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    The case of the potatoin Kenya

    A policymakers guide to cropdiversication:

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    A policymakers guide to crop diversication:

    The case of the potato in Kenya

    Food and Agriculture Organization of the United NationsRome, 2013

    Prepared by:

    Wachira Kaguongo, Alice Nyangweso, John Mutunga and John NderituNational Potato Council of Kenya

    Charles Lungaho, Nancy Nganga, David Kipkoech and Jackson KabiraKenya Agricultural Research Institute, Tigoni Research Centre

    Marion Gathumbi, Phylis Njane, Johnson Irungu and Ann OnyangoMinistry of Agriculture, Kenya

    Dinah Borus and Elmar Schulte-GeldermannInternational Potato Centre, sub-Saharan Africa

    Coordinated by:NeBambi LutaladioFAO, Plant Production and Protection Division

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    The designations employed and the presentation of material in thisinformation product do not imply the expression of any opinion whatsoeveron the part of the Food and Agriculture Organization of the United Nations

    (FAO) concerning the legal or development status of any country, territory, cityor area or of its authorities, or concerning the delimitation of its frontiers orboundaries. The mention of specific companies or products of manufacturers,whether or not these have been patented, does not imply that these havebeen endorsed or recommended by FAO in preference to others of a similarnature that are not mentioned.

    The views expressed in this information product are those of the author(s) anddo not necessarily reflect the views or policies of FAO.

    ISBN 978-92-5 -107727-6 (print)E-ISBN 978-92-5-107728-3 (PDF)

    FAO 2013

    FAO encourages the use, reproduction and dissemination of material in thisinformation product. Except where otherwise indicated, material may becopied, downloaded and printed for private study, research and teachingpurposes, or for use in non-commercial products or services, provided thatappropriate acknowledgement of FAO as the source and copyright holder isgiven and that FAOs endorsement of users views, products or services is notimplied in any way.

    All requests for translation and adaptation rights, and for resale and othercommercial use rights should be made via www.fao.org/contact-us/licencerequest

    or addressed to copyright@fao.org.

    FAO information products are available on the FAO website (www.fao.org/ publications) and can be purchased through publications-sales@fao.org.

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    iii

    Table of contents

    Acknowledgements v

    Acronyms and abbreviations vi

    Foreword viii

    Executive summary x

    1. Introduction 1

    1.1 Crop diversification in Kenya 2

    1.2 Importance of the potato 3

    2. The potato subsector 4

    2.1 The potato and Kenyas economy 4

    2.2 Production characteristics 4

    2.3 Breeding and seed systems 7

    2.4 Marketing and trade 10

    2.5 Consumption, utilization and demand 132.6 Research and extension 15

    2.7 Value chains 16

    3. The role of public and private institutions 17

    3.1 Ministry of Agriculture 17

    3.2 Kenya Agricultural Research Institute 18

    3.3 Kenya Plant Health Inspectorate Services 20

    3.4 Agricultural Development Corporation 22

    3.5 Private seed multipliers 24

    3.6 National Potato Council of Kenya 26

    3.7 Kenya National Potato Farmers Association 28

    3.8 Kenya National Federation of Agricultural Producers 29

    3.9 Potato processing companies 30

    4. Subsector interventions: policies, research and development 32

    4.1 Seed multiplication technologies 32

    4.2 Seed storage technology 344.3 Ware potatoes 37

    4.4 Potato products 41

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    iv

    5. Evaluation and impact analysis of potato subsector interventions 42

    5.1 Positive factors 42

    5.2 Constraints 43

    5.3 Challenges and opportunities 44

    5.4 Lessons learned 45

    5.5 Conclusions 47

    5.6 Policy recommendations 48

    Bibliography 55

    List of figures

    1. Potato production and area harvested in Kenya, 2000 2010 6

    2. Average potato yields in Kenya, 20002010 7

    3. Marketing channels for potatoes harvested in Nyandarua County 11

    4. Average monthly retail prices for red- and white-skinned potatoes in Nairobi, 2011 14

    5. Average wholesale prices for potatoes in selected markets in Kenya, 2010 15

    6. Causes of current status and drivers to targeted status of the potato subsector in Kenya 16

    7. Mini-tuber production trends using different multiplication methods in Kenya, 2005 2011 33

    8. Production of certified seed potatoes in Kenya, 20042010 36

    9. Quantities (tonnes) of seed, ware and potato products imported to Kenya, 2006 2011 39

    10. Quantities (tonnes) of seed, ware and potato products exported from Kenya, 20062011 40

    List of tables

    1. Potato production by province compared with other major crops in Kenya, 2009 6

    2. Characteristics of the potato varieties recently released in Kenya, 2006 2010 8

    3. Production of various categories of seed in Kenya, 20002011 10

    4. Tissue culture facilities and their capacity in Kenya 32

    5. The PS modules, their objectives, crop stages and time needed to complete the lessons 38

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    v

    Development of this policy guide began late in 2011 as an activity of FAOs Multidisciplinary Fund Projecton Smallholders (MDF-Smallholders). It was facilitated by FAOs Trade and Markets Division (EST) inpartnership with other FAO divisions including the Plant Production and Protection Division (AGP). The MDF-Smallholders project helped support a campaign aimed at raising awareness of the need for a policymakersguide to crop diversication and support for its development. AGP provided additional resources for theproduction of this publication.

    Appreciation is expressed for the contributions made by a variety of individuals and organizations towardsthe completion of this study. Dr NeBambi Lutaladio of AGP initiated and coordinated the work reportedherein. Special thanks go to Dr Wilson Songa, Agriculture Secretary, Ministry of Agriculture (MoA), Kenya,for his unwavering support of the potato subsector and the preparation of this policy document, and tothe study advisory team: Prof. John Nderitu, National Potato Council of Kenya (NPCK), Dr John Mutunga,Kenya National Federation of Agricultural Producers (KENFAP), Dr Elmar Schulte-Geldermann, InternationalPotato Center, sub-Saharan Africa (CIP-SSA), Dr Jackson Kabira, Kenya Agricultural Research Institute,Tigoni Research Centre (KARI-Tigoni), Dr Johnson Irungu (MoA) and Ms Ann Onyango (MoA). Gratitudeis due to the numerous potato subsector actors and stakeholders who enthusiastically participated in theinitial brainstorming sessions, to subsequent reviews and to Potato Round Table meetings that were held inconjunction with the preparation of this document.

    The study team included Wachira Kaguongo (NPCK, Coordinator), Dr Charles Lungaho (KARI-Tigoni),Nancy Nganga (KARI-Tigoni), David Kipkoech (KARI-Tigoni), Dinah Borus (CIP-SSA), Marion Gathumbi(MoA), Phylis Njane (MoA) and Alice Nyangweso (NPCK). Their efforts were complemented by those of theinternal reviewers: Prof. John Nderitu (NPCK), Dr John Mutunga (KENFAP), Dr Elmar Schulte-Geldermann(CIP-SSA), Dr Jackson Kabira (KARI-Tigoni), Dr Johnson Irungu (MoA) and Ms Ann Onyango (MoA). Inputsfrom Prof. Greg Scott of the Pontical Catholic University of Peru and a former CIP scientist, Jean PierreAnota, FAO Consultant (AGP), and Dr Adam Prakash of FAOs Statistics Division (ESS), and the contributionof participating experts and interested individuals in reviewing and providing constructive suggestions aregratefully acknowledged. Thanks are also due to Graeme Thomas for the technical editing of this guide andthe coordination of its production and to Ruth Duffy for the nal editing and layout.

    Acknowledgements

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    vi

    ADC Agricultural Development Corporation (Kenya)

    AFSTA African Seed Trade Association

    AGM Annual general meeting

    AGP Plant Production and Protection Division (FAO)

    AGRA Alliance for a Green Revolution in Africa

    APVC Agricultural Product Value Chain

    ASAL Arid and semi-arid land

    ASARECA Association for Strengthening Agricultural Research in Eastern and Central Africa

    ASDS Agricultural Sector Development Strategy (Kenya)

    ATC Agricultural Training Centre

    BAF Business Advocacy Fund

    BMZ Federal Ministry for Economic Cooperation and Development (Germany)

    BW Bacterial wilt

    CAADP Comprehensive Africa Agriculture Development Programme

    CFC Common Fund for Commodities

    CIP International Potato Center

    DAO District Agricultural Office

    DLS Diffused Light Storage

    DNA Designated national authority

    DUS test Distinctness, Uniformity and Stability test

    EAAPP Eastern Africa Agricultural Productivity Project

    EAC East African Community

    EAS East African Community Standard

    ESS Statistics Division (FAO)

    EST Trade and Markets Division (FAO)FG Farmer group

    FIPS Farm Input Promotions

    FPEAK Fresh Produce Exporters Association of Kenya

    GAP Good agricultural practices

    GDP Gross domestic product

    GIZ German Agency for International Cooperation

    GMP Good manufacturing practices

    GTIL Genetic Technologies International Limited

    GTZ German Agency for Technical Cooperation

    Acronyms and abbreviations

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    vii

    ICT Information and communications technology

    ID/OS Institutional development and organizational strengthening

    ILO International Labour Organization

    ISTA International Seed Testing Association

    KAPAP Kenya Agricultural Productivity and Agribusiness Project

    KAPP Kenya Agricultural Productivity Project

    KARI Kenya Agricultural Research Institute

    KCB Kenya Commercial Bank

    KEBS Kenya Bureau of Standards

    KENAPOFA Kenya National Potato Farmers Association

    KENFAP Kenya National Federation of Agricultural Producers

    KEPHIS Kenya Plant Health Inspectorate Services

    MDF Multidisciplinary Fund (FAO)

