Contribution to the CAADP Process Regional Seed Policy and Famer Access to Quality Seeds in West Africa 15 th March, 2014 1
Table of Contents ACRONYMS... 3 1. Background... 4 1.1. Evolution of the Seed System in Africa... 4 1.2. History of Seed Policy Reforms in West Africa... 4 2. Implementation of the ECOWAS Seed Regulation... 5 4. Organization of the Seed System in West Africa... 8 5. Private Sector Development... 10 6. Seed Use over the Past Ten Years... 11 7. Opportunities in the Seed System... 14 8. Conclusions... 14 9. References... 15 2
ACRONYMS AGRA AFSTA AfricaRice ASIWA AVRDC CAADP CILSS CORAF/WECARD CORAF ECOWAS ECOWAP FARA FAO ICRISAT IITA INSAH ISU NARIs NARS NASC NGOs NSC NSS NSTAs ROPPA UEMOA USAID WECARD WA WAAPP WASA WASP Alliance for Green Revolution in Africa African Seed Trade Association Africa Rice Centre Alliance for Seed Industry in West Africa World Vegetable Center Comprehensive African Agricultural Development Program Comité permanent Inter-Etats de Lutte contre la Sécheresse West and Central Africa Council for Agricultural Research and Development Conseil Ouest et Centre Africain pour la Recherche et le Développement Agricoles Economic Community of West African States ECOWAS Agricultural Policy Forum for Agricultural Research in Africa Food and Agricultural Organization International Crops Research Institute for the Semi-Arid Tropics International Institute of Tropical Agriculture Institut du Sahel Iowa State University National Agricultural Research Institutes National agricultural research systems National Agricultural Seeds Council, Nigeria Non-Governmental Organizations National Seed Committees National Seed Service National Seed Trade Associations Réseau des Organisations Paysannes et de Producteurs de l Afrique de l Ouest Union Économique et MonétaireOuestAfricaine United States Agency for International Development West and Central Africa Council for Agricultural Research and Development West Africa West Africa Agricultural Productivity Program West Africa Seed Alliance West Africa Seed Program 3
1. Background 1.1. Evolution of the Seed System in Africa The evolution of the seed industry in Africa was stimulated by changes in research and development approaches. Three major phases of this evolution could be noted: (i) Pre-independence to 1980s, when the provision of seeds was state-managed and crop varieties mainly came from the national research institutions and the CGIAR centres (ii) 1980 to 1990s, when the seed sector was liberalized and privatized; (ii) 1990 to present, with increased role of the private sector in both the formal and informal seed sector, including the involvement of multi-national companies, farmer groups and cooperatives. Support to seed industry development in terms of high level capacity development and infrastructure was donor supported, particularly from the governments of USA, Germany, Netherlands, Belgium, France, etc. (Beye and Worpereis, 2014). After institutionalization of the structural adjustment program in the late 1980s, the public sector role in the seed sector diminished gradually as the private sector role including small and medium enterprises, progressively grew in the production and marketing of certified seeds. Plant breeding to develop and release new crop varieties was and is still dominated by public research institutions. Government facilities (for conditioning, drying and storage, inherited before the structural adjustment program, were offered for services to the private sector. In the course of time, the multi-national companies, including Pioneer Hi-Bred and Monsanto, companies in South Africa, etc, increasingly showed interest, which has resulted in the establishment of their bases in countries such as Cote d Ivoire, Senegal, Ghana and Nigeria, while the local companies and enterprises continue to experience significant growth. 1.2. History of Seed Policy Reforms in West Africa The processes of developing a harmonized regional seed policy in the Sub-Saharan Africa started in 1998 at Abidjan, Cote d Ivoire, and resulted in the establishment of the African Seed Network. This was followed by a consultative process held in Dakar and Lome, in 2004, which facilitated the development of the regional seed policy and regulation by stakeholders. A stakeholder meeting held in November, 2005, in Accra, Ghana, helped extend the processes of harmonized seed policy development to cover the ECOWAS-UEMOA countries. The final meeting in Lomé, in the same year, led to the validation of the harmonized seed policy and regulation. In June 2006, ECOWAS, UEMOA and CILSS adopted a road map to work on the preparation of a common seed regulation. This work was concluded in May 2008 by the Council of Ministers by the adoption of the ECOWAS Seed Regulation C/REG.4/05/2008, geared towards facilitating production, quality control, certification and marketing of plant seeds and plant seedlings in the ECOWAS region. The harmonized regulations focus on three thrusts: Release and registration of crop varieties, including inscription in the national and regional catalogues; Seed quality control and certification, including accreditation; Seed import/export, including quarantine Outputs delivered through these processes include (i) production of quality seeds facilitated, (ii) seed marketing within the sub-region facilitated, (iii) farmer access to quality seeds facilitated, (iv) favorable policy environment for the emergence of the private sector developed and (v) public-private partnership in the delivery of quality seeds strengthened. 4
