**Assessment of Seed-Sub Sector Policy in Nigeria**

**P. Kormawa, E. Okorji, R. Okechukwu**

International Institute of Tropical Agriculture

PMB 5320, Ibadan, Nigeria

# Abstract

This study analyses Nigeria\'s seed sector policy by determining the
effectiveness of the various bodies in the performance of their
responsibilities, the effectiveness of prevailing regulatory mechanism
as well as the appropriateness of the organization and implementation
structures. Information was generated mainly from review of secondary
data as well as from a Key Informants Survey (KIS) at both policy and
industry levels. Data collected were analysed using descriptive
statistics, trend, and cost returns analyses.

The results showed that the organization and implementation structures
are appropriate for effective implementation. However, the various
bodies involved have not performed creditably. Quantities of certified
seeds are inadequate, production of breeder and foundation seed is low,
and seed distribution and information dissemination networks are poor.
Improved varieties are released slowly and this enhances the dominance
of the low-yielding local varieties. There are adulterated seeds due to
poor implementation of seed quality regulatory mechanisms. Effective
implementation of the seed policy was reportedly constrained largely by
inadequate trained manpower and financial resources, as well as
institutional problems. Requirements for certified seeds far outweighs
the supply, however, effective demand is less than 10% of the
requirement for all crops considered.

Profitability analysis of the private seed industry showed that seed
production is viable. However, the profitability level is comparatively
low. This resulted mainly from the use of inadequate quantities of
production inputs due to high costs, macroeconomic instability, low
demand, and unhealthy price competition with the public seed sector.

Recommendations for improvement include strengthening the National
Agricultural Seed Council (NASC), increased production of breeder seeds,
decentralisation of foundation seed production, increased production and
distribution of certified seeds. Both human and institutional capacity
building should be pursued simultaneously in order to improve on the
efficiency of the seed sub sector. Aggressive promotional activities on
certified seed use in order to create greater awareness and demand among
farmers. This could be done, through field demonstrations, adequate
publicity, field days, etc. Provision of improved rural infrastructure
would encourage private seed companies to expand sales networks to rural
areas.

Table of contents

[Abstract 2](#abstract)

[List of Tables 6](#list-of-tables)

[List of Figures 6](#list-of-figures)

[List of Appendices 6](#list-of-appendices)

[1. Introduction 7](#introduction)

[1.0 Overview of Nigeria agriculture and agricultural policy
7](#overview-of-nigeria-agriculture-and-agricultural-policy)

[1.2 Functions of the National Agricultural Seed Council
11](#functions-of-the-national-agricultural-seed-council)

[1.3 The Problem 13](#the-problem)

[1.4 Objectives of the study 15](#objectives-of-the-study)

[1.5 Data collection and approach 16](#data-collection-and-approach)

[2. Implementation of the seed sector policy
17](#implementation-of-the-seed-sector-policy)

[2.1 Overview of seed policy environment
17](#overview-of-seed-policy-environment)

[2.1.1 Organisational structure and responsibilities
17](#organisational-structure-and-responsibilities)

[2.1.2 Implementation structure 20](#implementation-structure)

[2.1.3 Resource availability 22](#resource-availability)

[2.1.4 Activities and activity level analysis
23](#activities-and-activity-level-analysis)

[3.0 Constraints resulting from ineffective implementation of seed
policy
27](#constraints-resulting-from-ineffective-implementation-of-seed-policy)

[4.0 Seed production, processing and marketing at the industry level
29](#seed-production-processing-and-marketing-at-the-industry-level)

[4.1 Organisational structure of the seed industry
30](#organisational-structure-of-the-seed-industry)

[4.1.2 Seed production arrangements 30](#seed-production-arrangements)

[4.1.3 Seed processing 32](#seed-processing)

[4.1.4 Quality control 33](#quality-control)

[4.1.5 Seed marketing and distribution
33](#seed-marketing-and-distribution)

[4.2.2 Seed pricing 35](#seed-pricing)

[4.2 Constraints and Prospects of the Private seed companies
35](#constraints-and-prospects-of-the-private-seed-companies)

[4.2.2 Prospects 36](#prospects)

[5.0 Seed demand, supply and profitability analysis
37](#seed-demand-supply-and-profitability-analysis)

[5.1 Approach 37](#approach)

[5.2 Estimated seed requirement 38](#estimated-seed-requirement)

[5.3 Demand for and supply of seeds 39](#demand-for-and-supply-of-seeds)

[5.4 Profitability of private seed enterprises
45](#profitability-of-private-seed-enterprises)

[6. Conclusion and recommendations 48](#conclusion-and-recommendations)

[6.0 Conclusions 48](#conclusions)

[6.1 Recommendations 48](#recommendations)

# List of Tables

[Table 1 Operating zones and secretariat of National Agricultural Seed
Council 19](#__RefHeading___Toc33188003)

[Table 2 Research institutes and their mandate crops
21](#__RefHeading___Toc33188004)

[Table 3 Foundation seed production by NSS, in mt. (1980-1991)
25](#__RefHeading___Toc33188005)

[Table 4 Private seed companies registered with NSS, 2000
29](#__RefHeading___Toc33188006)

[Table 5 Estimated seed requirement (mt) for selected crops in Nigeria
(2000-2005)\* 39](#__RefHeading___Toc33188007)

[Table 6 Demand (mt) for certified seeds in Nigeria, 1994-2001
40](#__RefHeading___Toc33188008)

[Table 7 Supply (mt) of certified seeds in Nigeria (1994-2001)
42](#__RefHeading___Toc33188009)

[Table 8 Demand projections (mt) for certified seeds, 2002-2006
43](#__RefHeading___Toc33188010)

[Table 9 Breeder and foundation seed production (Kg) of selected crops,
1994-1998 44](#__RefHeading___Toc33188011)

[Table 10 Annual cost and return analysis for the seed industry
47](#__RefHeading___Toc33188012)

# List of Figures

[Figure 1 Structure of the agricultural seed policy implementation.
19](#__RefHeading___Toc33189275)

[Figure 2 Production and distribution of improved seeds in Nigeria
22](#__RefHeading___Toc33189276)

[Figure 3 Private seed sector marketing in Nigeria.
32](#__RefHeading___Toc33189277)

[Figure 4 Private sector seed distribution network
34](#__RefHeading___Toc33189278)

# List of Appendices

[Annex: 1 Institutional roles and responsibilities in the national seed
system 55](#__RefHeading___Toc33189977)

[Annex 2: A Report on the stakeholders' workshop
56](#__RefHeading___Toc33189978)

# 1. Introduction

# Overview of Nigeria agriculture and agricultural policy

Before Nigeria's independence and in the early 1960s, agriculture was
the mainstay of the economy and accounted for over 50% of the Total
Gross Domestic Product (CBN 1991). Over 70% of the nation's labor force
was employed in the agricultural sector that also provided the nation's
food and raw materials for the growing industries. Nigeria's government
provided little support which was concentrated on export crops such as
cocoa, groundnut, palm produce, rubber, and cotton, as self-sufficiency
in food production seemed not to constitute any problem (Abdullahi 1999;
FMAWR&D 1989). Agricultural production over this period was
predominantly traditional, as farmers made use of mainly local varieties
of crops and livestock and adopted mostly cultural practices and
implements in their production.

By late 1960s and early 1970s, there were signs of problems existing in
the agriculture sector. Shortages in food supply and increases in food
prices, for example, were noticed. By the mid 1970s the contribution of
agriculture to the nation's GDP had declined remarkably to about 26% and
the food deficit gap had widened significantly. There were also
shortfalls in government revenue from agriculture, in foreign exchange
earnings from agricultural exports. This situation was attributed to the
devastation of many farmlands during the Nigerian Civil War, 1967-1970;
the diversion to the oil sector to the neglect of the agricultural
sector, drought in some parts of the country, migration of labor from
the agricultural sector, low agricultural output, rising food prices,
and increasing population. There were also the effects of government
fiscal and monetary policies (FDA 1989; Okorji 1989; Abdullahi 1999).

In a bid to revitalise the agricultural sector and salvage the situation
the government initiated several policies and agricultural development
programs and projects in context with three successive national
development plans executed 1970-74, 1975-80 and 1981-85. These included
the National Accelerated Food Production Program, Operation Feed the
Nation, Green Revolution, and the creation of River Basin Development
Authorities, and Agricultural Development Projects (ADPs). The need to
transform traditional agriculture through the adoption of modern farm
technologies was realised and incorporated in these programs. Modern
farm technologies are known to be technically and economically more
efficient than the traditional system (Goldsworth 1965; Falusi 1973;
Akinola, 1979; Ejiga 1990).

Despite these efforts, the performance of Nigeria's agricultural sector
was still poor. The food supply demand gap widened, food prices rose
tremendously; and agriculture's contribution to GDP declined to about
23% by the mid 1980s (CBN 1991). Experience from these policies,
programs and projects, however, convinced the government that there was
no alternative to well-designed and articulate agricultural policies and
instruments for promoting agricultural growth and development in Nigeria
(FMAWR&D 1989). In pursuance of this, the first comprehensive
agricultural policy was formulated in 1985. The policy instruments,
which were to remain valid for the next 15 years, were composed of
macroeconomic policies, agricultural sector policies, and policies for
the support services. The macro-economic policies included pricing,
trade, exchange rate, and agricultural land policies. The
sector-specific policies included food production, input supply, and
subsidy policies while the support service policies included
agricultural technology generation and extension, agricultural credit,
insurance, produce marketing, and research.

The ultimate goal of Nigeria's agricultural policy is the attainment of
self-sustaining growth in all the subsectors as well as the realisation
of the structural transformation necessary for the overall socioeconomic
development of the rural areas. The specific objectives of the
agricultural sector policies include the following

(i) Self-sufficiency should be attained in basic food commodities with
    particular reference to those food commodities which consume
    considerable shares of Nigeria's foreign exchange and which can be
    produced within the country.

(ii) Production of agricultural raw materials should be increased to
     meet the growing needs of an expanding industrial sector.

(iii) Production and processing of export crops should be increased to
      increase their foreign exchange earning capacity and to diversify
      the country's export base and sources of foreign exchange.

(iv) Agricultural production, processing, storage, and distribution
     should be modernized through the infusion of improved technology
     and management so that the sector can be more responsive to the
     demand of developments in the other sectors of the economy.

(v) Increased rural employment opportunities should be created through
    improvements in infrastructure facilities so as to productively
    absorb an increasing labor force.

(vi) The quality of life of rural dwellers should be improved through
     the provision of social amenities such as potable water and
     improved health and educational facilities.

(vii) Protection of agricultural land resources from drought, desert
      encroachment, soil erosion, and flood should be improved (FMAR&D
      1989; Edache 1999).

Much emphasis was placed on the food crop subsector in view of the
widening gap between food demand and the supply, rising food prices, low
food intake, hunger and related problems. Hence the major objectives of
the food crop production policy were to attain self-sufficiency in crop
production, and to improve on the level of technical and economic
efficiency in food crop production. This was to be achieved through the
introduction and adoption of improved technologies, more efficient
utilization of farm resources, reduction in the risks and uncertainties
associated with food crop production, and the modernization of the
structure and organization of food crop production (FMAR&D 1989).