    MDG Millennium Development Goals

    MoA Ministry of Agriculture (Kenya)

    NAAIAP National Accelerated Agricultural Inputs Access Programme

    NARL National Agricultural Research Laboratories (Kenya)

    NCST National Council for Science and Technology

    NMK Njaa Marufuku Kenya

    NPCK National Potato Council of Kenya

    OECD Organisation for Economic Co-operation and Development

    PLRV Potato leaf roll virus

    PPP Public-private partnership

    PS Positive selection

    PSDA Promotion of Private Sector Development in Agriculture

    PSS Positively selected seed

    PVY Potato virus Y

    QDS Quality declared seed

    RTA Round Table Africa

    SANAS South African National Accreditation System

    SHOMaP Smallholder Horticulture Marketing Programme

    SSA Sub-Saharan Africa

    SWOT Strengths, weaknesses, opportunities and threats

    TC Tissue culture

    TOT Training of Trainers

    UPOV International Union for the Protection of New Varieties of Plants

    USAID United States Agency for International Development

    WB World Bank

    WTO World Trade Organization

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    viii

    The potato is an important crop in Kenya, with a production in 2010 of around 1 million tonnes. The tuber isattracting great interest as one possible answer to the multiple challenges the country faces, including hunger,poverty and climate change. With some 800 000 potato growers, millions of rural and urban consumers andan estimated production value (at farmgate prices) of KES 13 billion (USD 150 million) a year, the potatohas become one of Kenyas strategic food commodities. A growing consensus in Kenya considers that byboosting food security, raising incomes, generating employment and improving nutrition, potato productioncould make an even greater contribution to achieving the objectives of Vision 2030, the national long-term

    development blueprint that aims at transforming Kenya into an industrializing, middle-income country.

    The potato is an ideal candidate for crop diversication programmes in Kenya. Many rural householdsalready depend on the tuber as a primary or secondary source of food. Potatoes are rich in protein, calcium,potassium and vitamin C and have a good amino acid balance. Moreover, the potato is a highly productivecrop. Compared with wheat, rice and maize, it produces more food per unit of area and time. It has a shortand highly exible vegetative cycle and can be harvested within 100 days of planting. Another of the cropsattributes is its great adaptability to almost any altitude and to a wide variety of climates, including arid andsemi-arid lands. It is already cultivated as both a primary and off-season crop in different parts of Kenya.

    The potato can be intercropped with many cash and food crops, and rotated with crops such as barley,maize and wheat. The tubers low fuel requirements and short cooking time, and its potential for value addition

    e.g. chips and crisps make the potato popular with both rural and urban consumers. Furthermore, thecrop generates considerable employment in production, marketing and processing.

    The potato is also insulated from international price shocks as, unlike major cereal commodities, it istraded sparingly in global markets. Only a fraction of its total production enters foreign trade and thenmainly as processed products. Thus, potato prices in Kenya are determined by local demand and supplyconditions, not by the vagaries of international market speculation. In addition, since potatoes are notmassively traded in major international commodity exchanges, the crop is not at risk from the ill-effects ofspeculative activity. The potato is a highly dependable food security crop and can help reduce imbalancesin Kenyas food supply and demand.

    Despite its excellent potential for contributing to the growth of Kenyas economy and improving the welfare

    of poor households, the potato subsector has been hampered by many complex constraints. They include:

    Foreword

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    ix

    low yields; high disease incidence; shortage of suitable varieties; limited production, distribution and use ofquality planting material; fragmentation of actors in the value chain linking producers and consumers; andthe lack of value-added and new product development.

    A concerted effort is needed to fully realize the potatos potential to help improve livelihoods, reducepoverty and enhance food security in Kenya. Full implementation of the policy guidelines presented inthis document can stimulate accelerated growth in potato production and use, and make an importantcontribution to helping producers and consumers reap the benets of doing so.

    While aimed primarily at policymakers in Kenya, the guide is also of use to decision-makers at institutionaland policy levels in other countries of Eastern and Central Africa. It will help further the realization of thepotatos full potential as a high-value crop in response to emerging opportunities, such as changes inconsumption pattern and the resulting need for value addition due to rapid urbanization, and to potentialthreats, including climate change and food price surges causing upheaval in international food markets.

    Dr Wilson Sonja, MBS Mr Dan Rugabira

    Agriculture Secretary FAO Representative in Kenya

    Ministry of Agriculture, Kenya United Nations Ofce in Nairobi

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    x

    A key challenge facing Kenya is to ensure the food andnutrition security of present and future generationswhile protecting the countrys natural resourcebase. Kenyas population currently stands at about40 million and is projected to reach 60 million bythe year 2030. Kenya remains a food-decit countryeven in bumper harvest years. Discussions of food

    security in Kenya usually revolve around maize,since the countrys food security is overwhelminglydependent on it, despite a continued structuraldecit in maize production. Overall, vulnerabilityto food insecurity in the country is exacerbated bythe absence of substantive diversication in foodproduction and consumption.

    Annual per capita consumption of maize inKenya is estimated at 98 kg. That translates into anequivalent overall demand of about 40 million bags

    every year. Domestic maize production is around25 million bags, reaching 40 million in a good year.Food prices have generally been on the increase inKenya in the recent past, owing to a combinationof factors, including droughts, global price trendsand government policy. The recent high prices offood and fuel are also challenging some of Kenyasmacroeconomic fundamentals because they haveresulted in higher ination (estimated at more than10 percent over the last few years) and contributedto a sharp decline in the foreign exchange rate.

    Diversifying the countrys food base is therefore animportant strategy for reducing Kenyas vulnerabilityto international food price shocks. Additionally, sinceaverage arable land per household is shrinkingrapidly owing to a combination of rapid populationgrowth and continued urban sprawl, crops thatcan produce more food, more nutrients and morecash per unit area and time are gaining increasingimportance in the quest for solutions to Kenyasperennial food security problems.

    One of the long-term strategies to ease the strainof food price ination is diversication of the crop

    base with a focus on nutritious and versatile staplefoods which are not susceptible to the vagaries ofinternational commodity markets. Given its numerousfavourable attributes, the potato is a suitablecandidate for crop diversication in Kenya. The crophas wide acceptance, and many households alreadydepend on the potato as a primary or secondary

    source of food and nutrition. The potato is highlynutritious: it is rich in protein, calcium, potassiumand vitamin C, and has a particularly good aminoacid balance. Moreover, the potato is a veryproductive crop: it produces more food per unit areaand time than wheat, rice or maize. One of the cropsassets is its adaptability it can be grown in a widevariety of farming systems. The crop has a short andhighly exible vegetative cycle, and can be readyfor harvest within 100 days of planting. It ts wellwith double-cropping and intercropping systems, isecologically quite adaptable and can be grown as anoff-season crop.

    The potato is shielded from international shocksas, unlike major cereal commodities, it is sparinglytraded in global markets. Only a fraction of totalglobal production enters foreign trade; thus, potatoprices in Kenya are determined by local demandand supply conditions, not by unreliable internationalmarkets. In addition, since the potato is not widelysold on major international commodity exchanges,

    the crop is not at risk from the ill-effects of speculativeactivity. The potato is therefore, a highly dependablefood security crop that can help ease future turmoilin world food supply and demand. The potato is ahighly recommended, nutrient-rich crop that canprotect low-income countries from the risks of risinginternational food prices, while providing a valuablesource of income for subsistence farm households.

    The potato has tended to be a low priority cropin Kenyas agricultural development policies, despite

    its importance as a staple food and its potentialcontribution to combating hunger, poverty and

    Executive summary

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    xi

    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    unemployment. Numerous constraints have limitedpotato productivity and protability, and actualyields are well below those which could be reachedby using the available technology and adoptingappropriate post-harvest practices. As a result,growers get poor returns and yields are insufcientto make potatoes available for use as seed or forconsumption in urban markets.

    Recent initiatives undertaken by the KenyanGovernment, stakeholders and development partnersto overcome the constraints include: introduction ofrapid seed multiplication technologies; training inalternative seed production methods; private sectorinvolvement in basic seed production; and theformation of the National Potato Council of Kenya(NPCK), a multi-stakeholder and public-private

    partnership (PPP) platform. A growers association the Kenya National Potato Farmers Association(KENAPOFA) is also in place, but needs to bestrengthened.

    Seed systems and varietydevelopment

    High-quality planting material, consideredfundamental for achieving the subsectors potential,accounts for less than 5 percent of total seed used,and over 95 percent of farmers depend on common,disease-infested seed. The limited use of high-quality planting material is attributed to a varietyof factors, including: growers limited knowledgeof the availability of such seed and its productivityand economic benets; the limited productionand distribution of certied, clean seed; and itsrelatively high cost versus the limited resources andabsence of credit available to the small producerswho make up the vast majority of the subsectorsfarmers. High priority interventions are requiredto enhance the seed system and improve varietaldevelopment, including:

    installation of irrigation facilities at key farmlocations charged with producing breeders andbasic seed;

    development of a coherent strategy to producethe quantities of seed required to meet theestimated demand for high-quality plantingmaterial, taking into account everything fromimproved estimates of actual area cultivatedand yields from current ware production to

    gaining access to the land needed to producecertied seed through a combination of landpurchase, rental and outgrower schemes;

    improvement of quality control in thelaboratories dedicated to germplasm clean-upand conservation;

    seed quality assurance; in-house quality testing to ensure that seed is

    free from pests and diseases; and greater investment in potato research and

    development.

