through the port of Dar es Salaam, where the
TanzaniaBureauofStandards(TBS)ismandatedtoconductsampletestingforqualitycontrol
of fertilizer on arrival. Imported fertilizer has been designated for destination inspection in
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Tanzania(notpre-shipmentinspectionwherebyfertilizersareinspectedatsourceandthenTBS
would just certify that documentation to this effect is authentic). This is because fertilizer is
considered a high risk commodity by TBS. In terms of process, importers should apply for
testingoftheirsampletwoweeksbeforearrivalofthecargo.Onarrivaloftheproductasample
istakentooneofthelaboratories(TBShas9laboratories)andtestedagainstthesetstandard
toascertaincompliance. Itnormallytakes3days fortheresults tobereleased. If thesample
doesnotcomplywiththesetstandardsitisrejectedandtheimportercandecidewhetherthe
productistobedestroyedorsentback.Nore-exportingisallowed.
Themonitoring of fertilizer quality once it leaves the port falls under the jurisdiction of the
TFRA. Incarryingout itsdutiesTFRA isguidedbybaggingand labelling instructions issuedby
TBS. These instructions call for product identification,macro-nutrient percentages, the name
andcontactdetailsoftheproducer/importer,weight,themanufacturer’sexpirationdate,the
batchnumber,andthecountryoforigin.
3.4 MINISTRYOFTRADEANDINDUSTRY
ImportandexportlicencesareissuedbytheMinistryofTradeandIndustry.Agrodealersand
transportersarealsorequiredtoregistertheirbusinesswiththeMinistryofTradeandIndustry.
Therearenolawsandregulationsthat limittheregistrationoffertilizer importbusinesses. In
addition,the import licenseisfreeandit isusually issuedwithinthreedays if fullysupported
foreachconsignmentofregisteredproduct,andisissuedfortwoconsecutiveyears.Thereis
neither limitation on the amount of fertilizer to be imported nor import quotas that apply.
Therearenorestrictionsonforeignexchangeavailabilitytoimportfertilizerandthecurrencyis
stable.
3.5 TANZANIAPORTAUTHORITIES
TanzaniaPortAuthoritiesdealwithall importsandexportstoandfromthecountry.Theport
has limitedfertilizerhandlingterminalsandstorage.This isexacerbatedbypoorroadandrail
infrastructurewhichcausesunnecessarydelays inhauling fertilizers inland.Anumberofport
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chargesareleviedonfertilizerimportswhichincludeamongothers:wharfagechargesat1.6%
ofCostInsuranceFreight(CIF),handlingchargeof$4pertonne,rebaggingchargesat$8-16per
tonne,transporttothewarehouseat$5pertonne,portcorridorleviesat0.3%ofCIFandrail
developmentleviesof1.5%oftheCIF.Thesecostsaddupandincreasethefarmgatepriceof
fertilizer.
3.6 TANZANIAFERTILIZERSOCIETY(TFC)
The Tanzania Fertilizer Association was established in 1996 so it about 10 years old. It was
establishedtorepresenttheneedsandconcernsofimporterstotheGovernmentofTanzania.
ItsmainobjectiveistopresentonevoiceonfertilizerissuestotheGovernment,particularlyvis-
à-vispoliciesandregulationsthatimpacttheindustry.Itiscomprisedoffertilizerimportersand
manufacturers,sodoesnotincludeagrodealers.TFShasagoodrelationshipwiththeMinistry
of Agriculture. It regularly participates in policy and regulatory fora such as workshops and
conferences, andmeetswith theMinistry of Agriculture and the TFRA frequently to provide
theirinputonpolicyandregulations(itcontributedtotheFertilizerAct2009andregulations)
and keep the Government appraised on the status of fertilizer supply (current stocks and
importsinthepipeline),aswellasthekeypolicyissuesaffectingitsoperationswheretheyare
seekingredress.