2. Implementation of the ECOWAS Seed Regulation The ECOWAS Commission found it necessary to put in place systems to support the implementation of the seed policy by member states, through regional programs and projects. The reform was characterized by the following features, Clear definition of the roles of stakeholders including research, private seed enterprises and national technical services, Partnerships to support regional and national seed programs/projects, forged with development partners, including USAID, FAO, EU, JICA, AGRA, Syngenta Foundation, etc, Priority commodities and interventions to accelerate socio-economic growth and impact on food security and poverty reduction, provided through evidence-based options and data, Organization of the improved seed system in responding to the growing needs for quality seeds maintained through projects and programs implemented at the regional and national levels, Stakeholders in the seed sector are getting sensitized and appreciating the importance of quality seed in improving agricultural productivity. The understanding of this is stimulating governments and enterprises to adopt the harmonized seed policy, These reforms have created favorable conditions necessary to ensure the regular supply of certified seeds in quantity and in quality to farmers who constitute 60-70% of the population in the ECOWAS-WAEMU-CILSS region. Table 1: Measures Taken by Member States in Implementing the Seed Policy Measures being taken by the ECOWAS-UEMOA-CILSS member states for the implementation of the harmonized regulation Four key measures taken by the 17 ECOWAS-UEMOA- CILSS countries in the implementation of the harmonized seed regulations C/REG.4/05/2008 are: (i) Publication in official journal, (ii) Review of seed regulatory framework, (iii) Adaptation of procedure manuals and (iv) Capacity strengthening (ECOWAS, 2008). Elements within these measures are presented in Table 2 and the level of implementation of the regulation presented in Table 3. Countries that have made significant advances in the implementation of the regulation are Benin, Nigeria and Togo who addressed or are addressing 12 out of the 13 elements in the measures. These are followed by Burkina Faso, Ghana, Mali and Senegal with 10 elements being addressed and Cote d Ivoire and Guinea with 8. Countries with low level of performance, having 5 to 1 elements are the Gambia, Mauritania, Niger and Sierra Leone. The level of implementation by Cape Verde, Guinea Bissau, Liberia and Chad are classified as poor. Summary of the Level of Implementation of the 13 elements in the harmonized Regional Seed Regulation (Table 2) Excellent level of implementation 12/13 Benin, Nigeria Togo Low level of implementation 1-5/13 Gambia, Mauritania Niger Sierra Leone Good level of implementation 8-10/13 Burkina Faso, Cote d Ivoire, Ghana Guinea Mali Senegal Poor level of implementation 0/13 Cape Verde Guinea Bissau, Liberia and Chad 5
Table 2: Elements in the Seed Regulation 1. Publication in official Journal 2. Review of seed regulatory framework 1.1. Publication in official Gazette 2.1. National seed law 2.2. Decree instituting national catalogue of species and plant varieties 2.3. Decree creating the National Seed Committee 2.4. Decree on seed technical regulation relating to production, quality control and certification 2.5. Decree creating support funds for the seed sector 3. Adaptation of Procedure Manuals 4. Capacity Strengthening 3.1. Variety release and registration 3.2. Quality control and certification 3.3. Phyto-sanitary certification 4.1. Human resources 4.2. Material resources 4.3. Financial resources 6