    Investment is necessary in the following areas:

    Breeding to develop new varieties Pathology to improve disease and pest control Agronomy and agricultural engineering for

    irrigation to increase production Agricultural engineering and food technology

    to improve storability of seed and ware potatoes Research on low-cost disease diagnosis

    and germplasm conservation to developbiotechnology

    Socio-economics to develop marketing

    The accreditation or authorization of privateenterprises to engage in certied seed productioncan also facilitate further increases in the productionof high-quality planting material. The introductionof specialized varieties is also of growing interest,for example, varieties appropriate for processing orsuitable for lowland cultivation.

    Ware potato production

    Potato production takes place mainly under rainfedconditions and is concentrated at altitudes above1 500 m. Most farmers use basic production andpost-harvest management practices, resultingin small quantities and poor quality of marketedpotatoes. Average yields are less than 10 tonnes/ha(FAOSTAT). This poor performance is the result ofseveral challenges facing the subsector, including:

    low-quality seed; limited use of inputs use; and prevalence of pests and diseases.

    Potato marketing and processing

    Potato marketing channels are poorly articulated andgrowers obtain low returns for a variety of reasons,including:

    perishability of tubers dug before their skinshave hardened;

    lack of adequate storage facilities; poor access roads;

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    poor infrastructure in public wholesale andretail markets;

    lack of implementation of quality standards; inadequate access to market information; and weak farmers organizations.

    The resulting logistical challenges associated withsecuring a reliable and consistent supply of good-quality raw material also hinder the generation ofadded value in the potato marketing chain.

    Policy, legal and regulatoryframework

    While various acts of parliament, legal notices andsubsector strategy documents and plans existto govern production, marketing and processing

    of potatoes in Kenya, their implementation is aconsiderable challenge. This has been the casewith the Root and Tuber Crops draft policy, thepotato strategy and the Seed Potato Master Plan.Documents must be reviewed and updated in orderto meet current national aspirations, internationallaws and guidelines. Certain regulations and legalnotices have been partially implemented, forexample, Legal Notice No. 44 (2005) and LegalNotice No. 113 (2008).

    Policy recommendationsSustaining the growth of the potato subsector tomeet the challenges of diversication depends onpolicy reforms to transform the potato subsectorfrom its current status of semi-commercialized,uncompetitive and uneven productivity,characterized by low and declining average yields(< 10 tonnes/ha), low agribusiness (< 10 percent),moderate employment (3.3 million), moderateincome (KES 40 billion [USD 362 million] atconsumer prices) and low diversication, to arobust, competitive and self-regulating industry,characterized by high yields (> 25 tonnes/ha), highagribusiness (> 80 percent), high employment(6.6 million), high income (KES 150 billion[USD 1.7 billion]), and vertical and horizontaldiversication. The specic recommendations areoutlined below.

    Ware potato production

    Farm-level: Promote use of improved-quality (i.e. pest- and

    disease-free) seed this is top priority. Take complementary initiatives to improve

    soil and water management practices in order

    to increase potato productivity and, wherefeasible, assist growers to invest in irrigationinfrastructure to expand output, raise averageyields and reduce the climatic risks associatedwith small-scale, rainfed potato cultivation.

    Facilitate access to affordable credit andnancial services for small farmers.

    Market-level: Complement farm-level initiatives with a

    systematic, multi-year programme to constructall-weather, rural feeder roads to link majorpotato-producing counties with urban marketsand with aggressive enforcement of existingregulations governing the use of 110-kg bags.

    Strengthen smallholder organizations to improvefarmers bargaining power and to enhanceproduction and the transmission of marketinginformation.

    Foster widespread use by farmers of theexpanded ICT (information and communicationstechnology) network, such as cell phones andthe Internet.

    Promote the pricing and sale of potatoes bygrade and variety, bringing into play high-proleurban retailers.

    Install a basic marketing infrastructure,including covered areas, paved central squaresand overnight storage facilities in open-airpublic markets.

    Consumer-level: Conduct a major campaign to emphasize the

    cooking of potatoes with their skins throughinitiatives such as recipe promotion, regionalgastronomic events and cooking classes insecondary schools to ensure that the muchheralded nutritional benets of the potato arebetter understood by the general public and

    fully taken advantage of in daily eating habits,particularly in the case of school-aged children.

    Focus efforts to foster greater production anduse of ware potatoes.

    Intensify coordination between a cross-sectionof public, private, international and developmentorganizations to ensure more coherent andconsistent reporting on subsector developments from information on actual area harvested,yields and prices for ware potatoes and seed toongoing projects or proposed new programmes.

    Prioritize programmes in order to benet thelarge numbers of existing growers and urbanconsumers: begin in existing major production

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    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    zones and use principal marketing channelsto link growing areas with urban consumptioncentres, promoting potatoes for sale, processingand use in fresh form.

    Seed potato production Update the Seed and Plant Varieties Act

    (Cap. 326) to keep up with new initiatives anddemands for increased production of qualityseed potatoes that are vital for subsectordevelopment.

    Streamline the inspection process and enablecertication of in vitro plantlets and mini-tubers.

    Recognize and develop standards for qualitydeclared seed and planting material.

    Allow marketing of seed potatoes in smaller

    quantities (10 or 20 kg) to encourage widespreaduse of good-quality seed.

    Adopt policies to facilitate characterization,indexing and release of farmer-preferredvarieties in order to jump-start production ofcertied seeds of those cultivars.

    Enhance public-private partnerships for theregulation and control of diseases includingauthorization and accreditation of greaterparticipation of the private sector in seedinspection and regulation.

    Develop and promote more effective seedpotato distribution systems to ensure availabilityand access for farmers.

    Encourage existing and new nancial institutionsto develop appropriate nancial packages forseed growers.

    Establish strategic reserves of seed potatoesthrough promotion of cold storage, increased

    farm-level storage and in vitro conservation ofplantlets.

    Create and strengthen linkages and networkingamong potato research institutes, extensionorganizations and seed producers (public andprivate) through a subsector platform within theNPCK to share information such as researchresults, ongoing planning, solutions and the wayforward for the seed subsector.

    Cross-cutting issues Raise awareness among policymakers of the

    subsectors potential for improving incomes,nutritional benets, processing options andfood security and of its contribution towardsachieving Vision 2030 and Millennium

    Development Goals (MDG). Engage policymakers at national, county and

    municipal level in the implementation of theinitiatives outlined above while encouraging andpromoting greater private sector involvement inimproved production and use of the potato.

    Strengthen the NPCK by developingmechanisms and legislative support to makethe subsector nancially sustainable and byfacilitating its integration into existing institutionsat different levels of governance and within the

    subsector. Increase national government funding and

    support of the potato subsector to enableimplementation of the recommended initiatives,including consistent funding of a core nationalpotato research and development programme.

    Foster greater investment by the private sectorin potato-related business initiatives.

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    1

    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    Among the chief goals of agricultural sector policiesin sub-Saharan Africa are to increase the productivityand incomes of smallholder farmers; to enhance foodsecurity and equity; to stabilize agricultural outputthrough greater use of irrigation; and to promotecommercialization and intensication of production,appropriate and participatory policy formulation andenvironmental sustainability. In most sub-SaharanAfrican countries, however, development of theagricultural sector continues to be constrained byweak vertical integration, inadequate institutions andsupport services, and the concentration of output ina narrow range of agricultural products for export ordomestic consumption.

    Agricultural diversication is a strategy forenhancing the welfare of low-income ruralhouseholds. Its positive ef fects include improvementof food security, mitigation of risk, employmentgeneration and conservation of biodiversity. New

    opportunities for crop diversication are emerging,

    especially for enterprising and progressive farmers.Rising incomes and standards of living, rapidurbanization, and changing lifestyles, tastes andpreferences in both industrialized and developingcountries have spurred signicant changesin domestic and international demand for food.Trade liberalization and development of transportinfrastructure are improving access to new and

    distant markets.

    Diversication strategies promote greaterexibility among producers, which allows them totake advantage of opportunities created by evolvingnational and international market conditions. Theyseek to enable farmers to produce different crops(horizontal diversication) or engage in differentvalue-addition activities (vertical diversication).As diversied production improves dietary diversityor introduces new processed food products, it canenhance the nutritional balance of peoles diet and,in doing so, help improve their health and earningcapacity.

    However, sub-Saharan Africas farmers havelargely failed to reap the benets of diversication.Very few farm units actually generate signicantincome through the adoption of yield-increasingtechnology or improved processing and marketingpractices. Similarly, instead of diversifying productionhorizontally or between regions, farm units or regionsoften concentrate their efforts on only a few crops

    year after year.

