PRESIDENTIAL INITIATIVES ON CASSAVA IN AFRICA: Case studies of Ghana and Nigeria

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


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

VI

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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

IX PARTNERSHIPS IN SUPPORT OF CAADP UTA

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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NEPAD ._ ... _-

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

XII PARTNERSHIPS IN SUPPORT OF CAADP UTA

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

XIII PARTNERSHIPS IN SUPPORT OF CAADP

NEPA.D ._._--

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.

PARTNERSHIPS IN SUPPORT OF CAADP UTA· XIV

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


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


users in each country. At the regional level, trade and economic cooperation


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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N E P A O ._ .... _-

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

PARTNERSHIPS IN 5UPPORT:,Of CAADP UTA 3

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.


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


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


.... 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


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.


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.


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


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.


~ 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 '


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


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)


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.


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


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.


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


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


, 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.


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


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


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, microprocessing

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.


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


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


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


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


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.


, "-' '

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


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).


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


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.


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


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


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.


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.


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


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)


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


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


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).


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


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,


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.


--

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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


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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

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PRESIDENTIAL INITIATIVES ON CASSAVA IN AFRICA: Case studies of Ghana and Nigeria

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