Table 3: Synoptic table for the Implementation of the Harmonized Regional Seed Regulation, 28th February, 2014 Measures to take by the ECOWAS-WAEMU-CILSS member states for the implementation of the regulation C/REG.4/05/2008 Target Countries Benin Burkina- Faso Ghana Mali Niger Nigeria Publication in official Journal (2.1) Y Y N N Y Y N Y N N Y N N N N N Y 41 Review of seed regulatory framework (2.2) : Y Y Y Y N Y Y N N N Y N N N N N Y 47 National seedlaw Y Y Y Y Y Y Y Y N N Y N N N N N Y 59 Decree instituting national catalogue of species and plant varieties Y Y Y Y Y Y Y Y N N Y N N N N N Y 59 Decree creating the National Seed Committee Y Y Y Y N Y Y Y N Y Y N N Y N N Y 65 Decree on seed technical regulation relating to production, quality control and certification Y Y Y Y Y Y Y Y N Y Y N N N N N Y 65 Decree creating support funds for the seed sector Y Y N N N Y Y N N N Y N N N N N Y 35 Adaptation of Procedure Manuals(2.3) : Variety release and registration Y N Y Y N Y N N N Y N N N N N N Y 35 Quality control and certification Y N Y Y N Y N N N Y N N N N N N Y 35 Phyto-sanitary certification Y N N Y N N Y Y N N N N N N N N Y 29 CapacityStrengthening(2.4) : Humanresources Y Y Y Y Y Y Y Y N N Y N Y N N N Y 65 Materialresources 1 Y Y Y Y Y Y Y Y N Y N N N Y Y N Y 72 Financial resources N Y Y N N Y Y N N N N N N N N N N 24 nnnumber of Yes (Y) out of 13 12 10 10 10 5 12 10 8 0 5 8 0 0 2 1 0 12 Sénegal Côte d Ivoire Cape-Verd Gambia Guinée Guinée Bissau Liberia Mauritania Sierra Leone Tchad Togo % 1 Infrastructure and equipment investments 7
3. Major Regional Seed System Interventions The USAID has been instrumental in funding support for the development of the Seed sector in the sub region. Between 2008 and 2011, the Agency funded a seed alliance program the West Africa Seed Alliance (WASA) purported to ensure that farmers have affordable, timely and reliable access to seed and other planting material of improved, adapted crop varieties. This intervention traversed a cross-section of the sub region and made modest achievements in strengthening the seed systems in the sub region. A follow-on seed program is the West Africa Seed Program (WASP) being coordinated by CORAF/WECARD to support actions for sustainable production and use of quality seeds of major staple crops, particularly cereals in West Africa. The WASP is also coordinating the establishment of the Alliance for Seed Industry in West Africa (ASIWA) and the West Africa Seed Committee (WASC/COASem). The Alliance for Green Revolution in Africa (AGRA) has funded an array of activities in the seed sector, ranging from plant breeding programs to establishing an investment fund to support start-up seed companies and dealers. AGRA takes a bottom up approach to private sector seed development focusing on building the capacity of local entrepreneurs and seed companies. AGRA s investments in the seed sector are notably impressive and it has recently received additional support from the USAID to implement a project, Scaling up Seed and other Technology. The Africa Seed Trade association (AFSTA) is currently providing backstopping in strengthening the capacities of the AFSTA - West Africa Regional Office (AFSTA-WARO) and the National Seed Trade Associations. 4. Organization of the Seed System in West Africa The seed system is structured to respond to the ECOWAS Agricultural Policy, ECOWAP and in this regard the CAADP, in improving agricultural productivity with a specific objective as availability and use of quality seeds improved. To achieve its objective, four thrusts were identified as follows: (i) Alliance for Seed Industry for WA effectively coordinated and sustained, (ii) ECOWAS Seed Regulations implemented, (iii) New genetic materials and supply of breeder seeds increased, and (vi) Supply of foundation/certified seeds by the private sector increased (Figure 1). The coordination of the seed system was confided to CORAF/WECARD, a Sub-Regional Organization coordinating agricultural research and development interventions in West and Central Africa. These axes are mutually aligned and are reinforcing to ensure that global partnership (Table 4) for interventions is developed with a common aim to (i) establish a coordinated regional alliance for complementarities, synergies and optimization of resources; (ii) an effectively implement the harmonized seed regulations to expand the regional seed market; (iii) make available new genetic materials which are resilient and adapted to climate change, through variety development and supply of breeder seeds and (iv) strengthen the private sector capacity and facilitate their access to finance, market information and infrastructure, to ensure increased delivery of foundation and certified seeds. 8
Figure 1: Simplified Result Framework Organizing the Seed System in West Africa Goal Improved Sustainable Agricultural Productivity Objective Availability and Use of Quality Seeds Improved Axe 1 Axe 2 Axe 3 Axe 4 Alliance for Seed Industry for WA effectively coordinated and sustained ECOWAS Seed Regulations Implemented New Genetic Materials and Supply of breeder seeds increased Supply of Foundation /Certified seeds by the Private sector increased Led by HUB RURAL Led by CILSS Led by CGIAR/NARIS Led by AFSTA Capacity of Seed System in West Africa Strengthened and Coordinated 9