    The potato as a strategiccrop for diversication andits potential as a source offood security, nutrition and

    income generation

    1. Introduction

    Potato and meat stew

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    2

    1.1 Crop diversication in Kenya

    Kenyas agricultural sector is the mainstay of thenational economy and provides the basis for thedevelopment of other sectors. It accounts for26 percent of gross domestic product (GDP) andthrough linkages with agro-based and associatedindustries, contributes an estimated additional27 percent to GDP. Growth of 1 percent in theagricultural sector generates a corresponding risein GDP estimated at 1.6 percent. The agriculturalsector employs more than 80 percent of the totallabour force and provides 75 percent of industral rawmaterials. Primary agro-based products constitutemore than 50 percent of the countrys total exports;the value of agricultural exports accounts for64 percent of total exports.

    About 80 percent of Kenyas population lives inrural areas, with three-quarters of them engaged inagricultural activities. The sector is dominated bysmallholders, who account for about 75 percent oftotal output. Agricultral production is dominated bya narrow range of commodities, including coffee,tea, dairy, maize, wheat and horticultural crops.Cultivation of these crops is the source of livelihoodfor over 85 percent of the population, with coffeeand tea alone providing 45 percent of total wage

    employment in the sector. Despite their high exportpotential, fresh produce shipments abroad accountfor only 3 percent of the level of value addition in theagricultural sector. The continued concentration ofoutput suggests that Kenya has yet to fully exploit itspotential to diversify production towards value-addednon-traditional commodities. Such diversicationand greater vertical integration could help improveand stabilize agricultural output, productivity andincome as well as enhance food insecurity andreduce overreliance on a few crops for domestic

    food requirements and exports (UNDP, 2006).

    In Kenya, agricultural produce is commonlymarketed with minimum added value, whichreduces farmers potential revenue and limits thecreation of associated employment opportunitiesfor wage earners. Very little effort has been madeto utilize storage and agroprocessing opportunitiesto increase the value of agricultural produce andenhance income-earning potential. These practicespersist despite a series of measures endorsed by theAgricultural Sector Development Strategy (20102020), including:

    provision of incentives for establishing agro-industries in rural areas;

    research focused on value-addition activities,such as processing, storage and packaging ofagricultural produce;

    promotion of partnerships between smallholdersand agribusiness;

    improvements in infrastructure (e.g. ruralaccess roads, rural electrication, water andtelecommunications); and

    training for farmers and farmer institutions invalue addition.

    However, agricultural diversication in Kenya facesmany challenges which hinder the realization of itspotential. These challenges include:

    low yields and poor-quality tubers that drive upthe cost of raw materials and reduce conversionrates;

    poor, outdated technology that results inefcient production of high-value products;

    WTO (World Trade Organization) regulationsthat increase the cost of imported seeds andplanting material;

    the limited capacity of national quality assurancebodies to ensure compliance with internationalstandards; and

    non-tariff barriers to trade, such as phytosanitaryrestrictions.

    The lack of diversication in Kenyan diets aggravatesthe vulnerability of poor households. Maize is viewedas the anchor of the nations food security. Thedependence of a large proportion of the populationon maize-based diets and the lack of policy focus ondiversication of food availability at household levelleaves many households vulnerable to volatility inthe prices of maize and maize-based food products,and to the effects of unstable weather and unreliable

    marketing systems. Inadequate policy supportfor production of value addition and utilization ofalternative food commodities leaves the countryoverly reliant on the vagaries of annual maize outputand the vicissitudes of international commodityprices to make up any shortfall. Kenyas maizeimports, which averaged 186 000 tonnes during theperiod 200008 (De Groote et al. , 2012) balloonedto 1.5 million tonnes in 2009 (FAOSTAT, 2012).

    To address the above constraints, the Government

    of Kenya has focused recently on crop diversicationand value addition in agriculture. Key areas of policy

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    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    concern and strategy, which are highlighted in theVision 2030 (GoK, 2007) and ASDS (GoK, 2010a)documents, include catalyzing enhanced agriculturalproductivity, food security and income growth.Crop diversication is seen as a strategy that willhelp dampen food price ination, by facilitating thegreater availability of a broader mix of nutritious andversatile staple foods that are much less susceptibleto volatile international markets, changing weatherpatterns and political machinations.

    The potato has all these characteristics. Alreadywidely grown and eaten in Kenya, the tuber is ahighly suitable candidate for inclusion in any cropdiversication strategy. The Comprehensive AfricanAgricultural Development Programme (CAADP)says the growth and development of sub-Saharan

    countries will be achieved mainly by identifying thesubsectors that have the greatest potential to drivegrowth and reduce poverty. That means exploitingthe potential of commodities that have an existingproduction base as well as a large and growingdemand in the region.

    1.2 Importance of the potato

    Global potato production was 324 million tonnesin 2012 (FAOSTAT, accessed July 2012) and isprojected to reach more than 400 million tonnesby 2020 (Scott et al ., 2000). Potatoes are grownin more than 100 countries. China is currently theworlds largest potato producer, accounting for morethan 20 percent of global production (Scott andSuarez, 2012a). Production is expanding strongly inmany countries of the developing world, which nowaccounts for more than half of the global harvest(Scott, 2011; Scott and Suarez, 2012b, 2012c).The rapid growth in potato production witnessed indeveloping countries particularly in Asia and Africa often surpasses that of other major food crops,such as maize and wheat.

    The potato is highly efcient at convertingseed, land and water into high-quality food withwide consumer acceptance (FAO, 2009). Manyof the poorest producers in developing countries,and most undernourished households, value thepotato because it produces large quantities ofdietary energy and maintains relatively stable yieldsunder conditions in which other crops might fail.Those characteristics make the potato suitable for

    cultivation in many low-income developing countries,where arable land is limited and unemployed labouris abundant.

    Unlike cereals, the potato is not massively tradedin global commodity markets. Owing to the potatosbulkiness and perishability, and its low value inrelation to weight, only a fraction (estimated at5 percent) of world output enters foreign trade. Asa result, potato prices are usually determined bylocal supply and demand conditions. The potatois, therefore, a strategic food security crop that canhelp cushion low-income consumers during periodsof turmoil in world commodity markets. Since 2008,when the United Nations celebrated the InternationalYear of the Potato, the crop has assumed a newstatus and is now being promoted as an importantcontributor to eradicating global hunger and poverty.

    The potato can make a signicant contribution tothe food and nutrition security of Kenya. Among rootand tuber crops, it has the highest protein content(around 2.1 percent on a freshweight basis). Inaddition, the protein is of fairly high quality, with anamino acid pattern that is well matched to humanrequirements. The potato is also a good source ofvitamins, potassium and bre (Woolfe, 1987). Itprovides about one-third of the recommended daily

    allowance of vitamin C (provided it is cooked andpreferably eaten with the skins). Contrary to themisconception that potatoes are fattening and lowin food value, the ratio of protein to carbohydratesis higher in the potato than in many cereals. Infact, the nutritive value of the potato is higher thanthat of maize, beans, soybean, peas and wheat.It is also an excellent pro-poor crop owing to itshigh yield potential, especially in Kenya wherethe fragmentation of farms has led to small-scaleproducers accounting for more than 80 percent of

    all agricultural producers. In terms of protein, thepotato produces twice as much protein per hectareper day as dry beans.

    Importance of the potato

    Potatoes are rich in micronutrients, especially vitamin C eaten with its skin, a single medium-sized potato of 150 gprovides nearly half the daily adult requirement (100 mg).

    The potato is a moderate source of iron, and its highvitamin C content promotes iron absorption. It is also agood source of vitamins B1, B3 and B6 and minerals, suchas potassium, phosphorus and magnesium, and containsfolate, pantothenic acid and riboavin (Woolfe 1987).

    Potatoes contain dietary antioxidants, which may play apart in preventing diseases related to ageing, and dietarybre, which benets health.

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    2.1 The potato and Kenyas economy

    The potato is Kenyas most important food crop aftermaize, plantains and wheat (FAOSTAT, 2012) andis an increasingly important source of cash for thecountrys low-income small-scale farmers. Since the

    potato is a highly labour-intensive crop, it generatesconsiderable employment in production, marketingand processing. An estimated 800 000 farmers growpotatoes, while an estimated 2.5 million people areemployed in the potato subsector as market agents,transporters, processors, vendors and exporters.

    2.2 Production characteristics

    Production systems

    In Kenya, potatoes are usually grown on small family

    farms of less than 2 ha, where total area planted topotatoes is typically less than 1 ha (Gildemacher etal ., 2009a; Obare et al ., 2010). In a few counties,such as Bomet, Nyandarua and Narok, a smallnumber of large, commercial growers cultivateseveral hectares or more of potatoes.

    Most potatoes are grown in monoculture.However, some farmers especially very small-scale growers intercrop potatoes with other foodcrops such as maize and beans. Given their limitedresources, many of these farmers grow potatoesseason after season on the same plot, without croprotations. Others grow potatoes in rotation withmaize, wheat or barley. Crop husbandry on many

    farms is rudimentary, with barley, beans, coffee,maize, onions, pyrethrum, tea, tomatoes and wheatall competing with the potato for scarce householdresources. More than 90 percent of all potato farmersuse their own, farm-saved seed tubers. Growersgenerally do not rejuvenate their seed stocks on aregular basis (Gildemacher et al ., 2009a). The use ofbotanical or true potato seed for planting potatoes

    is rare, at best. Quality declared seed (QDS) is stillnot available despite farmers reportedly being ableto produce clean seeds on a regular basis.