Input supply, which includes seeds, water, land, fertilizer and
agro-chemicals, was identified as one of the strategies for achieving
food self-sufficiency. Of all yield-enhancing inputs in crop production,
seeds give the most dramatic and most cost-effective return on
investment. Improved seeds have provided 50% of the productivity gains
in agriculture. The other 50% has come from improvement in management,
including timeliness, best use of fertilizer, crop protection measures
and equipment (Shobowale 1994; Gupta 1994; Joshua 1999; Echekwu 1999;
Louwaars and Marrewijk 1999; Adamu 2000).

The development and use of high yielding seed varieties has been the
technological force behind the reduction of rural poverty, successful
Green Revolutions, and abundant food at prices profitable for farmers
and affordable to the populace in most developing countries,
particularly China, India, southwest Asia, the Pacific, and many parts
of Latin America and the Caribbean (Tripp1995; Joshua 1999; Louwaars and
Marrewijk 1999). In Nigeria, the National Seed Service Unit (NSS) was
created in 1975 with a mandate of producing foundation and certified
seeds as well as to arrange for seed certification. Due largely to
increased awareness by farmers of the superiority of improved seeds over
local (Echekwu 2000), the demand for improved seeds rose so much that
NSS was finding it increasingly difficult to satisfy the farmers. The
ADPs had to complement the efforts of NSS in seed production. They
started to produce their own improved seeds and to multiply on their own
seed farms any improved seeds they could obtain from the NSS, the
research institutes, and emerging private seed organizations (Cheema et
al. 1994).

International and national research centers in Nigeria have developed a
number of high yielding and improved seed varieties and hybrids but the
benefits of using improved seeds have not been maximized. Available data
indicate, among others, inadequate availability and use of such seeds.
With the aim to promote and stimulate increased access to improved high
yielding and quality seeds, as well as the development of a dependable
seed industry, to regulate and control the registration of released
varieties, the Federal Government of Nigeria in 1992 promulgated the
National Agricultural Seed Decree (Decree No 72, 1992). The decree also
paved way for establishing the National Agricultural Seed Council. This
Decree thus provides the legal backing to the seed policy by regulating
the various aspects of seed production, marketing, and quality control
activities in Nigeria. The national seed policy formulated in 1992
provides guidelines for the development of the seed sub sector. The
goals of the policy are, to:

a)  Support varietal improvement, testing, registration, release, and
    multiplication of released varieties.

b)  Improve the quality of seeds sold to farmers.

c)  Re-orient operations of public sector agencies along commercial
    lines.

d)  Encourage private sector participation in seed operations through
    appropriate policies and promoting activities (Joshua, 1999; NSS,
    2000).

# 1.2 Functions of the National Agricultural Seed Council

The functions of the NASC as provided for in the 1992 seed decree are as
follows:

a)  To analyse and propose programs, policies, and actions regarding
    seed development and the seed industry in general, including
    legislation and research on issues relating to seed testing,
    registration, release, production, marketing, distribution,
    certification, quality control, supply and use of seeds in Nigeria,
    importation and exportation of seeds, and quarantine regulations
    relating thereto.

b)  Propose improved management system and procedure relating to the
    administration of seed activity and advise the Federal Government on
    the organization, management, and proper financing of seed programs.

c)  Analyse the market and prices of seeds.

d)  Control, supervise and approve the activities of the following
    committees established by or pursuant to the decree, that is:

    i.  The crop variety registration and release committee.

    ii. The seeds standards committee.

    iii. The seed industry and skill development committee, and

    iv. Such other committees as may be established, from time to time,

e)  Advise the national research system on the changing pattern of seed
    demand and farmers' needs.

f)  Monitor and evaluate the achievement of the national seed system and
    recommend improvements thereto.

g)  Encourage the formation or establishment in Nigeria of seed
    companies for the purpose of carrying out research, production,
    processing and marketing of seeds; and

h)  Perform such other related functions as may be required of the
    council, from time to time (FRN 1992).

For effective performance of these functions, the membership of the
council was drawn from a large frame of experts in the field. These
include the Director General of the Federal Ministry of Agriculture,
Water Resources and Land Development, Director General of the
International Institute of Tropical Agriculture (IITA), Directors of the
Federal Department of Agriculture (FDA), Department of Agricultural
Science, four representatives of the State Ministry of Agriculture; two
representatives of the Nigeria Seed Industry; a representative of Seed
Growers Association, the Cooperatives Society of Nigeria, a
representative of the Federal Ministry of Finance; private financial
lending institutions; the Head of Unit, NSS and a representative of the
Department of Plant Breeding and Seed Technology in a Nigerian
university. The decree constituted four bodies under the NASC to
facilitate the development of the seed industry. These are as follows: -

-   The National Seed Service Unit

-   The Crop Variety Registration and Release Committee

-   The Seeds Standards Committee.

-   The Seed Industry and Skill Development Committee, and

-   The Department of Training, Information and Seed Extension

Each of these bodies has specific responsibilities assigned to it for
the attainment of the objectives of the National Seed Policy.

# 1.3 The Problem

Nigeria's governments introduced several agricultural development
programs and projects during the decade 1970-79. Most of these programs
were aimed at improving agricultural production in the country through
the introduction and adoption of modern technologies. Some of these
programs and projects came with different legislations and were meant
for development of specific sub sectors of agriculture. This was the
case for the promulgation of the National Seed Decree in 1992 and
eventual setting up of National seed council, with the main objective of
promoting and stimulating the development of a dependable seed industry.
The council was to regulate, and control the registration of released
varieties.

Despite these efforts and arrangements, the availability of improved
seed varieties to rural farmers is still very low. Not only are farmers
having difficulty in obtaining the necessary inputs on time and in good
quality, but also they are paying very high prices (IFDC/IITA/WARDA/FGN,
2000). Current estimates indicate that only between 5 and 10% of total
seeds required to meet total grain production are provided (Obinyan,
1994; PRSD, 1996). Farmers in many communities are yet to have access to
improved seeds. Most seeds planted by farmers come from local sources
including farmers' own crop, neighbors, and relatives, or from local
markets (Cromwell et al. 1992; Jaffee and Srivastava 1994; Louwaars and
Marrewijk 1999; Osborn and Faye 1991; Bal and Douglas 1992). Many of the
improved seed varieties reportedly have been in use for between one and
two decades. The problem in most cases is due to the lack of awareness
by farmers of the advantages of improved varieties. As a result their
potential yield is no longer attainable especially under the poor seed
management system adopted by the farmers. Farmers have continued to use
these varieties in the absence of replacement stock of improved
varieties. Improved seeds often take a very long time to get to farmers,
and adulteration has been reported in many communities. Consequently,
many farmers have resorted to the use of local seed varieties that are
readily available and relatively cheap.

Private seed companies particularly large scale seed companies are very
few, this is largely because some have stopped production, and there are
scarcely any new entrants in the seed business. Apart from the
large-scale private seed companies, there are emerging small to medium
scale seed enterprises comprising of seed producers and dealers.
However, these are mostly not registered with the NSS. These
observations and situations suggest the existence of problems in
Nigeria's seed system. These are in spite of the agricultural seed
policy, the legal framework, and the institutional arrangements put in
place to ensure success of the seed system. This raises pertinent
questions, which this study intends to address: -

a)  To what extent are the policies and programs on seed implemented?

b)  To what extent are the regulations and practices implemented?

c)  How effectively have the various bodies performed their
    responsibilities?

d)  How effective are the organization and implementation structures?

e)  How profitable is seed production and marketing at the industry
    level?

# 1.4 Objectives of the study

With the aim to develop a sustainable and efficient private seed supply
system in Nigeria, this assessment was conducted with the following
objectives: -

a)  Determine the extent to which seed policies and programmes are
    implemented.

b)  Determine the effectiveness of the various bodies in the
    implementation of their responsibilities.

c)  Examine the effectiveness of the prevailing regulatory mechanisms
    pertaining to seed quality control.

d)  Determine the appropriateness of the organization and implementation
    structures.

e)  Identify the constraints to effective implementation of the seed
    policy and programmes.

f)  Estimate the seed requirement in Nigeria, and

g)  Make recommendations for improvement, based on the findings.

Meeting the food demand for the growing population in Africa is a major
concern to both national governments and international organizations
(Kormawa 1999). In Nigeria, agriculture is the largest employer of
labor, the major source of industrial raw materials, and the source of
income for the majority of the population. Increased agricultural
production would therefore impact positively on the nation's economy.
Seeds, which embody the genetic potential of plants, determine the upper
limits on plant yield and therefore the productivity of other
agricultural inputs (Jaffee and Srivastava 1994; Usman 1994; Louwaars
and Marrewijk 1999). Regrettably, seeds have not been accorded the
rightful position in Nigeria, as yet, compared to other inputs (Utoh
1994; Shobowale 1994).

National Agricultural Seed Policy (1992) provides guidelines for the
development of the seed sector. Effective implementation would have,
among others, ensured the availability of adequate quantities of
improved seeds to the farmers at the right time and quality as well as
at affordable prices. This situation is yet to be attained. This calls
for an examination of the various frameworks, structures, regulatory and
other mechanisms put in place for the implementation of the policy.

# 1.5 Data collection and approach

Data were generated largely from a review of secondary sources as well
as from a key informant survey at both policy and industry levels.
Secondary data sources included the following: Policy documents on
agriculture; National Agricultural Seed Decrees; Agricultural Input
Policy; Development of seed industry; Seed marketing; Seed quality
control and enforcement; Seed imports; Regulations on genetically
modified organisms (GMOs) etc, and Volumes of seed trade (by formal
sector). This was complemented by a key informant survey involved
discussions with staff of the relevant bodies, units and industries.
Information collected at the policy level included: organization
structure; implementation structure; human capital (adequacy and
number), financing; activity level analysis (efficiency); matrix of
expected annual output versus actual output; other services delivered;
seed quality issues and major constraints regarding effective
implementation of regulatory mechanisms.

Information collected at the industry level included: Organization and
Structure; Seed Production Arrangements; Seed Processing (protection
etc); Seed Marketing and Network (distribution); Quality control and
Major problems encountered by the seed companies.

Data collected were analyzed using mainly descriptive statistics. In
addition efficiency measures, trend analysis and cost-return analysis as
appropriate were applied to achieve the objectives of the study.

# Implementation of the seed sector policy

# 2.1 Overview of seed policy environment

The seed policy in Nigeria was given a legal status with the enactment
of the Agricultural Seed Decree No 72 of 1992. The Decree established
the National Agricultural Seed Council to promote and stimulate the
development of dependable seed industry, regulate and control the
registration of released varieties, protect the farmers from the sale of
poor quality seeds, facilitate the production and marketing of high
quality seeds in Nigeria, and provide legal backing for official
testing, certification, sales, importation, exportation, and use of
seeds (FRN, 1992). The successful implementation of the seed policy,
therefore, would depend, to a large extent, on the extent to which the
National Agricultural Seed Council and the different bodies (also
established by the Decree) perform the above activities and other
responsibilities. While the decree provided for "Institutional Council",
this is not being implemented.