3.7 ATOMICENERGYCOMMISION(ATC)
Importershavetosubmitsamplesofeachconsignment to theAtomicEnergyCommissionso
they can be tested for radioactivematerial, and to theWeight andMeasures Agencywhich
makessurethatfertilizerpackagingmeetsthesetstandards.
3.8 TANZANIAREVENUEAUTHORITIES
TheTanzaniaRevenueAuthority(TRA)isasemi-autonomousgovernmentalbodythatoperates
inconjunctionwiththeMinistryofFinanceandEconomicAffairs.TheTRAisresponsibleforthe
impartialadministrationofalltaxesimposedbythecentralGovernmentandthemanagement,
assessmentandcollectionoftherevenuegenerated.
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Fertilizer imports are exempt from VAT (18%) but taxes are imposed on services related to
fertilizer importation and distribution such as transport and port services such as storage.
Moreover,asisthecaseforanycompanythatoperatesasanimporter,fertilizerimportersincur
30%corporatetaxonprofitsregardlessofthesizeofthecompany.ThereisalsoVATleviedon
the rawmaterials imported tomanufacture fertilizer and fertilizer supplements.Nonetheless,
fertilizerexportsarezero-rated.Thereforeinthecaseoffertilizerthathasbeenimportedbutis
nowbeingre-exportedtheportionof fertilizer that isbeingre-exported iszero-ratedandthe
exporterwillbeentitledtoaVATrefundonvalueadditionservicesrenderedtothatportionof
fertilizer.
3.9 PRESIDENTIALSERVICEDELIVERYBUREAU
This is a quasi-governmental institution tasked to accelerate agricultural productivity in the
country by the Presidency Ministry of Tanzania through developing and implementing key
priorityfocusareasofnationaldevelopment.Todateithasbeenintheforefrontofdeveloping
a number of agricultural productivity frameworks which includes among others; the legal
framework of irrigation, fertilizer regulations amendment, the legal framework for contract
farming,thelegalframeworkoflandmanagement,legalaidclinicsandthecooperativesact.In
additionitalsoplaysacrucialroleinthedevelopmentofthesoilmapforTanzania(TANSIS).
3.10 AGRICULTURALCOUNCILOFTANZANIA
This isafarmerorganisationinstitutionlinkedtotheMinistryofAgriculturewhichlobbiesfor
profarmerpolicies.Forinstance,ithasbeenlobbyingforinvestmentinportfacilitieswhichwill
result in the reduction of port charges andhence a lower price for fertilizer. In addition the
organisationisworkingtodevelopaportaltradeplatformwherebothinputsandoutputcanbe
traded reducing transaction cost for both parties (sellers and buyers). The organisation also
plays the advisory role to the Tanzanian government on inputs subsidies. It is currently
implementingapilotstudyone-vouchersincollaborationwithNORAD.
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3.11 CHAMBEROFCOMMERCE&INVESTMENTCENTRE
These are the two private sector driven national institutions which are instrumental in
attracting investments into the country. Nonetheless they are crippled by outdated policies,
lawsandregulations.Forinstance,theNationalInvestmentPromotionPolicywaslastreviewed
in1996anditdoesnotsuitthecurrentinvestmentenvironment.
SECTION4:FACTORSAFFECTINGFERTILIZERLEGISLATIONINTANZANIA
4.1 PROLIFERATIONOFNATIONALINSTITUTIONSREGULATINGFERTILIZER
Although the 2009 Act gives powers to TFRA to register and license fertilizer dealers, issue
import permits, undertake training of inspectors, and collect andmaintain data on fertilizer
imports and use, these functions are still performed by the Ministry of Food Security and
CooperativesandtheAgricultureInputsSectionoftheMAFCfunctionsasaregulatorybodyfor
thefertilizersector.