Table 4: Mobilization of Global Partnership for Seed Industry Development 1. Alliance for seed Industry in West Africa(ASIWA) Regional Partners National Partners International Partners ECOWAS, UEMOA, CORAF/WECARD CILSS, Hub Rural, FARA AGRA Universities Private Sector, Farmer Organizations, Seed Trade Associations (AFSTA, ROPPA, RECAO, Syngenta. Foundation, etc.) National Seed Systems:- (NARS, Ministry of Agriculture, Universities) Private Sector, Farmer Organizations, National Seed Trade Associations (AFSTA, ROPPA, RECAO) Private Sector, Seed Financial Partners (including USAID, DFAT, DFID, World Bank, Syngenta. Foundation, etc.) CGIAR (ICRISAT, IITA, AfricaRice, World Vegetable) Other International organization and Universities (FAO, ISTA, Universities) 2. Policy & RegulationRegional Seed Regulation C/REG.4/05/2008 ECOWAS, UEMOA, CILSS, NARS, NSTAs/AFSTA, FAO, SMEs & ROPPA, ISU, Quality Control & Certification Agencies, ISTA, Syngenta Foundation 3. Plant Breeding Breeder Seed Supply CGIAR (IITA, AfricaRice, ICRISAT) NARIs, Companies & Initiatives, 5. Private Sector and Agri-business Development NSTAs/AFSTA, Private Sector, NSS, Quality Control and Certification, Laboratories, ROPPA, RECAO, AGRA 5. Private Sector Development After the structural adjustment program was instituted in 1989/90, the private sector started taking off progressively in the area of certified seed production and marketing. The growth of the private sector was enhanced by the adoption of the ECOWAS seed regulation in 2008. This has supported the emergence of several enterprises in the seed sector. For example in Benin, Burkina Faso, Ghana, Mali, Niger, Nigeria and Senegal the total number of Small and Medium Enterprises (SMEs) reached 11,382 in 2010 and continued to 18,957 in 2013 (Figure 2). Some of these enterprises have been supported by programs such as WASA, AGRA, WASP, USAID Bilateral Programs, Catholic Relief Services, Sasakawa Global 2000 and other donor supported programs and NGOs through capacity strengthening and supply of equipment. In addition to the SMEs, seed companies, including multi-national companies such as Monsanto, Pioneer Hi-Bred and many more have come to invest in West Africa. The prospects for investment continue to grow, signifying increasing farmer access to quality seeds for improved agricultural productivity. 10
Figure 2: The Number of Small and Medium Enterprises in Six West Africa Countries from 2010 to 2013. Nomber 20 000 18 000 16 000 14 000 12 000 10 000 8 000 6 000 4 000 2 000 - Seed private registered SMEs trends in West Africa 11 382 14 950 18 882 18 957 2010 2011 2012 2013 NSTA - Benin 35 100 250 250 NSTA - Burkina Faso 967 1 612 4 007 3 827 NSTA - Ghana 228 300 315 315 NSTA - Mali 70 150 210 240 NSTA - Niger 500 700 800 1 000 NSTA - Nigeria 82 88 100 125 ASPRODEB coop. - Senegal 9 500 12 000 13 200 13 200 Total 11 382 14 950 18 882 18 957 6. Seed Use over the Past Ten Years Between 2009 and 2013, potential demand for seed in seven countries (Ghana, Nigeria, Burkina Faso, Senegal, Niger, Mali and Gambia) for six crops (maize, rice, sorghum, cowpea, soybean and groundnut) increased from 565,000 to 762,676 tons (35%), whilst actual seed supply during the period increased from 35,000 to 99,452 tons (184%; Figure 3; WASA, 2010 and CORAF/WECARD, 2013). Thus the rate of increase in seed supply outstripped the rate of increase in seed demand. This is indeed a positive sign indicating progressive increases in seed supply as the implementation of the seed regulation progresses. It also demonstrates that seed is being used more intensively per hectare compared to its use as a result of expansion of farm lands, a clear indication of improvement in crop productivity. Rice and maize seed supplies showed higher increases from less than 20,000 tons to 100,000 and 50,000 tons respectively within the period, whereas sorghum, millet cowpea and groundnuts remained very low (Figure 4). 11
Figure 3: Increase in potential seed demand and actual seed supply (in tons) between 2009 and 2013 for the major cereal and legumes in seven West African countries. Figure 4: Potential seed demand and actual seed supply between 2009 and 2013 for the major cereal and legumes in seven West African countries. Potential Seed Demand and Actual Supply,2009 Potential Seed Demand and Actual Supply, 2013 Tons 400000 350000 300000 250000 200000 150000 100000 50000 0 Maize Rice Sorghum Millet Cowpea Groundnut Potential Actual Tons 400 000 350 000 300 000 250 000 200 000 150 000 100 000 50 000 - Maize Rice Sorghum Millet Cowpea Groundnut Potential Actual Seed use of the major cereals such as rice, maize and sorghum, and legumes such as cowpea, soybean and groundnuts, in some selected countries (Nigeria, Ghana and Burkina Faso) over the past ten years, showed significant increases (Figures 5, 6 and 7). Much of the