Nigeria's seed policy is similar to that of India, and could be expected
to have comparable results. The seed program in India has developed and
progressed so well that it can be ranked among the best in Asia. The
co-ordinated improved programs contribute to a constant flow of superior
new improved varieties and hybrids, which are enthusiastically adopted
by the traditional farmers. The National Seed Corporation had a
pronounced impact on the various disciplines of the seed industry. The
Seed Act (1966) and the Seed Rules (1968) provided a sound foundation
for the orderly development of the seed industry. There was effective
training program on seed testing, seed production, processing and
certification. The comprehensive seed-testing program was supported by a
network of well-staffed and well-equipped seed testing laboratories.
Seed processing was introduced as a new technology to India, and
positive measures were taken to manufacture seed processing equipment
locally (Al-Jibouri, 1969).

# 2.1.1 Organisational structure and responsibilities

The National Agricultural Seed Council is charged with the
responsibility for the overall policy guidelines and monitoring of the
development of the national seed system. Five bodies (the National Seed
Service Unit, the Crop Variety Registration and Release Committee, the
Seeds Standards Committee, the Seed Industry and Skills Development
Committee, and the Department of Training, Information and Seed
Extension) were also established to work for the council in facilitating
the development of the Seed Industry. Figure 1 shows the organizational
structure for the implementation of the National Agricultural Seed
Policy.

At the state level, the functions of the various implementing bodies at
the national level are performed by the States Seed Coordinating
Committees. These committees are in existence in some states under the
chairmanship of the Commissioners of Agriculture, with the Program
Managers of the ADPs as Secretary.

Each body or unit is responsible to the council on matters pertaining to
its mandate. The council has five operating zones and five zonal
secretariats (Table .1). By this arrangement the council's presence
would be felt in all the states of the Federation and Abuja and the
Council would, among others, readily monitor the seed development
activities in the states. Hence the organisational structure is
appropriate for effective performance.

The various institutions involved in the national seed systems and their
roles and actions are presented in Annex 1. From the Annex, the roles
and responsibilities of each institution is clearly defined. However,
the roles performed by the different institutions affect the performance
of the other.

[]{#__RefHeading___Toc33189275 .anchor}Figure 1 Structure of the
agricultural seed policy implementation.

![](media/image1.wmf){width="5.760416666666667in"
height="3.5166666666666666in"}

[]{#__RefHeading___Toc33188003 .anchor}Table 1 Operating zones and
secretariat of National Agricultural Seed Council

  ------------------------ ----------------------------------------------
  Zone                     States covered

  Central (Ilorin)         FCT Abuja, Benue, Kwara, Kogi, Niger

  North East (Jos)         Adamawa, Bauchi, Borno, Plateau, Taraba, Yobe

  South East (Umudike)     Abia, Akwa Ibom, Anambra, Cross-River, Enugu,
                           Imo, Ebonyi, Bayelsa, Rivers

  South West (Ibadan)      Delta, Edo, Lagos, Ogun, Ondo, Osun and Oyo

  North West (Zaria)       Jigawa, Kaduna, Kano, Katsina, Kebbi and
                           Sokoto
  ------------------------ ----------------------------------------------

Source: FRN, 1992

# 2.1.2 Implementation structure

There are three broad classes of seeds are recognized for seed
production in Nigeria, these are, the breeder, foundation and the
certified seeds. Breeder seed is the seed of a newly developed variety
that is produced under the supervision of the plant breeder. Foundation
seed is the progeny of the breeder seed and it consists of the
generations of seed between breeder and commercial seed. Commercial or
certified seed is the seed that is produced and sold to the farmer. Seed
production and multiplication involves the multiplication of the breeder
seed into commercial or certified seed that will be distributed to the
farmers.

There are four groups of agencies in Nigeria involved in the seed
industry.

a)  Crop Research Institutes and the Universities

b)  National Seed Service

c)  Agricultural Development Projects' Seed Multiplication Unit/
    Contract growers

d)  Private Seed Companies

The Agricultural Research Institutes/Universities undertake plant
breeding and breeder seed production research. These
institutes\\universities have contributed to the development of several
high yielding varieties, hybrids of crops such as maize, rice, cowpea,
soybeans to mention a few.

Agricultural research institutes with crop development focus in Nigeria
as well as their mandate crops are shown in Table 2. There are six
national research and three international research institute in Nigeria
that are directly involved with seed production. Activities of the
national research institutes were being co-coordinated by the Ministry
of Science and Technology, however this has now been transferred to the
Ministry of Agriculture and Rural Development. Each of these institutes
has well-developed plant breeding and variety development programmes.

Breeder seeds from the research institutes are passed on to the NSS for
foundation seed production. The NSS provides Foundation Seeds to the
ADPs and private seed companies (NSS, 2000). Both the ADPs and the
private seed companies produce certified seeds, either from their own
farms, or through contract farmers/out-growers, or both. The
implementation structure is appropriate for effective performance as it
not only ensures linkages between research institutes and NSS unit, but
also provides alternative sources of certified seeds to the farmers.

[]{#__RefHeading___Toc33188004 .anchor}Table 2 Research institutes and
their mandate crops

  ------------------------------ ----------- -------------------------------
  Crop Research Institute        Location    Mandate Crops

  Institute for Agricultural     Zaria       Sorghum, maize, cotton,
  Research (IAR)                             sunflower, groundnut, and
                                             cowpea

  National Institute for         Ibadan      Vegetable, horticultural and
  Horticultural Research                     ornamentals
  (NIHORT)                                   

  National Crop Research         Badeggi     Rice, beniseed and sugar cane
  Institute (NCRI)                           and soybean

  Lake Chad Research Institute   Maiduguri   Wheat, barley and millet
  (LCRI)                                     

  Institute for Agricultural     Ibadan      Maize and kenaf
  Research and Training (IAR&T)              

  National Root Crop Research    Umudike     Cassava, yam, Irish potato,
  Institute (NRCRI)                          cocoyam, ginger, and sweet
                                             potato

  International Institute of     Ibadan      Cowpea, yam, maize, soybean,
  Tropical Agriculture (IITA)                cassava, banana/plantains.

  International Crop Research    Kano        Sorghum, millet, pigeon pea and
  Institute for the Semi-Arid                groundnut
  Tropics (ICRISAT)                          

  West African Rice Development  Ibadan      Rice.
  Association (WARDA)                        
  ------------------------------ ----------- -------------------------------

Source: NSS, 2000

# 2.1.3 Resource availability

Resources (human capital, finance, etc) are needed for effective
performance of an activity or project. It is pertinent to mention, at
this point, the difficulty encountered in determining the level of
financial resources available to the various units. The council by
composition has a team of experts drawn from relevant areas of
agriculture and related fields, including Federal Ministry of Finance,
private financial lending institution, seed growers associations, and
cooperative societies. The council is empowered to appoint such other
persons as members of its staff as it considers necessary. By this
arrangement, the National Agricultural Seed Council should not lack
human resources required for effective execution of its duties. The
Decree also made financial provisions for the council (FRN, 1992).
However, there is no clear indication of a budgetary head or sub-head
for the operations of the council.

[]{#__RefHeading___Toc33189276 .anchor}Figure 2 Production and
distribution of improved seeds in Nigeria

![](media/image2.wmf){width="5.136805555555555in" height="4.0125in"}

Although there is a core of experienced and trained officers within the
system at the top level, there is inadequate number of adequately
trained personnel at the field level. In particular, skills needed for
seed business planning and management, marketing, forecasting seed
demand and supply, and technical knowledge about seeds are inadequate at
the field level. In the NSS, for example, it was reported that although
the key personnel were adequate, a few of the staff (seed officers)
needed to be trained for enhanced performance as well as in seed law
enforcement.

Financial resources were reported to be inadequate in all the units.
Inadequate logistics was also reported in all cases. The other bodies,
however, indicated that they did not have adequate staff to effectively
cover their responsibilities in the fields; a situation that derives
from the restriction on employment and lack of in-service training for
serving staff.

# 2.1.4 Activities and activity level analysis

The activities performed derive from the responsibilities assigned to
the council and the bodies. Assessment of the activity level performance
in the implementation process is usually determined on the basis of
actual output versus expected output. However, the assessment being
reported was based on key informant survey report and may not be
exhaustive.

[The National Agricultural Seed Council (NASC)]{.underline} has, among
others, the responsibility to propose improved management system and
procedure relating to the administration of seed activity and to advise
the Federal Government on the organization, management and proper
financing of seed programs. There are no documented reports on the
performance of the NASC. However, key informant survey report showed
that the Council rarely met, and one of the very few meetings held
annually was in the month of February when farming activities usually
commence in the month of January in many areas. For that year's farming
season, for instance, any decisions arrived at would be belated.
Similarly, irregularity in meetings by the NASC adversely affected the
performance of other responsibilities including, for instance,
registration and approval for variety release, and seed quality control
activities. With poor performance of these and other key
responsibilities, it can be conclusively said that the NASC performed
far below expectation.

[The NSS Unit]{.underline} has three sub-programs, these are as follows:

> i\) Seed Industry and Technical Support Service Programme
>
> ii\) Seed Certification and Quality Control Programme; and
>
> iii\) Seed Production, Processing and Storage Programme

Each of these programmes has two or more sub-programmes. The key
informant survey report, however, shows that the NSS (like similar
institutions in Nigeria) is beset with problems that hinder effective
performance of many of its activities. While the NSS strives to meet
farmers' seed requirements, its efforts to facilitate production of
large quantities of foundation seed has been guided by the low demand
from certified seed producers. Production of foundation seeds by NSS
out-growers is always guided by indents from certified seed producers.
Table 3 shows the annual foundation seed production by NSS. The figures
do not indicate the limit that NSS foundation seed growers can produce
on annual basis. The low and inconsistent demand for foundation seed
stock by certified seed producers has caused the NSS in some years to
carry over foundation seed stock into the following season.

[]{#__RefHeading___Toc33188005 .anchor}Table 3 Foundation seed
production by NSS, in mt. (1980-1991)

  ----------- ------- ------- ------- ------- ------- ------- ------- ------- ---------- --------- ---------- --------
              Year                                                                                            

  Crops       1980    1981    1982    1983    1984    1985    1986    1987    1988       1989      1990       1991

  Rice        650     1,647   1,270   1,390   914     1,212   500     1,315   367.88     274       134.75     64.26

  Maize       500     1,300   1,233   1,447   1,561   1,845   1,877   1,845   1103.91    960.8     648.81     110.86

  Sorghum     300     200     253     321     225     263     300     441     54.03      152       98.0       8.95

  Millet      100     100     161     215     130     153     170     487     32.56      82        45.0       30.6

  Wheat       40      140     50      10      103     50      100     \-      283        105       20.0       12.5

  Groundnut   130     60      50      15      70      50      500     381     213.35     226       21.0       4.32

  Cowpea      \-      100     60      11      53      65      80      351     21.22      34.9      22.73      12.08

  Soybean     \-      3       5       8       10      10      25      255     25.33      24        10.0       5.79

  Total       1,720   3,550   3,082   3,417   3,066   3,648   3,552   2,175   2,101.28   1,858.7   1,001.09   249.36
  ----------- ------- ------- ------- ------- ------- ------- ------- ------- ---------- --------- ---------- --------

Source: NSS, 1992

[Crop Variety Registration and Release Committee]{.underline} has the
responsibility for making recommendations to the council on matters
relating to the registration and release of any given crop variety and
the declaration of a crop variety as a notified kind. It is supposed to
have representations in different zones and states. Though the committee
has been established under the seed decree, it has not yet been
inaugurated. The functions of this committee are being performed under
decree 72 of 1992 enabling a committee to meet regularly. Information
from the Registrar of the National Varietal Release Committee confirmed
that as to date, there is no variety duly nominated to the committee
that has not been released officially. Moreover, in order to accelerate
the release process, the committee has reduced the period of release
from between 3 and 4 years to 2 and 3 years. With this reduced period,
an outstanding variety can be released within 2 years.