    More than 60 potato varieties are grown inKenya, but relatively few are widely distributed.The dominance of certain varieties shifts with time,and a once popular and widely grown variety canbe abandoned by farmers within a short period oftime. For example, in the 1990s, a farmers variety,Nyayo, was among the mostly widely cultivatedvarieties in the country. Today, it has been almostcompletely discarded, replaced by Zangi (anotherfarmers variety) and Tigoni (an ofcially releasedvariety), mainly because of market preferences. Thepredominance of certain varieties also varies fromregion to region. For example, Dutch Robjin is thepreferred variety in Bomet, while in the Meru regionit is Asante.

    Ware potatoes are usually sold immediately afterharvest; storage for future sale is seldom practised.Smallholder potato farmers own little machinery

    and mechanization is rarely applied except for landpreparation.

    Potato production practices remain suboptimal, inpart because agricultural support services such asextension and production credit are minimal andmarket signals, in the form better prices for betterquality tubers, are often distorted. As a result, goodcrop management, involving the appropriate andefcient use of inputs, such as good-quality seed,is seldom practised. Farmers rarely keep writtenrecords of production or marketing practices, sodocumenting farm operations as part of traceabilityand business monitoring is usually not possible. Mostfarmers do not use protective gear when handling

    The importance of potatoesand the current status

    of the potato subsectorin Kenya

    2. The potato subsector

    Potato plants in aeroponic system

    ready for harvesting

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    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    pesticides. Good agricultural practices (GAPs) forpotatoes have yet to be developed.

    Nearly all potato production occurs under rainfedconditions. The crop is generally planted twice a year,during the AprilJune long rains and the October

    December short rains. In some areas, rainfall patternsare different in the Meru region, for example, thehighest rainfall is during October/December, whichis considered the main potato-growing season, whilethe Kericho and Kisi regions receive rains as early asJanuary and a second crop can be planted in July.In recent years, variability in the amounts, onset andduration of rainfall has become more pronounced,with some observers attributing the variations toclimate change. Droughts, ooding and increases intemperature are projected to become more intense

    in the coming years.

    The major potato diseases include late blight(Phytophthora infestans ), bacterial wilt ( Ralstoniasolanacearum ) and viral diseases such as potato leafroll and potato virus Y (Gildemacher et al ., 2009a).Pests of signicance include aphids, potato tubermoth, cut worms and leafminers. Climate changeis expected to cause an increase in the incidenceof these pests and diseases primarily due to shiftsin rainfall and temperature patterns favouringtheir propagation and the continued expansion ofproduction to lowland growing areas.

    Farmers often harvest potatoes while the cropis still immature, i.e. before the tubers skin hashardened sufciently. This reduces storage quality,shortens potential storage time, and increases therisk of damage and losses during transportation andhandling.

    Farmers usually harvest their crops afteridentifying buyers. In most cases these are travelling

    brokers, who rarely arrange to buy potatoes fromfarmers until they have secured orders fromprospective buyers. Given these establishedpractices, few farmers engage in on-farm storage ofware potatoes for future sale (Kiruma et al ., 2004).Storage of ware potatoes in factories, restaurantsand hotels is generally for short periods prior toprocessing. Some farmers store potatoes in bags intheir houses or in multipurpose stores, but only afew use improved storage. One private company hasrecently constructed a state-of-the-art processing

    facility with modern cold storage for ware potatoes.Although sprout suppressants could be used toprolong the shelf-life of the ware potato tubers, thisis not common practice.

    On-farm seed storage is generally done in basicstores that employ natural ventilation. Seed tubersare stored in heaps in the house or outside in pitsto enhance sprouting. Few farmers use improvedDiffused Light Storage (DLS) and the use of cold storesfor seed is practised only at the Kenya AgriculturalResearch Institute in Tigoni (KARI-Tigoni) and atthe Agricultural Development Corporation (ADC)complex in Molo. Breaking dormancy remains amajor challenge for small farmers who plant twocrops a year. Many varieties with long dormancyhave been abandoned by farmers in favour ofvarieties with short dormancy periods.

    Production and yield trends

    The bulk of the potato crop is cultivated at between1 500 and 3 000 m above sea level. Productionis currently concentrated in three of Kenyas eightadministrative provinces (GoK, 2011): Rift Valley,

    Central Province and Eastern Province. Nationalstatistics for 2009, calculated on the basis of theestimated number of 110 kg bags of potatoesproduced, are shown in Table 1. Central Province wasthe largest potato producer with a harvest of about220 000 tonnes (37.7 percent of total production),followed by Rift Valley Province (157 000 tonnes or27 percent) and Eastern Province (113 000 tonnesor 19 percent). The farmgate value of production wasestimated to be KES 6.3 billion [USD 117 million].

    It should be noted that the level of potatoproduction in Kenya is disputed. The guresreported here (Table 1) are 20 percent higher thanthe 480 000 tonnes/year indicated by FAOSTAT for

    Potato production system in Kenya

    Farmers varietal preferences are constantly shifting withtime as once popular varieties are completely abandonedby growers.

    Ware potatoes are sold mainly at harvest without storing forfuture sale, which adds to seasonal gluts and shortages.

    Nearly all potato production takes place under rainfedconditions.

    Most potatoes are harvested when the tubers areimmature.

    On-farm seed storage takes place under rustic conditionsand employs natural ventilation.

    There is no signicant production of certied seedpotatoes in the arid and semi-arid land (ASAL) regions.

    There is a mismatch between the varieties that farmers

    prefer and those multiplied in certied seed programmes.

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    the years 20082010 (Figure 1) and 36 percentlower than the total imputed by informed observerswho argue that the average sack of potatoes

    weighs closer to 150 kg, despite governmentregulations mandating the use of 110-kg bags.Major inconsistencies in basic information on the

    potato subsector hamper efforts to plan and monitorinitiatives to improve production and utilization.

    Potatoes are produced mainly in 14 counties:Bomet, Bungoma, Elgeyo-Marakwet, Kiambu,Laikipia, Meru, Nakuru, Narok, Nyandarua, Nyeri,Taita-Taveta, Trans-Nzoia, Uasin Gishu and West

    TABLE 1

    Potato production by province compared with other major crops in Kenya, 2009Crop Indicator Rift Valley Nyanza Eastern Western Coast Central Northeastern Nairobi Total

    Maize Crop area (ha) 644 895 262 453 462 401 225 302 129 379 157 063 2 525 1 053 1 885 071

    Bags (90 kg) 13 225 039 3 711 215 3 903 141 4 163 878 1 079 383 1 047 879 5 520 6 420 27 142 475

    Yields (bag/ha) 20.5 14.1 8.4 18.5 8.3 6.7 2.2 6.1 14.4

    Whea t Crop area (ha) 103 455 0 14 160 270 0 13 709 0 0 131 594

    Bags (90 kg) 1 509 961 0 552 495 7 050 0 367 172 0 0 2 436 678

    Yields (bag/ha) 15 0 39 26 0 27 0 0 19

    Beans Crop area (ha) 200 263 146 954 286 861 216 343 1 984 107 749 24 527 960 705

    Bags (90 kg) 1 019 109 1 081 360 1 914 515 689 397 13 844 450 664 141 1 666 5 170 696

    Yields (bag/ha) 5 7 7 3 7 4 6 3 5

    Rice Crop area (ha) 0 6 411 0 1 132 1 571 12 635 80 0 21 829

    Bags (50 kg) 0 384 660 0 16 326 15 389 424 106 3 556 0 844 036

    Yields (bag/ha) 0 60 0 14 10 34 44 0 39

    Potatoes Crop area (ha) 222 620 97 320 144 774 108 313 657 141736 5 687 716 112

    Bags (110 kg) 1 429 217 397 092 1 029 232 435 893 3 285 1 992 930 10 3 492 5 291 151

    Yields (bag/ha) 6 4 7 4 5 14 2 0 7

    Source: Economic Review of Agriculture, 2010

    FIGURE 1

    Potato production and area harvested in Kenya, 20002010

    Source: FAOSTAT

    180 000

    160 000

    140 000

    120 000

    100 000

    60 000

    40 000

    20 000

    0

    80 000

    2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010

    A r e a

    ( h a

    )

    Area Production

    1 400 000

    1 200 000

    1 000 000

    800 000

    600 000

    400 000

    200 000

    0

    P r o

    d u c

    t i o n

    ( t o n n e s

    )

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    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    Pokot. Major growing districts include Baringo,Bomet, Bungoma, Elgeyo Marakwet, Embu, Kiambu,Kirinyaga, Kisii, Kericho, Laikipia, Machakos,Meru, Muranga, Nandi, Nakuru, Narok, Nyamira,Nyandarua, Nyeri, Taita Taveta, Trans Nzoia, UasinGishu and West Pokot.

    There is currently no signicant production of thepotato in arid and semi-arid land (ASAL) regions.

    Figure 1 shows that the harvested area of potatoesincreased by almost 50 percent between 2000 and2009: from 108 516 to 153 114 ha. A marginalreduction to 152 994 ha was registered in 2010. Overthe period 200010, potato production uctuatedconsiderably: output peaked at 1.2 million tonnes in2003 before collapsing to some 400 000 tonnes peryear in 2009.