Thereisalsoamultiplicityofinstitutionsinvolvedduringtheclearingoffertilizerimports.This
hasimplicationsforfeeschargedandthetimetakentocompletetheclearingprocess.During
clearingprocess, importersarerequiredtogothroughthefollowingregulatory institutions: i)
Tanzania fertilizer regulatory authority (TFRA), ii) Tanzania Bureau of Standard (TBS), iii)
RadiationCommission,iv)Chiefchemists,v)Weight&MeasureAgencyandvi)SUMATRA.Once
the importer clears the product with the above institutions, the importer can lodge with
TanzaniaRevenueAuthorityandthePortAuthority.
4.2 LIMITEDCAPACITYTOENFORCEREGULATIONS
TodateTFRAhasjustabout100inspectorswhoareillequippedandilltrained.Moreover,the
enforcement authority lacks capital and is understaffed with only three staff, the director,
assistantandoneofficer.Thisconstrainedorganizationalstructureclearlyimpactsitsabilityto
performatrequiredlevelsandkeeppacewithtothenumerousapprovalstheauthorityhasto
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dealwith. Capacity for enforcement should be strengthened,with a focus on regular quality
inspectionsattheretaillevel.
4.3 INADEQUATEFACILITIESFORTESTINGANDANALYSISOFFERTILIZERS
TheTFRAdoesnothavelaboratoryfacilitiesofitsownandreliesonfacilitiesattheTBSandthe
National Soil Testing laboratory which is about 450 km away. There are 4 (four) testing
laboratories inthecountrywhichare ingoodworkingconditionandtheseareattheSokoine
UniversityofAgriculture(SUA)atMorogoro,theTanzaniaBureauofStandards, theMlingano
Agricultural Research Institute at Mlingano in Muheza, Tanga Region and the Government
ChemistinDaresSalaam.Whiletheseunitsaresaidtobedoingagoodjoboftestingfertilizer,
theyarefirstandforemostsoilandnotfertilizerlaboratories.Secondlytheyaredistancesapart
andindifferentpartsofthecountryhenceiftheyallhadtobeinvolvedintestingaparticular
item theexercise couldeasily takea long time. Third, these laboratories are severelyunder-
fundedandasaresulttheirtestresultsvaryfromeachotherandareinaccurate(MIRA2014).
SECTION5:CONCLUSIONSANDRECOMMENDATIONS
AnassessmentofthenationalfertilizerregulatoryauthoritiesinTanzaniarevealsthatfertilizer
production/importation, distribution, marketing and trade is regulated and controlled by
multiple institutions. These institutions are established under different Acts of the Laws of
Tanzania. Incarryingouttheirmandates,theseinstitutionsalsodrawfromtheirspecificActs,
policiesandregulations.Thisoftenleadstoconflictsand/oroverlapsandreplicationmakingit
difficult to reach consensus on certain issues. Further, there is no national fertilizer-specific
coordinatinginstitutionthatguidesandcoordinateseffortsofthevariousinstitutionstoavoid
overlaps and/or replication of efforts. The weak regulatory legal instruments and
harmonization standards undermine comprehensive and effective coordination in fertilizer
production,markinganddistribution.
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In order to address these challenges, improve agricultural production and food security and
establishameansthroughwhichgovernmentandtheprivatesectoroverseethefunctioningof
thefertilizersector,thisreportmakesthefollowingrecommendations:
f) Strengthening the TFRA: In order to effectively coordinate the efforts of the various
institutionsthatareinvolvedinfertilizerregulationthereisneedforimprovedfunding
andtrainingofTFRAofficials. InadditiontoavoidunnecessaryredtapeTFRAcanalso
adopttheonestopshopmodel.
g) Training and gazetting of fertilizer analysts and inspectors: Like other COMESA
member states, Tanzania does not have an adequate pool of qualified and gazetted
fertilizeranalystsandinspectors.Toeffectivelyenforcefertilizerrulesandregulations,
thereisneedfortrainedandgazettedfertilizeranalystsandinspectorswithknowledge
andunderstandingofregulatory
h) GazettetrainedMinistryofAgricultureFertilizerAnalysts:Togivethemthepowerto
take to court all those who do not comply with laid down rules and procedures for
fertilizertesting–litigationpowers.