[Seeds Standard Committee]{.underline} is responsible for making
recommendations to the council on matters relating to seed standards and
the pertaining procedure. There are reportedly many cases of
adulterated, unviable, and infested seeds sold to farmers as a result of
ineffective control by the relevant body. Unidentifiable seeds are
displayed at various stores and markets for sale, an act that could have
been effectively checked. Although the committee has reportedly put in
place various standards and regulations in place to guard against these
practices, it has not been possible to thoroughly enforce the law, thus
the committee has not performed as expected and the regulatory
mechanisms relating to seed quality control are not effectively
implemented.

[Seed Industry and Skills Development Committee]{.underline} is
responsible for making recommendations to council on seed industry and
skills development these matters. It was difficult to come by any record
or document showing the activities and performance of this committee.

[Department of Training, Information and Seed Extension]{.underline} is
supposed to be responsible for training and information dissemination.
Documents on the activities of this committee could not be sourced. It
was reported that this Department is not yet in place as the Seed
Council it is supposed to operate under is yet to be in place. To fill
this vacuum, the NSS has been providing some skeletal services in
providing training, disseminating information and providing some
extension services. Some farmers in some communities were reportedly
trained on seed production by extension agents of the ADPs (through the
NSS). Most of these farmers could not continue after the training
because they were not provided with the relevant inputs. Farmers
generally have limited information about improved seeds, seed
availability, and seed prices, etc, indicating a poor performance by
this committee.

In general, the various bodies charged with the responsibilities
associated with effective implementation of the seed policy have not
performed creditably. Problems persist on seed production, seed
marketing, quality control and farmer utilization. Local seed varieties
still dominate as a result of the inadequate production, and ineffective
distribution of certified improved seed varieties, slow release of
improved varieties, and a poor information dissemination network. Hence,
the policies and programmes on seed input are yet to be implemented to
any reasonable extent.

# 3.0 Constraints resulting from ineffective implementation of seed policy

Virtually all the units are engulfed in one problem or another,
resulting in observed poor performance. The major constraints emanating
from the inefficient implementation of the seed policy are listed and
briefly discussed in the following paragraphs.

[Low production of breeder seeds]{.underline}: Breeder seed production
involves long-term research input, requiring skill and expertise,
materials, and equipment. For example the inadequate funding of the
research institutes and the NSS makes it difficult for them to engage
effectively in varietal development and evaluation on a more regular
basis. The output of the research institutes is far below what is
required to meet the growing requirement for improved seeds and seed
technology. Not only are funds reportedly inadequate, they are usually
disbursed late, resulting in distortions in the breeding process.
Acquisition of the necessary materials and equipment has been a problem
and staff working with such inputs end up demoralised after much delay.

[Poor seed certification and quality control arrangements]{.underline}:
The laboratories required for seed testing, seed certification, and
quality control are not adequate, and those available are poorly
equipped. The central seed laboratory at the NSS headquarters is yet to
be properly equipped and put into use. Trained staff to conduct the
exercise in many localities is inadequate in number. As a result there
have been cases of unlabelled seeds being sold in markets and stores,
and many farmers have had the misfortune of buying adulterated seeds.

[Poor seed distribution arrangement]{.underline}: Improved seeds
produced by the public sector were sold to the farmers through farmers'
supply companies, agro service centers, ADPs, cooperative societies,
etc. Presently, some of these centers are not working in some states,
with the result that farmers in such areas now get seeds mostly from
private seed companies (if any) and from seed traders/dealers in the
open market. Such farmers pay exorbitant prices, and also run greater
risks of buying unviable seeds due to poor storage and handling by the
seed traders.

[Reduced activity of NSS]{.underline}: The NSS has a pivotal role to
play in the development of the nation's seed industry, including the
production of foundation seeds, supervision, monitoring and quality
control, etc. While the NSS has a cadre of experts, activities have been
slowed down or hampered by inadequate and delayed funding to perform
quality control functions and research support services. It was reported
that many of these activities are no longer performed effectively due to
inadequate funds. The NSS, for instance, has not been able to produce
adequate quantities of foundation seeds from the breeder seeds received
from the research institutions. Also, inadequate number of trained
personnel at the field as well as insufficient resources for training
and technical assistance to contract growers has constrained the
development of the seed market. Although the unit has representations at
the regional and state levels, its activities especially in terms of
seed quality control and seed certification have also been reduced due
to inadequate trained staff and financial constraints. These results in
low output, and hence inadequate supply of certified seeds to the
farmers, adulterated and unlabelled seeds on the market.

[Lack of resources for training and information
dissemination]{.underline}: The units charged with training manpower to
handle the technical aspects of the seed industry are constrained by
inadequate finance, equipment, and logistics. It was reported that staff
training has been stalled; hence they lack staff to assist in seed
testing, quality control, and in providing technical assistance to
contract growers. Information about the seed industry, especially about
the availability of improved seed varieties, is not readily disseminated
to the farmers due to inadequate extension agents.

[Poor seed distribution networks and rural infrastructures]{.underline}:
Most rural areas are inaccessible due largely to the poor nature of the
roads. This hindered the movement and performance of staff whose
activities are required in the rural communities. Supply of improved
seed varieties in such rural areas is also affected. Hence, farmers in
such communities are deprived of the benefits of improved technology.
One of the consequences of poor rural roads is the high cost of input
delivery. The few dealers who find their ways into such rural areas
often exploit the farmers through charging high prices for their stock.
The NSS has put in place the Community Seed Development Program with aim
to diffuse the improved seeds into rural communities. However, this
scheme is not yet available nation wide.

# 4.0 Seed production, processing and marketing at the industry level

An examination of the formal systems of seed production and processing
in developing countries shows the typical institutional pattern to be a
mixture of public and private sector activities. It is only in Argentina
and Chile that seed multiplication and processing are entirely handled
by the private sector (Jaffee and Srivastava 1994). In Nigeria, the
development of the seed industry was carried out by the public sector
until about mid-1980. The development of superior higher yielding maize
hybrids by IITA and national scientists encouraged private sector
participation in the seed industry development (Joshua, 1999).
Initially, the private seed companies were owned by multinationals but
there were later replaced by indigenous private seed companies. The
private seed companies identified from records of NSS registered with
NSS as at 2000 and the types of seeds marketed are shown in Table 4.
Among the companies listed, the UAC Seed (Nig) Ltd. has closed down and
is no longer operational.

[]{#__RefHeading___Toc33188006 .anchor}Table 4 Private seed companies
registered with NSS, 2000

+--------------------+--------+----------------------------------------+
| Company name       | Lo     | Type of seeds marketed                 |
|                    | cation |                                        |
+--------------------+--------+----------------------------------------+
| Premier Seeds      | Zaria  | OPV maize, rice, sorghum, cowpea,      |
| (Nig.) Limited     |        | millet, wheat                          |
|                    |        |                                        |
|                    |        | Hybrid maize and sorghum, Assorted     |
|                    |        | vegetables                             |
+--------------------+--------+----------------------------------------+
| UAC Seed (Nig.)    | Zaria  | OPV maize, rice, cowpea and sorghum    |
| Limited            |        |                                        |
+--------------------+--------+----------------------------------------+
| Alheri Seed (Nig.) | Zaria  | OPV maize and rice, Hybrid maize       |
| Limited            |        |                                        |
|                    |        | Assorted vegetables                    |
+--------------------+--------+----------------------------------------+
| UT Seed, Limited   | Jos    | OPV maize and wheat                    |
+--------------------+--------+----------------------------------------+
| Savannah Seed      | Jos    | OPV maize and wheat, Hybrid maize      |
| Enterprises        |        |                                        |
| Limited            |        |                                        |
+--------------------+--------+----------------------------------------+

Source: NSS, 2000

# 4.1 Organisational structure of the seed industry

Private seed companies are limited liability companies registered under
the Companies Act and with the NSS. Being independent economic entities,
the companies organizational and management plans are vested in the
Board of Directors, which is the highest decision-making body of the
company. The organizational structures of the seed industries follow a
similar pattern. A typical seed company is headed by the General Manager
who is in-charge of the day-to-day running of the business, and is
responsible to the board. The company has different units engaged with
specialized activities. These include administration/accounts,
production, processing, quality control, commercial/sales, and research
and development units or departments. A Manager/Head of Unit who is
responsible to the General Manager heads each unit.

Staff of the commercial/ sales unit are posted to such offices located
in different cities and are responsible to the Commercial Manager at the
Head Office. Production of seeds by the company also takes place in
locations outside the Head Office/Headquarters. The companies in
addition to using out growers also produce seeds on their own farms. In
such circumstances, staffs of the production unit are posted to reside
in such places for more effective monitoring and supervision of
activities going on in the fields. The research and development unit is,
in addition to research/laboratory - based activities, is the extension
arm in some of the companies. Most processing and quality control
activities of the companies take place at the Headquarters.

# 4.1.2 Seed production arrangements

The private seed companies obtain breeder seeds from the research
institutes, and foundation seeds from the NSS. They produce foundation
seeds from the breeder seeds from research institutes. Certified seeds
are produced from the foundation seeds (Fig.3). Production of certified
seeds is done at the company's own farm and by out growers/contract
farmers. Some private seed companies in the past obtained quantities of
foundation seeds from the ADPs; a practice that facilitated the
company's increased production of certified seeds. This arrangement is
no longer easy because of the reduced activity of the ADPs due to poor
funding. There is adequate monitoring and supervision of seed production
activities on both the company's farms and those of the contract
farmers.

This is aimed primarily at producing high quality seed for the overall
benefit of the company. The main characteristics that constitute quality
and play a major role in the success or failure of crop establishment
are: (a) the seeds must be genetically pure, representing the species or
cultivars in question, morphologically well developed, undamaged and
exhibiting characteristics typical of the variety, (b) cleaned,
sometimes graded, and then tested for purity and germination capacity,
and (c) free from pests and diseases (Muliokela and Kaliangile 1989).
Thus, the seed companies have adequate and well-organized arrangements
to ensure production of adequate quantities of high quality certified
seeds for use by Nigeria's farming population.

[]{#__RefHeading___Toc33189277 .anchor}

Figure 3 Private seed sector marketing in Nigeria.

![](media/image3.wmf){width="5.767361111111111in" height="5.0in"}

# 4.1.3 Seed processing

The private seed companies undertake the processing of their seeds
produced both by their staff and the out growers. The processing plants
are located at the Headquarters, and consist of modern machines with
specialized functions for seed cleaning, sizing, grading, dressing,
separating, and packaging. Trained staff of the companies operates these
machines and carry out the different processing activities.

Most of the machines are imported and there is usually the problem of
spare. Efforts are, however, being made to fabricate, locally, most of
these parts especially the ones that wear out quickly. This will
conserve funds for the company as well as creating job opportunities for
fabricators.

The companies package their products to meet the varied requirements and
preferences of consumers. The research and development departments of
the companies work on the information provided by the commercial/sales
departments regarding consumers' desires and tastes.