    Average potato yields appear to have fallenconsiderably. According to FAOSTAT, they droppedfrom 9.7 tonnes/ha in 2003 to 2.6 tonnes/ha in2009 (Figure 2). Those yields are well below theaverage for Africa as a whole (10.8 tonnes/ha), anda number of recent research papers suggest thatactual productivity may be seriously underestimated(Gildemacher et al ., 2009a; Obare et al ., 2010).These and other inconsistencies in nationalpotato statistics both among Kenyan sources

    (see Kirumba et al ., 2004) and between ofcialgovernment data and the gures reported by FAO need to be addressed in order to facilitate subsectorbenchmarking, improve monitoring and evaluationand reduce the transaction costs associated withassessing private sector investment opportunities.

    Competitiveness

    Market-oriented potato farmers who follow technicalGAP recommendations including the use of

    clean or certied seed can achieve yields of upto 50 tonnes/ha. Using optimal potato cultivationpractices, farmers can earn up to USD 3 434.5(KES 288 500) per hectare for a return of USD 8.4(KES 704) per family labour day that is about4 times more than the average wage of a casuallabourer.

    Women and men are nearly equally involved inpotato operations. Some tasks are of a heavy dutynature and thus require young men. Therefore, inaddition to being pro-poor and gender-balanced,Kenyas potato enterprise often creates employmentopportunities for underemployed youth.

    2.3 Breeding and seed systems

    Breeding: adaptive research, varietal releaseand basic seed production

    In Kenya, development of new potato varieties wasonly recently reinitiated with the reintroductionof cross-breeding activities in the national potatoprogramme. For many years superior clonesdeveloped for tropical Africa were imported from theinternational gene bank operated by the InternationalPotato Center (CIP) in Lima, Peru. Recently, nationalprogramme scientists have undertaken adaptiveresearch in which clones, particularly those withtolerance to late blight and viruses, are exposedto a variety of stresses. The successful ones arethen ofcially released, bulked and certied forregular use. These national performance trials are

    coordinated by Kenyas Plant Health InspectionServices (KEPHIS).

    Kenyas potato breeding programme, which isundertaken mainly by KARI-Tigoni in cooperationwith CIP, focuses on screening varieties for toleranceto biotic stresses. A number of innovative andefcient techniques are being used to producepre-basic and basic seeds, including clonal seedselection, tissue culture and production of mini-tubers from aeroponics. Aeroponics represents

    a shift from the previous practice of producingmini-tubers under glasshouse or screenhouseconditions directly from in vitro plantlets and stem

    FIGURE 2

    Average potato yields in Kenya, 20002010

    Source: FAOSTAT

    2 0 0 0

    2 0 0 1

    2 0 0 2

    2 0 0 3

    2 0 0 4

    2 0 0 5

    2 0 0 6

    2 0 0 7

    2 0 0 8

    2 0 0 9

    2 0 1 0

    Y i e l d ( t o n n e s

    / h a

    )

    0.0

    2.0

    4.0

    6.0

    8.0

    10.0

    12.0

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    TABLE 2

    Characteristics of the potato varieties recently released in Kenya, 20062010Variety Skin colour Shape Maturity Period 1 Yield 2 Year of release

    Kenya Faulu3

    Red Long oval Late High 2006

    Kenya Karibu Red Round Late High 2006

    Kenya Mavuno White Round Late High 2006

    Kenya Mpya White Oval Medium early High 2010

    Kenya Sifa Red Round Late High 2006

    Kenya Sherekea White Round Late Very high 2010

    Purple Gold Purple Round Late Medium 2010

    1 Maturity period: early (< 90 days), medium-early (91100 days), medium (101110), medium-late (111120 days), late (121130 days), very late (> 131 days).2 Yields: low (< 20 tonnes/ha), medium (2130 tonnes/ha), high (3140 tonnes/ha) and very high (> 40 tonnes/ha).3 No longer in production due to poor conservation strategies resulting in a loss for the potato programme.

    Source: KARI-Tigoni Annual Reports

    cuttings. Despite improvements in technology, theclonal system of seed production still accounts formore than 90 percent of all the basic seed tubersproduced at KARI-Tigoni.

    Between 2000 and 2011, Kenyas potato

    programme released seven new potato varieties(Table 2). However, it is estimated that these varietiesare currently planted over less than 10 percent of thetotal potato area in the country. The reasons for thelow uptake are unclear, but may include the limitedavailability of seed tubers and other agronomic orconsumer-driven factors.

    Since most adaptive potato research in Kenya hasaimed at improved tolerance to biotic stresses, littlehas been done to develop varieties with improvedtolerance to abiotic stresses, especially drought andpoor soils. National potato production has thereforetended to be pushed towards the wetter areas, atrend which may have contributed to deforestationand climate change.

    Seed systems: multiplication, distribution,packaging and storage systems

    Seed systems encompass both the ways in whichthe seed of new varieties is generated and the waysfarmers produce, select, save and acquire seeds ofestablished varieties. Three seed potato systems arecurrently operative in Kenya: formal, semi-formal anddecentralized, farmer-based informal seed systems.

    Formal seed system

    This system, which is governed by laws and ofcialguidelines, has evolved over the years from variousprojects and programmes funded by the Governmentand development partners. The guiding principles

    are to: produce, distribute and promote the use of

    certied seed, or seed that meets ofcialphysical and physiological s tandards; and

    establish a limited number of seed outlets thatmay be increased through, for example, public-private sector partnerships.

    The formal seed potato system links agencies forbasic seed production, certication and certiedseed production. Basic seed is produced largely by

    KARI-Tigoni and a few private sector companies,including Genetic Technologies International Limited(GTIL) and Kisima Farm. Certied seed is producedby the Agricultural Development Corporation (ADC),a government parastatal, the KARI seed unit insanitary quality. This material is the progeny of basicseed and its production is handled so as to maintainspecic genetic identity and purity according to thestandards prescribed for certied potatoes. It mayalso be the progeny of certied seed, provided thatreproduction does not exceed three generations

    beyond the basic seed stage.

    Certied seed is obtained from the multiplicationof basic seed under the stringent supervision of

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    KEPHIS. It is the only seed potato that may be legallytraded under Kenyan law. Although mainly producedby the public sector, production and sale of certiedseed has become the focus of a number of recentprivate sector initiatives. Furthermore, there is agrowing consensus in Kenya that the private sectorhas considerable potential to further expand its rolein the production and sale of certied seed potatoes.Currently, marketing and distribution of certiedseed takes place through Ojororok and private seedgrowers (e.g. Kisima Farm). Seed certication iscurrently carried out only by KEPHIS, although abill currently before parliament may allow for theaccreditation of private seed inspectors.

    Semi-formal seed system (decentralized, farmer- based)

    In this system, the quality of the seed produced islower than that of certied seed but higher than thatproduced by the informal seed system. The semi-formal system produces two types of seed: cleanand positively selected.

    Clean seed. Multiplied at farm level and notcurrently subject to inspection by KEPHIS.It originates from certied or basic seed andits production follows guidelines laid down infarmer training programmes conducted by

    organizations such as the MoA (Ministry ofAgriculture), KARI, GIZ (German Agency forInternational Cooperation) and TOT (Training ofTrainers). Most production guidelines used inthe production of certied seed are also usedto produce clean seed only sample testingand supervision by KEPHIS is lacking. Negativeselection is used to remove diseased and weakplants. Currently, the process of producingclean seed is technically backstopped byextension service providers from the MoA, KARI

    and NGOs (Non-governmental Organizations)and have been previously supported by a PSDA(Promotion of Private Sector Development inAgriculture)/CIP project. The seed multipliersreceive training on how to produce cleanseed from basic or certied seeds. The seedproduced in this system is equivalent to whatFAO refers to as quality declared seed (QDS)and only requires the development of protocolsand legislation. Although Kenya has not yetlegalized the use of QDS, other countries (e.g.

    United Republic of Tanzania) have alreadyadopted the use of this type of seed for trade.

    Positively selected seeds. Positively selectedseeds (PSS) are produced from ordinaryor farmer-saved seeds through a processof selection carried out by farmers whohave knowledge of good seed selectionand management techniques. Multipliers ofpositively selected seeds receive training onhow to select the best (disease-free) plantsduring the crop growth stage; these plants thenbecome mother plants from which seeds forthe next season are obtained. Production of thistype of seed lacks stringent growing proceduresand is not subject to inspection by KEPHIS.However, since this system helps to improvecontrol of some of the major potato diseasesfound in farmers elds, it has the potential, ifwell managed, to signicantly increase the yieldsof the majority of farmers growing potatoes (byup to 30 percent).

    Informal seed system (farmer seed)

    Informal seed consists of farmers own seedsaved from the previous harvest or procured fromneighbouring farms or rural markets. This seedhas the lowest quality ranking. No guidelines arefollowed and no systematic seed selection is carriedout. Since most farmers select small, leftover tubersfor use as seed, and consume or sell the largerones, yields are progressively lower in the followingseasons.

    More than 90 percent of the seed potatoes usedin Kenya come from informal sources. Furthermore,informal sector seeds are often of very low quality,owing to years of degeneration. This type of seedis heavily infested with accumulated pests anddiseases (especially bacterial wilt Ralstoniasolanacearum and viral diseases). Not only doesthis seed produce very low yields (Gildemacher et

    al ., 2009a), but the buildup of pests and diseasesafter years of unbroken cycles contributes to thespread of diseases in other farmers elds.