i) Refurbishing and equipping testing laboratories: TFRA still needs support for
constructingitsownlaboratories.TodatetheagencyisdependingonTBSlaboratory.In
constructingtheselabscognisanceshouldbealsoplacedonmicrobiologicallaboratories
fortestingbio-fertilizerproductsintheTanzanianmarket
j) Creating awareness and linkages with national and regional fertilizer regulatory
authorities:ThereisneedforthegovernmentofTFRAtoconductcampaignstocreate
awareness and educate agrodealers, farmers and the general public on different
fertilizersinthemarket,benefitsandsafeuseoffertilizers,etc.Priorityshouldalsobe
giventoworkingwithotherprivatesectorstakeholdersinthefertilizersector,building
the capacity of fertilizer regulators and creating linkages with national and regional
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fertilizer associations. An annual meeting of national fertilizer regulators to share
experiencesandemerging issuesandworkingwith regional fertilizerassociations,and
private sector forums such as the East and Southern Africa Fertilizer Trade Platform
(ESAF), is also recommended. In addition theon-goingprojecton installationof ane-
portaltoimproveICTinfrastructureingeneraliscrucial;thiswillhelptooptimizeTFRA’s
efficiency and provide a link to traders and other relevant stakeholders to apply for
variouslicensesandpermitsfromasingleplatform.Computerswillbeneededtoenable
networkingwithinspectorsinthedistricts.
k) Capacity building of fertilizer inspectors and law enforcers at district and national
levels; To enable effective enforcement, regular training of inspectors and other law
enforcersincludinglegalofficersinthedistrictsshouldbeintroduced.
6 REFERENCES
1. Camara, O.M., and Edeme, J., 2013, Making Regional Fertilizer Markets Work for
SmallholderFarmersinAfrica
2. Wanzala,M.andGroot,R.,2013,FertilizerMarketDevelopmentinSub-SaharanAfrica.
PaperpresentedtotheInternationalFertiliserSocietyataConferenceinWindsor,UK,
on24thMay2013
3. Kirsten, J.F., Dorward, A.R., Poulton, C., and Vink, N., 2009, Institutional Economics
Perspectives on African Agricultural Development, International Food Policy Research
Institute
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7 ANNEXURES
7.1 ANNEXURE1:LISTOFINTERVIEWEDKEYINFORMANTS
Table2: Listofinterviewedkeyinformants
Name Institution DateMrLazaroWKitandu TanzaniaFertilizerRegulatoryAuthority 18-07-2016MrsBeatusNchota,MrAbdulBZuberi
TanzaniaRevenueAuthority 18-07-2016
MrsLatiffaAKigoda TanzaniaInvestmentCentre 18-07-2016MrSalumKMkumba FertilizerSocietyofTanzania/TFC 18-07-2016MrShenalSNyoni,MrsNkuvililwaJSimkanga
MinistryofAgriculture,LivestockandFisheries 19-07-2016
MinistryofIndustriesandTrade 19-07-2016MrsMaureeKwilasa OneAcreFund 19-07-2016 JointmeetingbetweenFertilizerSocietyof
Tanzania/TFCandMinistryofAgricultureforpresentation
20-07-2016
DrElizabethMaeda USAID 20-07-2016MrGeoffreyKirenga&MrEmmanuelyDLyimo
SAGCOT 20-07-2016
MrTesfayeLegesseObole PresidentialDeliveryBureau 20-07-2016MrLazaroHenryMsalaga TanzaniaBureauofStandards 20-07-2016MrMarkKMagila&MrsJanetFBitegeko
AgriculturalCouncilofTanzania 21-07-2016
MrsMagdaleneMkocha TanzaniaChamberofCommerce,IndustriesandAgriculture
21-07-2016