# 4.1.4 Quality control

Some of the private seed companies reported that their seed quality
control activities commence even before seed cultivation takes place. It
involves screening of eligible farms and farmers, knowing the seed field
crop history, ensuring authentic source of foundation seed planted,
maintenance of adequate isolation, and rouging of undesirable plant
types.

Seed quality control in the private seed companies is usually in two
phases, internal and external. The company's monitoring team usually
undertakes the internal seed quality control, while the external seed
quality control is done by the NSS. The NSS carry out quality control
checks and issue seed certification to the private seed companies.

# 4.1.5 Seed marketing and distribution

Seed marketing is a vital link between the seed producers and the
farmers that ultimately use the seeds (Sastra, 1969). The private seed
companies have developed distribution network for the marketing of their
products. A typical seed sales distribution network of the private seed
companies is illustrated in Figure 4.

Farmers, co-operative societies and NGOs often obtain their seeds
through the ADPs/government agencies. Farmers usually prefer this
channel. According to them, the prices are comparatively lower than
those charged by distributors/retailers and State Offices. Seeds from
the ADPs are more likely to retain their purity than those, which passed
through the distributors/retailers, for instance. Moreover, the ADPs are
closest to the farmers, in the rural areas. Developing high yielding
seeds alone without making them available and accessible to farmers in
rural areas will not yield the intended benefits (Sastra1969; Bishawand
and Kugbei, 1997; IFDC/IITA/WARDA/FGN 2000).

[]{#__RefHeading___Toc33189278 .anchor}Figure 4 Private sector seed
distribution network

![](media/image4.wmf){width="5.763194444444444in"
height="3.747916666666667in"}

# 4.2.2 Seed pricing

Seed companies take into consideration their direct and indirect costs,
profit margin and marketing factors into consideration in pricing seeds.
Direct costs include the costs for seed production, processing and
distribution. The indirect costs are those expenses that are not
directly related to the volume of seeds produced or sold. These include
management costs, taxes, insurances, building maintenance and repairs,
and depreciation. Taking all these into consideration, the company's
purchase price for seed produced under contract are normally negotiated
between the company and the seed growers (group/or association). While
the private seed companies take these into consideration in fixing seed
prices, seeds produced through the ADPs or community seed development
programs do not, thus seed prices of seeds from the public seed
producers are generally lower than those of private seed companies.

# 4.2 Constraints and Prospects of the Private seed companies

**4.2.1 Constraints**

The private seed companies in Nigeria are faced with certain problems
that have impeded effective participation and investment in the
industry. The major problems identified by key-informants include:

[High costs]{.underline}: Seed industry requires huge capital
investments, especially in infrastructure and machinery. Materials for
production and processing are equally expensive. Raising such capital is
difficult, especially where there are no credit facilities and/or
subsidies.

[High risks]{.underline}: The industry, like most other agricultural
enterprises, is full of risks and uncertainties. Production of certified
seeds, for instance, is carried out under unpredictable climatic and
other conditions. A crop failure resulting from any of the natural
hazards (drought, flood, attacks by pests and diseases) could have a
devastating effect, especially when an insurance system is not
guaranteed.

[Macroeconomic instability]{.underline}: Fluctuating exchange rates and
high level of inflation discourage investments generally. The private
seed companies, which import some of the machines and chemicals, are
often victims of such instability, which results also in high interest
rates and depreciation in the value of money.

[Low demand for seed]{.underline}: The demand for improved seed is still
relatively low, due mainly to poor promotion and marketing efforts, high
prices, and the inability of farmers to purchase complementary inputs,
especially fertilizer.

[Lack of credit facilities]{.underline}: Private seed industries need
financial support to expand production and enjoy the economies of scale.
This support, which could be in form of provision of credit,
incidentally, is not easy to come by.

[Delays in releasing improved seeds]{.underline}: Seed development
activities are time-bound. Delays in releasing improved varieties, for
instance, are at a cost to the seed industries whose committed resources
would be redundant.

[Poor implementation of seed regulations]{.underline}: The body charged
with this responsibility has not been effective with the result that
private seed industries are usually left at the mercy of unscrupulous
dealers/agents.

[Unhealthy price competition with the public seed sector]{.underline}:
Government often subsidizes the prices of seeds produced by the public
seed sector, resulting in higher prices for seeds from the private seed
industries. Consequently, the public seed sector enjoys greater
patronage than the private seed industries.

# 4.2.2 Prospects

The national seed policy is in line with regional and international
standards, and makes provision for the withdrawal of public sector
agencies in favour of private sector in key areas of the seed industry.
The private sector has the potential to supply inputs efficiently and
cost-effectively. The capacity of the public sector in the production
and distribution of certified seeds has been constrained by the
deteriorating financial position of the participating institutions.
Consequently, the availability to farmers of improved seeds has been
inadequate to support anticipated accelerated growth in crop production.

According to Bishaw and Kugbei (1997), regardless of the progress made
in the technical aspects of seed production, several important
constraints still limit the effectiveness of the formal seed sector.
Some of these include ineffective seed policies, inappropriate seed
legislation, inappropriate approaches to variety development, an
inflexible variety evaluation and release system, seed quality control
measures, infrastructure and pricing policies, weak institutional
linkages, and limited human resource development.

It has been reported that the development of private seed companies is
vital because of their reliability, sustainability, cost-effectiveness,
responsiveness to farmers' needs, greater commitment to quality and
generation of employment (Joshua 1997). The private seed sector by all
indications is a better partner for the production of improved certified
seeds and distribution to farmers. Conducive macro policy environment,
improved access to finance, a developed and implemented regulatory
framework, timely release of seed varieties, as well as improved human
capital for market development are required.

# 5.0 Seed demand, supply and profitability analysis

# 5.1 Approach

The dearth of statistical agricultural data especially in developing
countries has been reported (Okorji 1989; Shobowale 1994). In Nigeria,
data on agricultural production, demand, supply, marketing, and
consumption parameters are lacking or inadequate, and often distorted.
The data generated for this study, for instance, provided varied figures
for the same parameters in a few cases, while in some others the
information was incomplete. To overcome these shortcomings, adjustments
were therefore made, and mean values often taken in the cases of
variations in certain figures.

# 5.2 Estimated seed requirement

Determination of seed requirement for the crops produced in a country is
necessary because it provides a guide on production policies and
decisions in respect of scale of operations, resource needs, etc. for
the government, research institutes, and other establishments
responsible for the provision of the nation's agricultural seeds. Seed
requirements are determined mainly on the bases of land area intended to
be cropped, seed rate, as well as technology and management systems in
use.

The national and international research institutes in Nigeria produce
different kinds of crops depending on their mandate (Table 2). For the
purpose of this study, emphasis is placed on such crops as maize, rice,
sorghum, millet, cowpea, soybean, and wheat. Table 5 presents the
estimated seed requirements of selected arable crops in Nigeria,
2000-2005.The seed requirement for each of the crops increases over
time. This is probably due to the expected increase in volume of output
to meet the rising food demand in the country. This will be achieved
through increasing the scale of operations by bringing in more land
under cultivation as well as an increased adoption of improved seed
varieties, among others. Farmers are becoming increasingly aware of the
superiority of improved seeds over their local varieties (Muliokela and
Kalingile 1989; Falusi 1994; Echekwu 1999; Utoh 1994; Cheema et al.
1994).

Variations, however, exist in the rate of increase in the seed
requirement of the various crops. This is related to the level of
importance attached to these crops by the farmers largely in terms of
economic returns and socio-cultural values, which influence the land
allocation pattern, and cropping system adopted (Okorji and Obiechina
1985). Maize, for instance, has high economic returns relative to most
of the other crops; hence the land area under its cultivation is
comparatively high (Utoh 1994; Shobowale 1994). Millet and sorghum have
large areas of land allocated to their production although their seed
rates are comparatively low. Maize, millet, sorghum, and cowpea have
rising demand for domestic and industrial uses, and farmers expectedly
put this into consideration in their resource allocation decisions.

[]{#__RefHeading___Toc33188007 .anchor}Table 5 Estimated seed
requirement (mt) for selected crops in Nigeria (2000-2005)\*

+---------+---------+---------+---------+---------+---------+---------+
|         | ## Yea  |         |         |         |         |         |
|         | r {#yea |         |         |         |         |         |
|         | r .unnu |         |         |         |         |         |
|         | mbered} |         |         |         |         |         |
+---------+---------+---------+---------+---------+---------+---------+
| Crop    | 2001    | 2002    | 2002    | 2003    | 2004    | 2005    |
+---------+---------+---------+---------+---------+---------+---------+
| Maize   | 85,000  | 90,950  | 97,317  | 104,129 | 111,418 | 119,217 |
+---------+---------+---------+---------+---------+---------+---------+
| Rice    | 40,000  | 42,800  | 45,796  | 49,002  | 52,432  | 56,102  |
+---------+---------+---------+---------+---------+---------+---------+
| Sorghum | 45,000  | 47,250  | 49,613  | 52,093  | 54,698  | 57,433  |
+---------+---------+---------+---------+---------+---------+---------+
| Millet  | 38,000  | 39,900  | 41,895  | 43,990  | 46,189  | 48,499  |
+---------+---------+---------+---------+---------+---------+---------+
| Cowpea  | 77,000  | 80,850  | 84,893  | 89,137  | 93,594  | 98,274  |
+---------+---------+---------+---------+---------+---------+---------+
| S       | 10,750  | 11,395  | 12,193  | 13,046  | 13,959  | 14,937  |
| oyabean |         |         |         |         |         |         |
+---------+---------+---------+---------+---------+---------+---------+
| Wheat   | 18,750  | 20,063  | 21,066  | 22,119  | 23,225  | 24,387  |
+---------+---------+---------+---------+---------+---------+---------+

Sources: Computed from (a) Shobowale (1994); (b) Utoh (1994); (c)
Echekwu (1999) using an annual growth rate of 5 to 7 % for the different
crops.

# 5.3 Demand for and supply of seeds

Market demand is the total volume of a product that will be bought by
consumers, at a certain period of time, in a specific location, and with
certain marketing efforts (Andrein 1995). This defines the certified
seed market under study. Among the factors that affect the demand for
improved seeds are farmer's perception of the yield or quality
advantages of improved to local seeds, the price of seed, prices of
other inputs, relative price of crops, farmer's forecast of weather
conditions, and the cost of reaching distribution/retail outlets. Demand
for improved seeds can also be influenced by the effectiveness of
promotional campaigns, the efficiency of distribution, and the
availability of credit and other complementary inputs such as fertilizer
(Falusi 1994; Utoh 1994).

The quantities of certified seeds of selected arable crops demanded in
Nigeria 1994-2001 are shown in Table 6. The table shows that demand for
all the seeds increased over the years. This is attributable to
increasing awareness of farmers about the higher technical and economic
efficiency of improved seeds over the local varieties. The extension
agencies, through their promotional activities, created awareness and
stimulated farmers' interests in adoption of improved technologies.