    Demand, supply, distribution and use of good-quality seed potatoes

    Factors affecting the demand for, access to and useof improved seeds include:

    farmers perception of the potential forimprovements in yield and quality;

    the cost of seed and other inputs (e.g. fertilizerand pesticides);

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    relative prices for different crops; farmers forecast of weather conditions; the effectiveness of promotional campaigns; the efciency of the distribution system (and

    cost of reaching seed distribution and retailoutlets); and

    the availability of credit.

    Basic seed production increased from 9.6 tonnes in2001 to almost 60 tonnes in 2008, while certiedseed production increased almost tenfold (Table 3).This level of certied seed production is, however,far below the estimated 30 000 tonnes/yearrequired to meet demand. Recent data indicate thatless than 2 percent of seed potato requirements aremet by certied seed. Scarcity of good-quality seedremains, therefore, a major constraint to improvingpotato productivity in Kenya.

    2.4 Marketing and trade

    Potatoes are currently marketed through informalvalue chains that add limited value to the nalproduct. The sequence of transactions is dominatedby a multiplicity of intermediaries, with very littlecooperation or integration, and practically nostandards or regulations. Mechanical damage,contamination, microbial infestation and spoilageare common.

    Notwithstanding, market research has identieda series of well-dened marketing channels linkingthe major potato-producing areas with rural andurban markets (Figure 3).

    Most ware potatoes are packaged in extendedbags, which are supplied by traders and arecapable of holding 130280 kg of tubers. Farmers,their families and sometimes hired labourers packand deliver the bags to assembly points locatedalong feeder roads. Loading and ofoading the bagsis back-breaking work that adversely affects thehealth of handlers. The heavy sacks are frequentlydropped or dragged, which results in damagedtubers. Additional marketing costs include:

    open air market space rentals; the cost of bags; sewing the bags; the wages of loaders and off-loaders; and operating capital.

    Factors affecting national seed pota to demand in Kenya

    Area under potato production = 150 000 ha/year Seed rate = 2 tonnes/ha Levels of awareness and training Other factors

    However, the recommended rate of seed renewal is once everyfour seasons, i.e. once in two years, and only about 10 percentof potato growers have shown any level of awareness orwillingness to buy seed at the current price.

    TABLE 3

    Production of various categories of seed in Kenya, 20002011Year 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011

    Basic seed(tonnes)

    37.3 24.6 16.2 8 21.9 35 60.9 77.5 59.2 64 84.3 100.8

    Certied seed(tonnes)

    52.8 119.8 22.3 54.3 103.3 67.3 235.3 483.2 n.a. 500 600 500

    Clean seed 1 (tonnes)

    n.a. n.a. n.a. n.a. n.a. n.a. n.a. n.a. n.a. 1 200 1 500 1 500

    1 Estimates from various reports including the seed potato master plan.

    Source: KARI-Tigoni Annual Reports

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    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    Of the various expenses associated with ruralassembly of potatoes, trucking charges arethe biggest component owing to high fuel andmaintenance costs and the deplorable condition ofrural feeder roads (Kirumba et al ., 2004).

    Potato producers face enormous challenges interms of marketing logistics, physical infrastructureand market information. Given their small scale,geographic isolation and limited bargaining power,the vast majority of potato producers are negatively

    affected by high transaction costs, lack of pricetransparency, quality losses and shrinkage or waste(Kirumba et al ., 2004; Gildemacher et al ., 2009b).

    Although standards for production and marketingof potatoes have been established through theMinistry of Agricultures Legal Notice No. 44 (2005),they have yet to be fully implemented. Marketingregulations require that potatoes be packaged insisal or jute bags with a maximum capacity of 110 kgof potatoes and with netting at the top to allow forinspection of the tubers by prospective buyersand others. This regulation is reinforced by LegalNotice No. 113 in the form of adaptive by-laws ofthe Ministry of Local Government stipulating that no

    local authority may allow the sale of potatoes usingextended (i.e. 130280 kg) bags in any urban,municipal or city market.

    FIGURE 3

    Marketing channels for potatoes harvested in Nyandarua County

    Source: Kirumba et al ., 2004

    Potato producers(harvesting, sorting)

    Ruralbrokers / Assemblers

    Transporters / Wholesalers

    Rural markets20 440 tonnes

    Muranga

    Nyeri

    Kirinyaga

    20 440 tonnes

    Retailers Ambulants

    Rural consumers

    Nairobi

    Mombasa

    102 200 tonnes

    8 176 tonnes

    Agents

    Residents AmbulantsRetailers

    RestaurantsHotelsInstitutions

    Retail stores

    Urban consumers

    Urban markets110 376 tonnes

    93% (131 816 tonnes)

    7%

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    In practice, the traditional extended bag remainsthe most common form of packing potatoes fortransport and sale. Moreover, traders typically pay aprice per bag corresponding to the standard weight(i.e. the requisite 110 kg), despite the fact that thebags often hold more.

    Potatoes are normally transported in 3.5- to7-tonne trucks that carry 50 bags of potatoes,although 12-tonne trucks with a capacity of up to100 bags are sometimes used. Traders hire truckseither individually or jointly depending on theiroperating capital and the season. When quantitiesof potatoes are low or roads are impassable,transportation from the interior is usually by tractor,bicycle, donkey, handcart or motorcycle. There is noshipment of potatoes by rail.

    Major markets for potatoes are located in largeurban areas, such as Nairobi, Mombasa, Nakuruand Kisumu. Because potatoes are bulky and havea high moisture content, transport costs are high,and farmers closer to the major markets benetmore than those in remote areas. Most roads linkingprimary production market centres with intermediatecentres are generally in poor condition.

    Participants in the various marketing channelsinclude a range of end-users:

    producers rural and urban consumers institutional buyers (e.g. hotels, restaurants,

    schools and hospitals) processors exporters

    Some recent estimates indicate that only 2 percentof all traded potato produce is sold throughsupermarkets (Hoefer and Maingi, 2005).Supermarkets are, nevertheless, becoming

    increasingly important outlets for processed potatoproducts and a highly visible potential partnerin efforts to modernize potato marketing andconsumption.

    Open air markets, small shops, kiosks andhawkers are currently the most important salesoutlets for fresh tubers. Wholesale potato marketingin major consumption centres (e.g. Nairobi) tendsto be dominated by relatively few traders. Tradingarrangements are informal and the lack of market

    transparency suggests wholesalers occupy astrategic position in the value chain and havedisproportionate inuence over price formation andthe associated marketing margins. At the same time,

    the vast majority of municipal retailers handle verysmall volumes that push up their marketing costs,thereby increasing the price spread between thefarmgate and urban consumers.

    There is little use of information and

    communications technologies (ICTs) in the potatosubsector. Communication in potato marketingmainly entails mobile phone calls between majorurban centres. Traders communicate constantly withother middlemen about prices and volumes sold andnegotiate nancial arrangements before shipmentsare made. Some market information is transmitted viaradio broadcasts. Where communication networksare poor, word of mouth is used by farmers, brokersand traders for market updates. The Governmenthas recently invested in an extensive national bre

    optic cable network, which is expected to improveInternet connectivity and lower the cost of accessinginformation online.

    Potatoes grown in Kenya are destined almostentirely for the domestic market. There are, however,negligible exports of ware potatoes to Seychelles.There is also some informal, cross-border trade withthe United Republic of Tanzania, the Sudan andUganda. Such informal trade is largely oppor tunisticand typically takes place during short-term,seasonal windows. Small quantities of processedpotato products (e.g. crisps, chevra and chevda)are exported to the United Kingdom and the UnitedStates of America. Some processed potato productsare imported from South Africa, and frozen Frenchfries are imported from European countries suchas Ireland. At present, therefore, potatoes cannotbe considered a foreign exchange earner for thecountry, although domestic production saves foreignexchange by reducing the need for imported food.

    Kenya does not export certied seed, although

    requests have been received from countries, suchas Burundi, Eritrea and the United Republic ofTanzania. An insignicant small volume of mini-tubers has been shipped to neighbouring countries,such as Rwanda, Somalia, Uganda and the UnitedRepublic of Tanzania.

    An important recent development in the potatoindustry is the signing of an agreement between theKenya Plant Health Inspectorate Services (KEPHIS)and the Netherlands Ministry of Economic Affairs,

    Agriculture and Innovation aimed at improving thequality of seed potatoes available for purchase inKenya. Under this arrangement, the NetherlandsGovernment and KEPHIS are expected to facilitate

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    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    private sector exports of seed potatoes from theNetherlands to Kenya. However, the agreement hasgenerated controversy: some local potato industryexperts argue that imports of seed potatoes fordirect planting by farmers are likely to result in theintroduction of diseases, such as Dichaya spp. andlate blight mating type 2, which have to date notbeen reported in Kenya. The experts recommendthat specic measures and protocols, informed by athorough pest risk analysis and economic analysis,be put in place to ensure effective disease and pestsurveillance and control. They also recommendcapacity-building to strengthen the phytosanitaryand regulatory facilities of the relevant Kenyaninstitutions.