increase, however, came from two major cereals, maize and rice, and from soybean in the case of Nigeria and Ghana. With the exception of Burkina Faso, cowpea seed supply has been stagnant over the years. Groundnut seed has also not showed significant increases in the three countries. In Nigeria, the supply of rice and maize seeds increased significantly from less than 10,000 tones to over 60,000 tons between 2009 and 2013 (Figure 5). During the same period, the supply of certified soybean seeds increased from less than 5,000 tons tonnes to over 30,000 tonnes, confirming that farmers are increasingly getting better access to quality seeds. In Ghana, supply of certified maize seed increased from about 1,000 tons to 3,500 tons, with soybeans showing a similar trend (Figure 6). In Burkina Faso, rice, maize and cowpea showed significant increases in the supply of certified seeds whereas groundnut and soybean remained low (Figure 7). 12
Figure 5: Trends in seed use in Nigeria from 2005 to 2013 for the major cereals and legumes Source of data: National Agricultural Research Council, Nigeria. Figure 6: Trends in seed use in Ghana from 2001 to 2013 for the major cereals and legumes Source of data: Ghana Statistical Services Department/Ghana Seed Inspection Division, MOFA Figure 7: Trends in seed use in Burkina Faso from 2001 to 2012 for the major cereals and legumes Source information: Direction de Service Semencier, Burkina Faso. 13
7. Opportunities in the Seed System A Study conducted in 2013 in West Africa on 13 countries (without Cape Verde and Guinea Bissau) showed high market potential for major cereals and legumes such as rice, maize, sorghum, cowpea and groundnut, estimated at 1,335,437 tons compared to the actual supply of 182,035 tons, representing 13.6% of the estimated potential (Table 5). The potential value stands at US$ 1,713,265,358 compared to the current actual value of US$ 214,593,885, representing 12.5% of the potential (CORAF/WECARD, 2013). The number of seed enterprises has been on a rapid increase in the countries which have been actively engaged in the implementation of the harmonized seed regulation. Thus, the gap between the potential and the actual supply and the favorable policy environment, provide a great opportunity for investment in the seed industry by public and the private sector stakeholders and partners. Table 5: Potential and actual quantity of seeds and value of the major cereals and legumes in 13 West African countries, 2013. Seed Needs/ Supply Quantity (tons) Seed Value (US$) Potential Seed Need 1,335,437 1,713,265,538 Actual Seed Supply 182,035 214,593,885 Percentage exploited 13.6 12.5 8. Conclusions The implementation of the ECOWAS harmonized seed regulation has significantly advanced in many countries. To some extent, countries where the regulation has been highly adopted have shown good growth in seed industry development and in the supply and use of certified seeds. Continued improvement in the implementation of the regulation will continue to be a priority of the ECOWAS Commission in attracting the private sector. Countries such as Liberia, Guinea Bissau, Cape Verde, Sierra Leone, Mauritania and Chad with low levels of adoption of the seed regulation will be supported by strengthening their capacities for adoption. Seeds of leguminous crops, which are currently receiving less attention, will be promoted to help increase protein intake in humans and livestock and to improve soil fertility. Addressing challenges and bottlenecks will be paramount in the years ahead to improve institutional arrangements, market development, access to capital, capacity strengthening, infrastructural development, access to new germplasm, etc. This will be supported through the regional and national institutions, governments and partners to improve market expansion and the growth of the private sector. Improvements in agricultural productivity and farmer access to markets will continue to be a paramount on the agenda of the Commission in achieving food security and higher incomes for the citizens. 14
9. References Beye A. M. and Wopereis M. C. S. (2014); Cultivating knowledge on seed system and seed strategies. Net Journal of Agricultural Science, Vol. 2(1), pp 11-29. CORAF/WECARD (2013); West Africa Seed Program (WASP) 2013 Annual Report: Support to the implementation of ECOWAS regulation C/REG.4/05/2008,;Submitted to USAID/WA By CORAF/WECARD, October, 2013 ECOWAS (2008); Regulation C/REG.4/05/2008 on the Harmonization of the Rules Governing Quality Control, Certification and Marketing of Plant Seeds and Seedlings in ECOWAS Region; Sixtieth Ordinary Session of the Council of Minister, April 17-18, 2008, Abuja, Nigeria. WASA (2012); Final Project Report, Seeds Project in support of West Africa Seed Alliance, Final Report, 2008-2012Submitted by ICRISAT to USAID, April, 2012. 15