[]{#__RefHeading___Toc33188008 .anchor}Table 6 Demand (mt) for certified
seeds in Nigeria, 1994-2001

  --------- --------- --------- --------- --------- --------- --------- ----------- -----------
            Year                                                                    

  Crop      1994      1995      1996      1997      1998      1999      2000        2001

  Rice      3150.88   3803.04   4286.80   5161.63   6452.04   8065.05   10,081.31   12,601.64

  Maize     4035.63   4294.54   4705.66   5148.50   6435.63   8044.53   10,055.60   12,569.50

  Sorghum   993.61    1242.16   1542.64   1928.30   2410.38   3012.05   3,766.21    4,707.76

  Cowpea    1085.70   1354.96   1693.70   2117.12   2646.40   3308.00   4,135.00    5,168.75

  Soybean   1573.63   1967.22   2458.77   3071.00   3838.75   4798.44   5,998.05    7,497.56

  Millet    1086.48   1358.10   1697.62   2113.54   2644.43   3305.53   4131.91     5,164.89
  --------- --------- --------- --------- --------- --------- --------- ----------- -----------

Source: Computed from (a) Echekwu (1999) (b) NSS records using an annual
rate of 25%

The demand figures for crops such as rice, maize, and sorghum are
consistently high probably because of the relatively high level
importance attached to them by the farmers, necessitating the allocation
of large areas of land to their cultivation. The demand figures in the
Table, however, may not represent all that the farmers are willing to
buy, as availability of such seeds may be a factor determining the
quantity purchased at a given point in time.

The quantities of certified seeds of selected crops supplied to farmers
1994-2001 are shown in Table 7. The supply figures for the crops
generally increased over the years although there were decreases in the
supply of some crops in some years. The quantities of certified seeds
supplied will be influenced by factors such as availability of
foundation seeds from which certified seeds are produced, regulatory
mechanisms for the registration and release of certified seeds as well
as production and other constraints. Seed supply as a percentage of
total seed requirement, however, was only 5.4% for rice; 8.9% for maize,
4.2% for sorghum; 3.8% for soybean and only 1.2% each for cowpea and
millet.

A comparison of demand and supply figures for certified seeds of
selected crops (Tables 6 and 7) shows that demand far outweighs the
supply of all the crops over the period covered in the study. In the
case of soybean, the supply was only about 6% of what was demanded,
although for maize, it was as high as 64%.

[]{#__RefHeading___Toc33188009 .anchor}Table 7 Supply (mt) of certified
seeds in Nigeria (1994-2001)

  --------- --------- --------- --------- --------- --------- --------- --------- --------- ------------- --------
            Year                                                                            Percent seed  

                                                                                            Requirement   Demand
                                                                                            2001          in 2001

  Crop      1994      1995      1996      1997      1998      1999      2000      2001                    

  Rice      1984.27   1861.72   1007.69   1852.16   1706.62   2049.45   2190.56   2293.74   5.4           18.2

  Maize     3470.20   3730.91   4014.38   4414.32   4726.18   5175.51   6689.38   8076.63   8.9           64.3

  Sorghum   725.20    1058.76   1222.08   1372.53   1407.98   1661.17   1874.92   1963.53   4.2           41.7

  Cowpea    627.32    661.31    466.98    658.48    751.32    828.76    866.55    939.08    1.2           18.2

  Cowpea    627.32    661.31    466.98    658.48    751.32    828.76    866.55    939.08    1.2           18.2

  Soybean   255.99    271.21    288.07    331.09    356.75    365.32    416.18    427.83    3.8           5.7

  Millet    424.00    460.06    324.10    288.00    406.00    445.85    575.03    661.25    1.2           12.8
  --------- --------- --------- --------- --------- --------- --------- --------- --------- ------------- --------

Source: (a) Falusi (1994); (b) Shobowale (1994); (c) Echekwu (1999); (d)
Annual Reports of Private Seed Companies

The demand projection for improved certified seeds 2002-2006 is shown in
Table 8. However, the actual demand for the various seeds may likely be
higher than what is projected if the constraints to effective
implementation of the agricultural Seed policy are removed. Unless
adequate steps are taken to significantly increase the production and
supply of certified seeds to the farmers, the seed demand supply gap
will worsen remarkably.

The demand figures would most likely be higher than those projected if
the constraints to the effective implementation of the agricultural seed
policy and problems hindering effective promotion and marketing of
certified seeds. This also calls for greater motivation and support for
the research institutes for increased production of breeder seeds, as
well as the NSS, ADPs and private seed companies for increased
production of foundation and certified seeds.

[]{#__RefHeading___Toc33188010 .anchor}Table 8 Demand projections (mt)
for certified seeds, 2002-2006

+-----------+-----------+-----------+-----------+-----------+-----------+
|           | ##        |           |           |           |           |
|           |  Year {#y |           |           |           |           |
|           | ear-1 .un |           |           |           |           |
|           | numbered} |           |           |           |           |
+-----------+-----------+-----------+-----------+-----------+-----------+
| Crops     | 2002      | 2003      | 2004      | 2005      | 2006      |
+-----------+-----------+-----------+-----------+-----------+-----------+
| Maize     | 15,711.88 | 19,639.84 | 24,549.80 | 30,687.26 | 38,297.38 |
+-----------+-----------+-----------+-----------+-----------+-----------+
| Rice      | 15,752.05 | 19,689.06 | 24,612.57 | 30,765.72 | 38,456.25 |
+-----------+-----------+-----------+-----------+-----------+-----------+
| Sorghum   | 5,884.70  | 7,355.88  | 9,194.85  | 11,493.56 | 14,366.95 |
+-----------+-----------+-----------+-----------+-----------+-----------+
| Cowpea    | 6,460.94  | 8,076.17  | 10,095.21 | 12,619.02 | 15,723.27 |
+-----------+-----------+-----------+-----------+-----------+-----------+
| Soybean   | 9,371.95  | 11,714.94 | 14,643.68 | 18,304.60 | 22,825.84 |
+-----------+-----------+-----------+-----------+-----------+-----------+
| Millet    | 6,456.11  | 8,070.14  | 10,087.67 | 12,609.59 | 15,761.99 |
+-----------+-----------+-----------+-----------+-----------+-----------+

Source: Computed from (a) Echekwu (1999); (b) Utoh (1994); (c) NSS
Reports

The production figures of breeder and foundation seeds in the country
from 1994 to 1998 are shown in Table 9. The volume of breeder and
foundation seeds is inadequate to meet the certified seed requirements
presently, and in the future.

[]{#__RefHeading___Toc33188011 .anchor}Table 9 Breeder and foundation
seed production (Kg) of selected crops, 1994-1998

  ----------- ------ ------- ------ ------- ------ ------- ------ -------- ------ ------
              1994           1995           1996           1997            1998   

  Crops       BS     FS      BS     FS      BS     FS      BS     FS       BS     FS

  Maize       450    20500   461    22500   2800   19070   3688   21,100   NA     \-

  Rice        500    16985   500    32382   803    7800    2500   21,350   \-     \-

  Sorghum     56     1200    143    603     198    1082    3175   750      2750   \-

  Millet      15     2100    50     4950    200    1600    1700   5600     \-     \-

  Cowpea      80     8460    72     5075    251    6668    1377   1000     361    \-

  Cotton      30     2100    30     2350    1100   2587    1600   3200     1905   \-

  Groundnut   42     900     63     1000    140    2599    1545   6300     670    \-
  ----------- ------ ------- ------ ------- ------ ------- ------ -------- ------ ------

Source: Perara et al. (1999)

This suggests the need for intensified efforts by the research
institutes and the NSS to significantly increase the production of
breeder and foundation seeds, and on the part of government to urgently
address the constraints to effective performance of the activities of
the research institutes, the NSS, and other bodies involved in the
nation's seed industry development. The present seed demand and supply
figures are from the estimated seed requirement figures. Demand has to
be stimulated and supply significantly increased to meet seed
requirements as a necessary step towards the attainment of
self-sufficiency in food crop production.

# 5.4 Profitability of private seed enterprises

The seed industries produce breeder, foundation and certified seeds.
This analysis, however, emphasizes the production of certified seeds of
the selected crops. The type and level of production of certified seeds
of the selected crops varied among the industries, and over time.
Production figures for certified seeds of the crops were considered over
the period of three years (1999-2001) and average values were taken for
the industries that produced the seeds of each of the crops to enhance
analysis. Also average figures for prevailing market prices were used to
determine the value of production. There were remarkable variations in
production figures for seeds of the selected crops over the period
considered. Hence, the use of average figures was to achieve greater
representation of the situation in a typical seed industry.

The annual cost and return analysis for the seed industry is presented
in Table 10. Maize was the most important crop produced by the seed
industries both in terms of physical product and revenue realized,
followed by rice. The industries, in addition to the selected crops,
also produced assorted vegetable seeds. On the average, gross revenue of
~~N~~56,853,380 was realized from sales of seeds. Revenue from the sale
of seeds of some other crops (groundnut, cotton, etc.) was not
considered, mainly because the crops were not common to all the seed
industries.

Purchase of raw materials (parent seed, fertilizer, chemicals, etc) was
the most important item of expenditure for the seed industry. The total
fixed assets of the seed industries including land, buildings, plant and
machinery, furniture and fittings, equipment, motor vehicles, etc.
ranged between N15m and N28m. The depreciated values of these fixed
assets were used in the analysis. Administrative and financial expenses
constituted the major item of overhead costs, followed by marketing
costs. Administrative expenses include salaries and wages, motor vehicle
running expenses, transport and travelling expenses, printing and
stationery, postage, telephone and telex, audit fees, etc; while
financial expenses include interest on loans and overdrafts as well as
bank charges. Marketing costs include advertising and business
promotion, processing and packaging, carriage expenses, etc. The annual
total cost of production amounted to ~~N~~50,593,930. The net return
realised was therefore ~~N~~6,259,450. Seed production at the industry
level is thus profitable. The net-return/total cost ratio of 1:0.12
indicates, however, that investment in the seed industry gives a rate of
return of 12%, which does not compare favourably with the prevailing
interest rate for such capital investment. This probably explains why
the seed industry presently does not readily attract many investors. The
relatively low level of profit realised by the seed industry over the
period of study was as a result of certain factors, some of which are:-

[Low output]{.underline}: The output of most of the crops is relatively
low largely due to poor yields resulting from inadequate use of
production inputs especially fertilizer and agrochemicals. It was
observed in general that between 40 and 70% of the expected yield rates
was achieved.

[High cost of raw materials]{.underline}: Purchase of raw materials and
other production expenses jointly accounted for about 72% of the total
cost of production. The rising inflation in the country has increased
the prices of goods and services tremendously. This has adversely
affected the seed industry, and the consequences include, among others,
capacity under-utilization and decreased scales of operation.

[High overhead costs]{.underline}: Overhead costs accounted for about
23% of the total cost of production. Administrative costs alone
contributed about 56 percent of the overhead costs. High overhead costs
generally reduce profit margins.

The profitability of the seed industry can be significantly increased at
least to levels comparable to returns in alternative investments if
adequate quantities of relevant production inputs are employed to
increase yield and output, as overhead costs should be significantly
reduced through more prudent financial management.