    2.5 Consumption, utilization anddemandBased on 2005 production and population data,annual average per capita consumption of potatoesin Kenya is about 29.6 kg. This is relatively lowcompared with Europe (87.8 kg) but double theaverage for all of Africa (13.9 kg). Potatoes areconsumed boiled, fried, mashed or in stews. Urbanresidents are the countrys main consumers and thereason for the soaring demand for ware potatoesand processed products, such as chips and crisps in

    restaurants and bars (Kirumba et al ., 2004; Tesfayeet al ., 2010). However, whether consumption isincreasing due to massive growth of the urbanpopulation, or is a reection of per capita increases,is less clear. Fresh consumption is common in thoserural areas where potatoes are grown.

    Processing is currently limited to the productionof snack foods, such as crisps and chevra. At retaillevel, potatoes are mainly prepared and consumedas chips in restaurants, bars and takeaway outletsin Kenyas major urban centres (Tesfaye et al .,2010). Responding to consumer demand for qualityprocessed products, some 40 local processorsproduce potato crisps and several large companiesproduce frozen potato chips for sale in leadingsupermarkets and some hotels. However, thelimited available data suggest that the volumes ofraw material these industrial processors handle arefairly minor compared with the quantities of freshpotatoes peeled and fried by bars and restaurants.Those utilization patterns are consistent with otherdeveloping countries (Scott and Zelada, 2011),given the low cost of labour, the high price of frozenpotato products and the meagre incomes of the vastmajority of urban consumers.

    Packaging of potatoes is poorly developedexcept in the case of crisps and frozen chips. Smallquantities of fresh potatoes are packaged and soldin net bags in some markets and supermarkets.Some retailers sell their potatoes in polythene bags(usually 12 kg). Ware potatoes are not packaged inpaper bags at present.

    Kenya has an expanding food processingindustry, driven by its growing urban population,changing population structure, new eating habitsand increased tourism. The industry requirespotato varieties with better processing qualities(for example, Kerrs Pink and Dutch Robjin aresuitable for crisps, Roslin Tana and Nyayo forchips) to replace the old traditional varieties thatare susceptible to bacterial and viral diseases. At

    least one processor imports processing varietiesfrom Egypt mainly for better traceability. Others arecalling for imports of suitable varieties to meet theirneeds for better-quality raw material for processing.

    Trends in producer prices

    Potato supply at local level normally follows localrainfall patterns. Supply is highest during harvestand lowest during planting. Prices are determinedby, and vary with, supply and demand, seasonality,the state of marketing channels and potato quality.Normally prices follow a seasonal pattern: high atthe start of planting, then declining gradually assupplies increase to reach their lowest level at themain harvest time before starting to rise again assurpluses are sold off (Figure 4).

    Farmgate prices are affected by supply anddemand, as well as the distance to wholesalemarkets and the poor state of the rural feederroads. Itinerant brokers base the prices they offergrowers on the anticipated resale of those tubers

    through wholesalers to consumers in urban centres.Producers tend to accept the traders stated termsof sale because they are not in a strong position toinuence selling prices for a variety of reasons:

    meagre market surpluses geographic isolation limited access to information need for cash little adherence to farmers associations (that

    could enhance their weak negotiating position)

    There are seasonal and spatial variations in theprices of red and white potato varieties (see Figures 4and 5). For example, in 2011, the average monthlyretail price of red-skinned potatoes in Nairobi was

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    USD 0.190.49/kg (KES 1 7004 600/110 kg),while the price of white-skinned varieties wasUSD 0.190.59/kg (KES 1 8005 600/110 kg)

    Farmgate prices are sometimes 50 percent lowerthan prices in urban markets. In 2011, averagewholesale prices for potatoes were highest in TaitaTaveta market (averaging KES 3 110/110 kg) andlowest in Nyahururu market (KES 1 194/110 kg) see Figure 5. However, potato prices reported by theMoA lend themselves to interpretation. While pricesare reported per bag, the weight of the bags variesconsiderably and the actual price per kilogram issubject to wide variability. It is therefore not easy todetermine with any degree of precision the difference

    between prices at farm level and those paid byconsumers, the real price differentials betweenmarkets, or the effective cost of raw material forprocessing.

    Potential for earning income and foreignexchange

    At present, Kenyas total potato imports and exportsare negligible. Some informal, unrecorded trade

    takes place with the United Republic of Tanzaniaand Uganda, with potatoes sent from productionareas in Kenya to Mwanza in the United Republicof Tanzania. These are private-sector shipments and

    largely reect seasonal production patterns, as wellas trucking access to markets on both sides of theborder. Overall, however, Kenya is a net importer ofpotatoes, and particularly of ware potatoes duringspecic months of the year. Annual volumes areextremely modest no more than 5 300 tonnesin recent years according to FAOSTAT. In addition,a few dozen tonnes of processed potato productsare currently being imported from South Africa andEgypt. These imports could easily be replaced bylocal supply, which would not only help farmers

    earn more income but also help the country save onforeign exchange.

    There is also potential for increasing exports of freshpotatoes, processed products and seed potatoes ofall categories beyond the very modest volumes nowbeing shipped (Figure 10). However, Kenyas potatoproduction is characterized by seasonal gluts andwaste, punctuated by periods of short supply. Efforts

    Jan. Feb. Mar. Apr. May

    Red potatoes

    June Aug. Sep. Oct. Nov. Dec.

    White potatoes

    K E S

    1 000

    2 000

    3 000

    4 000

    5 000

    6 000

    0July

    Source: MoA

    FIGURE 4

    Average monthly retail prices for red- and white-skinned potatoes in Nairobi, 2011

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    A POLICYMAKERS GUIDE TO CROP DIVERSIFICATION: THE CASE OF THE POTATO IN KENYA

    to increase exports of ware potatoes should focus,rst, on stabilizing supplies and improving the qualityof the tubers available within the country as part ofa long-term process to increase competitiveness in

    potential export markets. While Kenya is exportingmini-tubers, current seed production is insufcientto satisfy domestic demand. A number of remedies,including use of rapid seed multiplication methods,are being undertaken. However, developing a potatoexport industry will take years of sustained effort tomaintain quality control as the volumes producedand sold grow over time and extend to growers indifferent parts of the country. The breeding of newervarieties to meet export quality demands for seed,fresh ware and processed potatoes is a technical

    possibility. However, the scarce resources available,and the strong domestic demand for potatoes,make it advisable to focus development efforts oncommercial opportunities in the domestic market inthe years ahead, also because increased productionof potatoes can help save foreign exchange byreducing food imports.

    2.6 Research and extension

    Most of Kenyas potato research is undertakenby the public sector at the Kenya AgriculturalResearch Institute in Tigoni, in collaboration with theInternational Potato Center (CIP), local universities,agrochemical companies, processors, farmersand KEPHIS. KARI-Tigoni, a national agriculturalresearch centre, has the mandate to carry outresearch on all aspects of the potato and to makeavailable recommended breeders seed to seedgrowers for further multiplication. The programmecarries out research in various areas:

    agronomy breeding crop protection food processing post-harvest technology pest and disease control seed research development of sustainable seed systems socio-economics technology transfer

    FIGURE 5

    Average wholesale prices for potatoes in selected markets in Kenya, 2010

    0

    500

    1 000

    1 500

    2 000

    2 500

    3 000

    3 500

    Nairobi Mombasa Kisumu Nakuru Kakamega Taveta Nyahururu

    P r i c e

    ( K E S p e r

    1 1 0 k g

    b a g

    )

    Market

    White potatoesRed potatoes

    Source: MoA

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    Basic and applied research on major pestsand diseases including bacterial wilt and virusesis carried out at the KARI National AgriculturalResearch Laboratories in Kabete (KARI-NARLKabete) in collaboration with Tigoni, the agriculturalfaculties of various universities and CIP.

    The Ministry of Agriculture is the main providerof extension services to the potato subsector, butdelivery is inadequate owing to lack of staff andfunding. There is no signicant private sector or civilsociety involvement in extension service deliveryfor the potato in Kenya. Potato projects (e.g. thoseimplemented by the Kenya National Federationof Agricultural Producers, KENFAP) also providetechnical assistance to farmers within their projects.However, the linkages between research, extension

    and farmers remain weak in general. Public-privatepartnerships are found mainly in the area of seedproduction, but they too are modest.

    2.7 Value chains

    In addition to production constraints, majorweaknesses in the subsector beyond the farmgatehave been identied in recent research on potatovalue chains (Kirumba et al ., 2004; Gildemacher etal ., 2009b). There have been efforts to strengthen thechains in the areas of seed production, marketing,policy development, farmer empowerment and thereorientation of research to the Agricultural ProductValue Chain (APVC). Indeed, KARI and otherdevelopment agents have adopted APVC approachesin research and development interventions.

    However, greater endeavours are necessary tostrengthen the chains so that the crop can full itsrole and contribute to the delivery of the 10 percent

    annual economic growth rate envisaged by thecountrys long-term development blueprint, KenyaVision 2030.

    FIGURE 6

    Causes of current status and drivers to targeted status of the potato subsector in Kenya

    Causes of current status1. Low-quality seed (> 90%)

    2. Limited number of suitable varieties

    3. Low input use

    4. Low awareness and lack of information

    5. Poor marketing infrastructure

    6. Limited technologies and know-how

    7. Low added value

    8. Poor post-harvest management practices

    9. Inadequate regulatory and policyframework

    10. Low private sector involvement

    11. Limited technical expertise

    12. Lack of development plan

    13. Low budgeterary support

    14. Limited and uncoordinated research anddevelopment activities

    Drivers to targeted