[]{#__RefHeading___Toc33188012 .anchor}Table 10 Annual cost and return
analysis for the seed industry

+---------------+---------------+---------------+---+-------------------+
| Revenue       |               |               |   |                   |
+---------------+---------------+---------------+---+-------------------+
| Crop          | Output (kg)   | Unit price    | V |                   |
|               |               | (~~N~~/kg)    | a |                   |
|               |               |               | l |                   |
|               |               |               | u |                   |
|               |               |               | e |                   |
|               |               |               | o |                   |
|               |               |               | f |                   |
|               |               |               | p |                   |
|               |               |               | r |                   |
|               |               |               | o |                   |
|               |               |               | d |                   |
|               |               |               | u |                   |
|               |               |               | c |                   |
|               |               |               | t |                   |
|               |               |               | i |                   |
|               |               |               | o |                   |
|               |               |               | n |                   |
|               |               |               | ( |                   |
|               |               |               | ~ |                   |
|               |               |               | ~ |                   |
|               |               |               | N |                   |
|               |               |               | ~ |                   |
|               |               |               | ~ |                   |
|               |               |               | ) |                   |
+---------------+---------------+---------------+---+-------------------+
| Maize         | 299,966       | 110           | 3 |                   |
|               |               |               | 2 |                   |
|               |               |               | , |                   |
|               |               |               | 9 |                   |
|               |               |               | 9 |                   |
|               |               |               | 6 |                   |
|               |               |               | , |                   |
|               |               |               | 2 |                   |
|               |               |               | 6 |                   |
|               |               |               | 0 |                   |
+---------------+---------------+---------------+---+-------------------+
| Rice          | 124,245       | 120           | 1 |                   |
|               |               |               | 4 |                   |
|               |               |               | , |                   |
|               |               |               | 9 |                   |
|               |               |               | 0 |                   |
|               |               |               | 9 |                   |
|               |               |               | , |                   |
|               |               |               | 4 |                   |
|               |               |               | 0 |                   |
|               |               |               | 0 |                   |
+---------------+---------------+---------------+---+-------------------+
| Sorghum       | 68,158        | 100           | 6 |                   |
|               |               |               | , |                   |
|               |               |               | 8 |                   |
|               |               |               | 1 |                   |
|               |               |               | 5 |                   |
|               |               |               | , |                   |
|               |               |               | 8 |                   |
|               |               |               | 0 |                   |
|               |               |               | 0 |                   |
+---------------+---------------+---------------+---+-------------------+
| Soybean       | 5,225         | 115           | 6 |                   |
|               |               |               | 0 |                   |
|               |               |               | 0 |                   |
|               |               |               | , |                   |
|               |               |               | 8 |                   |
|               |               |               | 7 |                   |
|               |               |               | 5 |                   |
+---------------+---------------+---------------+---+-------------------+
| Cowpea        | 8,146         | 150           | 1 |                   |
|               |               |               | , |                   |
|               |               |               | 2 |                   |
|               |               |               | 2 |                   |
|               |               |               | 1 |                   |
|               |               |               | , |                   |
|               |               |               | 9 |                   |
|               |               |               | 0 |                   |
|               |               |               | 0 |                   |
+---------------+---------------+---------------+---+-------------------+
| Millet        | 1,268         | 90            | 1 |                   |
|               |               |               | 1 |                   |
|               |               |               | 4 |                   |
|               |               |               | , |                   |
|               |               |               | 1 |                   |
|               |               |               | 2 |                   |
|               |               |               | 0 |                   |
+---------------+---------------+---------------+---+-------------------+
| Wheat         | 860           | 115           | 9 |                   |
|               |               |               | 8 |                   |
|               |               |               | , |                   |
|               |               |               | 9 |                   |
|               |               |               | 0 |                   |
|               |               |               | 0 |                   |
+---------------+---------------+---------------+---+-------------------+
| Other seeds\* | \-            | \-            | 9 |                   |
|               |               |               | 6 |                   |
|               |               |               | , |                   |
|               |               |               | 1 |                   |
|               |               |               | 2 |                   |
|               |               |               | 5 |                   |
+---------------+---------------+---------------+---+-------------------+
| Gross revenue |               |               | 5 |                   |
|               |               |               | 6 |                   |
|               |               |               | , |                   |
|               |               |               | 8 |                   |
|               |               |               | 5 |                   |
|               |               |               | 3 |                   |
|               |               |               | , |                   |
|               |               |               | 3 |                   |
|               |               |               | 8 |                   |
|               |               |               | 0 |                   |
+---------------+---------------+---------------+---+-------------------+
| #####         |               |               |   |                   |
| Costs {#costs |               |               |   |                   |
|  .unnumbered} |               |               |   |                   |
+---------------+---------------+---------------+---+-------------------+
| Item          |               |               |   | Total             |
+---------------+---------------+---------------+---+-------------------+
| Raw materials |               |               |   | 28,626,572        |
+---------------+---------------+---------------+---+-------------------+
| Production    |               |               |   | 7,816,730         |
+---------------+---------------+---------------+---+-------------------+
| Research      |               |               |   | 1,321,288         |
+---------------+---------------+---------------+---+-------------------+
| Marketing     |               |               |   | 5,093,961         |
+---------------+---------------+---------------+---+-------------------+
| Administr     |               |               |   | 6,557,155         |
| ative/Finance |               |               |   |                   |
+---------------+---------------+---------------+---+-------------------+
| Depreciation  |               |               |   | 1,178,224         |
+---------------+---------------+---------------+---+-------------------+
| Total costs   |               |               |   | 50,593,930        |
+---------------+---------------+---------------+---+-------------------+
| Net returns   |               |               |   | 6,259,450         |
+---------------+---------------+---------------+---+-------------------+

\*Assorted vegetable seeds

# 6. Conclusion and recommendations

# 6.0 Conclusions

Nigeria's Seed Industry has not developed remarkably about a decade
after the formulation of the National Seed Policy and the enabling
Agricultural Seed Decree No. 72 of 1992. Although the structure and
implementation programmes of the Seed Policy were similar to those of
India, the situation in Nigeria has not been very successful. The
various bodies involved in the implementation of Nigeria's Seed Policy
have not performed creditably. There still exist problems associated
with non-availability of adequate quantities of certified seeds to the
farmers due to low production of breeder and foundation seeds as well as
poor seed distribution and information dissemination networks; slow
release of improved varieties which encourages the dominance of the
local low-yielding crop varieties; and the existence of adulterated,
unviable and infested seeds due to poor implementation of seed quality
regulatory mechanisms. Effective implementation of the seed policy by
the relevant bodies was reportedly constrained, among others, by
inadequate manpower and financial resources, as well as institutional
problems.

The private seed industry is viable although the profitability level is
comparatively low. This situation resulted mainly from use of inadequate
quantities of production inputs due to high costs, macroeconomic
instability, low demand, and unhealthy price competition with public
seed sector, among others. Addressing these problems effectively at both
policy and industry levels will provide the much needed push to realise
the objectives of the seed policy.

# 6.1 Recommendations

Based on the findings of the study, the following recommendations are
made to enhance effective implementation of the seed policy:

a)  Strengthening the National Agricultural Seed Council (NASC): The
    composition of the NASC aimed at bringing in as many stakeholders as
    possible and was well intended. However, implementation of the
    responsibilities has been poor, due probably to the fact that some
    members because of the nature of their jobs are not well disposed to
    attend council meetings. To this end, it is suggested that more
    professional agriculturists should be drawn from the universities,
    research institutes and the private sector into the council to
    enhance performance.

b)  Development of programme of activities for the council and other
    bodies: This entails putting in place a plan of action for the
    implementing bodies. By such programs, for instance, council and
    other meetings should be held regularly say, on a quarterly basis,
    for deliberations and decision-making. This may likely lead to the
    shortening of the time period between variety development,
    registration and release. Council at such regular meetings would
    more readily make approval for such.

c)  Provision of adequate support to council and other bodies: NASC and
    other bodies responsible for the implementation of the seed policy
    should be adequately funded for effective performance. In addition,
    the various bodies especially the Crop Variety Registration and
    Release Committee, the Seed Standards Committee, and the Department
    of Training, Information and Seed Extension should be strengthened
    through the recruitment of an adequate number of the requisite
    personnel and the provision of logistics to effectively cover their
    responsibilities in the field.

d)  Increase production of breeder seeds: For uniformity and consistency
    in quality, the NARIs should handle the production of breeder seeds
    in the country.

e)  Increase production and distribution of certified seeds: Adequate
    arrangements to increase certified seed production, distribution and
    use by farmers should be put in place. Such arrangement would
    require the strengthening of both institutional and human capacity
    at the NSS, and ADPs. Also the availability and access by farmers to
    complimentary inputs, particularly fertilizers must be guaranteed.

f)  Encouragement of private seed companies: This can be achieved
    through the provision of favourable interest rates, promotion of the
    planting of improved seeds by farmers, through demonstration plots,
    field days etc.

g)  Provision of rural infrastructure: Construction of motorable roads
    to the rural areas, for instance, would enhance the movement of farm
    inputs including improved seeds to the farmers, as well as the
    performance of activities such as information dissemination; seed
    quality control, etc., by staff of the relevant bodies.

h)  Determine national demand and supply for seed:- Actual demand and
    their determinants for various seed types in Nigeria is not
    accurately known. There is need to conduct a survey of seed
    producers and users to determine demand and supply volumes and their
    determinants.

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    Joshua, A. 1999b. The Emerging Private Seed Industries in Nigeria
    and the way forward in the millennium. Sustainable Maize Production
    in Nigeria. The Challenge in the Coming Millennium. Valenara, J.A.,
    A.M. Falaki, S. Miko and S.G. Ado eds.. Proceedings of the National
    Maize Production Workshop, July 22 - 24, ABU, Zaria SG
    2000/IAR/FMARD/ADPs. Pp 108 - 121.

    Kormawa, Patrick 1999. Food Demand Structures and Market Studies for
    IITA Mandate Crops: An Overview", Food Demand and Market Studies in
    the Drier Savanna of Nigeria. Kormawa, P. and E. Aiyedun eds..
    Proceedings of a Methodology and Stakeholders Workshop. September
    7 - 8, Kaduna. Nigeria. Pp 9 - 16.

    Louwaars, M.P. and G.A.M. Marrewijk 1999. Seed Supply Systems in
    Developing Countries, CTA.

    Muliokela, S.W. and I. Kaliangile 1995. Seed Quality Control",
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    Agriculture, Food and Fisheries, Zambia. Pp 106 - 146.

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    Nigeria: Structure, functioning, constraints and options.

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    and Availability of Certified Seed to Nigerian Farmers.

    Obinyan, E. 1994. Seed Marketing in Nigeria. Evolving Nigerian Seed
    Development Plan. Adedipe, N.O., I.A. Usman and N.S. Maini eds..
    Federal Department of Agriculture. Abuja pp 248 - 253.

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    Allocation in the Traditional Farming Systems in Abakaliki. Area of
    Anambra State, Nigeria", Agriculture Systems, Vol. 17, No. 4. Pp
    197 - 210.

    Okorji, E.C. 1989. "Demand Elasticities for Food Crops in Major Yam
    Producing Areas of Southeastern Nigeria". Unpublished Ph.D Thesis
    Department of Agric. Econs, University of Nigeria, Nsukka.

    Perara, E.N.A., P.O. Oyekan and P.M. Nyandaiti 1999. Impact of NARP
    intervention in varietal maintenance Breeder Seed Production and
    Distribution by NARIS. Paper presented at the 1999 Annual Seed
    Planning Meeting, Abuja. February 17 - 18. 9pp.

    Planning Research and Statistics Department 1996.

    Osborn, T. and A. Faye 1991. Using farmer participatory research to
    improve seed and food grain production in Senegal. Development
    Studies Paper Series, Morrilton, USA. WINROCK International for
    Agricultural Development.

    Sastry, C.P. 1969. Selling and Promoting Good Quality Seed in India
    Today. Proceedings of Seed Specialists, India International Center.
    New Delhi. Pp 243.

    Shobowale, O.J. 1994. Strategies for Fulfilling Foundation and
    Certified Seed Requirements. Evolving Nigerian Seed Development
    Plan. Adedipe, N.O., I.A. Usman and N.S. Maini eds., Federal
    Department of Agriculture, Abuja. Pp 121 - 139.

    Tripp, R. 1995. Seed Regulatory Frameworks and Resource Poor
    Farmers: A literature Review", Network Paper 51. Agricultural
    Administration Research and Extension, ODI, London.

    Usman, I.A. 1994. Welcome Address. Evolving the Nigerian Seed
    Development Plans. Adedipe, N.O., I.A. Usman and N.S. Maini eds..
    Federal Department of Agriculture, Abuja. Pp 1 - 3.

    Utoh, N.O. 1994. Seed Production Planning and Implementation,
    Evolving the Nigerian Seed Development Plan. Adedipe, N.O., I.A.
    Usman, and N.S. Maini eds.. Federal Department of Agriculture,
    Abuja. Pp 115 - 120.

    []{#__RefHeading___Toc33189977 .anchor}Equation 1 Annex: 1
    Institutional roles and responsibilities in the national seed system

####  {#section .unnumbered}

####  {#section-1 .unnumbered}

####  {#section-2 .unnumbered}

####  {#section-3 .unnumbered}

[]{#__RefHeading___Toc33189978 .anchor}Annex 2 A Report on the
stakeholders' workshop

**1.0 Introduction**

1.1 In recognition of the importance of developing a modern and formal
seed sub-sector, the government of Nigeria enacted the agricultural seed
decree (law) in 1992. The decree also made provision for the
establishment of the national seed council to implement the law through
various statutory bodies. Over the years, various interventions have
been made to promote the seed sub-sector in the country.

1.2 With funding from the United States Agency for International
Development (USAID), the International Fertilizer Development Center
(IFDC) was awarded a project "Developing Agricultural Input Markets in
Nigeria (DAIMINA). One of the major thrusts of this project is to assist
in the development of a conducive agri-input policy that will stimulate
development of efficient agri-input delivery system through the private
sector.

1.3 Based on its vast experience and contribution to the development of
the seed sub-sector in Nigeria, the International Institute (IITA) was
contracted by the IFDC to "Assess the seed sub-sector policy in
Nigeria". IITA constituted a study team that visited various
institutions and collected data with the view to:

i.  Determine the extent to which the policies and programmes on seed
    input are implemented

ii. Determine the effectiveness of the various bodies in the
    implementation of their responsibilities

iii. Examine the effectiveness of the prevailing regulatory mechanisms
     pertaining to seed quality control

iv. Determine the appropriateness of the organisation and implementation
    structures

v.  Identify the constraints to effective implementation of the seed
    policy and programmes

vi. Estimate the seed requirement in Nigeria, and

vii. Make recommendations for improvement, based on the findings.

     4.  As part of the study approach, a stakeholder's workshop was
         organized to discuss and validate the findings and
         recommendations of the study. Participants at the workshop were
         drawn from the private seed companies, the Federal Ministry of
         Agriculture and Rural Development, Research
         Institutes/Universities, USAID, and DAIMINA.

         **2.0 Opining Ceremony**

         Representatives from the Federal Ministry of Agriculture,
         agricultural research institutes, seed dealers associations and
         private seed industry and the DAIMINA project attended the
         opening ceremony.

         2.1 [Welcome Remarks by the DAIMINA Project
         Manager]{.underline}

         Dr. U. A. Alkaleri formally welcomed all the stakeholders to
         the Command Guest House Conference Center, venue of the
         workshop. He expressed delight at the turn out. The Project
         Manager commended the IITA Assessment Team for an excellent
         study conducted. He enjoined all present to contribute
         positively in the deliberations so that at the end, an
         effective implementation of the existing Seed Policy could be
         achieved.

         2.2 [Opening Remarks by DAIMINA CoP]{.underline}

     ```{=html}
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     ```
     1.  The Chief of Party, Dr. H. B. Singh, speaking on the objectives
         of the Seed Sub Sector Assessment Study, emphasized that seed
         is the major input in agriculture because only when seed is
         planted would other inputs be required. He said that at
         DAIMINA's inception and for its success, there was the need to
         first of all know the seed situation in Nigeria. To this
         effect, DAIMINA believing in the capabilities of IITA in the
         seed sector contracted IITA to carry out the study on the
         availability, production, constraints and marketing of seeds in
         Nigeria.

     2.  He also noted that in a benchmark survey conducted by the
         DAIMINA Project, it was discovered that over 60% of the seeds
         in circulation are below the potential certified quality.
         Therefore, agriculture cannot be said to increase when the
         seeds are of decreasing quality. He informed the stakeholders
         that with the approval of the MIS Project for 5 African
         countries with Nigeria as a major key player, agricultural
         trade between these countries would be enhanced and this would
         lead to improvement of agriculture in the country.

     3.  The chief of Party further revealed that only about 4 - 5% of
         the total seed used by Nigerian farmers come from certified
         sources; the balance is from the farmer saved sources as
         revealed by the assessment study. He said that only about 12%
         of the dealers contacted during the benchmark survey sell seed.
         Majority of the 12% dealers sell seed along with crop
         chemicals. In his conclusion, he stated that the assessment
         study was not intended to formulate an entirely new seed policy
         for Nigeria; rather, it was intended to make an input towards
         future improvement of existing seed policy.

         2.3 [Remarks by USAID representative]{.underline}

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```
1.  Mr. Abdulkadir Gudugi, Agricultural Economist of USAID joined the
    DAIMINA Project Manager in welcoming all the stakeholders. He
    apologized for the unavoidable absence of Dr Ravi Aulakh and Dr.
    Andrew Levin as they were preparing their end of year reports. He
    emphasized on the importance of seeds without which we would not be
    talking about agriculture.

2.  He said that this was a forum where they could approach the reports
    of the study presented by IITA and contribute meaningfully/freely to
    the success of the seed sector. He commended the efforts of the
    DAIMINA Project and said that in as much as we expect to get
    financial assistance from International organizations, they should
    also encourage support from Nigerians and the government.

    **3.0 Plenary Session**

> The chairman of the session, Dr. A. Alkaleri stressed the importance
> of the study and the need to address the issues hampering the
> development of the seed sub sector and possibly come up with
> sustainable strategy for developing the seed sub sector in Nigeria.
> This session featured the presentation of the study report titled
> "Assessment of the seed sector policy in Nigeria" by the team leader.

**3.1 Team leaders' report**

1.  In presenting his report, Dr. Patrick Kormawa of IITA began by
    introducing the need for the study. He emphasized that even though
    there was an existing Seed Policy, it was not being implemented
    properly and effectively. Some of the areas addressed in the study
    were the extent the policies, programs, regulations and practices on
    seed input are being implemented as well as their effectiveness. He
    also highlighted some of the goals and aims of the national seed
    policy. He talked also on the production/distribution of seeds in
    the country as well as constraints to effective seed production.

2.  He enumerated some of the problems being faced by the private
    sector. These were: - a) high investment cost on equipment, b) high
    risk involved in the business as sales are usually determined by
    rainfall and farmers' knowledge, c) macroeconomic instability, low
    demand of the input by farmers, d) lack of credit facilities due to
    high interest rates, e) delays in release of improved seeds, f) poor
    implementation of seed regulations and g) unhealthy price
    competition with the public sector.

3.  He said that structures for implementing the policy are in place
    with relevant experts, however, their activity at the field level
    have been constrained by a) inadequate trained human resources (seed
    officers), b) inadequate facilities and logistics and c) inadequate
    financial support.

4.  He said that the private seed Industry presently meets less than 10%
    of the National requirement and despite the availability of a seed
    policy and implementation structure, they are not expanding probably
    due to a) low demand for certified seeds, b) low prices for
    commodities and the relatively high prices of complimentary inputs

5.  Some of the prospects of the Seed Industry he noted are that the
    National Seed Policy was in line with the regional and international
    standards; and the Private sector has potential to supply seeds
    efficiently and cost-effectively.

6.  In conclusion, he recommended that:

    a.  The different bodies established by the agricultural seed decree
        for the implementation of the existing National Seed Policy
        should to be strengthened to effectively perform the activities
        and responsibilities delegated by the decree.

    b.  The NSS should be strengthened through appropriate human
        capacity development, funding and supportive equipments
        (including laboratories), vehicles etc.

    c.  Efforts to increase effective demand for improved seed by
        farmers should be intensified through effective extension and
        seed promotional activities. This will also require fair prices
        for farmers output as well as seeds so that they are adequately
        empowered to purchase seeds

    d.  Capacity of state level implementation structure of the seed
        policy should be strengthened for internal quality control
        through training and provision of seed testing laboratories.

He rounded up by saying that the ultimate beneficiaries of this study
are the farmers and as such it must be pursued to the fullest.

**4.0 Syndicate Groups**

Following the report presentation and discussions, two syndicate groups
were formed to further celebrate on the report and discussions following
the presentation. Participants were asked to join any of the two groups
based on area of expertise and interest. The groups went into and came
back to the plenary and presented their reports.

**4.1 Syndicate Group A Report: Policy regulations and practices**

> The syndicate group considered the major constraints in the seed
> sector development, identified areas that need
> improvement/modification /changes and suggested how improvements can
> be effected. Observations and recommendations made by the group are as
> follows:

#### [Policy constraints]{.underline}

> Policy constraints identified by the group were as follows: -

i.  Non-establishment of the national seed council as provided for in
    the seed decree.

ii. Poor policy implementation by the agencies established under the
    seed decree.

iii. Differential prices resulting from public sector subsidized seed
     production and distribution

> [2. Regulatory constraints]{.underline}

i.  Inadequate capacity to enforce seed regulations.

ii. Poor awareness and information dissemination on various regulations.

> [3. Practices]{.underline}

i.  Inadequate training of seed staff at ADP level.

ii. Poor market information and distribution network.

iii. Inadequate funding to the NSS and other related agencies

# B. Improvement of the supplier

i.  Strengthening the existing structures including the statutory
    bodies.

ii. Involvement of farmers and farmers association in seed production
    under control of NSS

iii. Strengthening research through improved funding and capacity
     building.

iv. Strengthening of NSS, other agencies through improved funding and

> capacity building.

v.  Need for aggressive promotional activities to create awareness for
    improved seed use through field days, demonstration, publicity, etc.

vi. Need to put in place regulatory mechanism for GMOs and LMOs.

vii. Development of small /medium seed enterprise to complement large
     seed companies in certified seed production.

viii. Conduct a national Seed Demand Survey to quantify seed demand
      parameters.

ix. Review of the seed development plan for the next 10 years and
    develop a seed sub-sector development plan of action.

**4.2 Syndicate Group B Report: Policy Regulations And Practices**

This group examined the seed business structure in Nigeria, identified
key players and the market share of each player. The group proposed ways
to increase the seed sales outlets, particularly in the private sector
and\' developed an action plan for the development of an effective and
competitive seed production and marketing system in Nigeria.
Observations and recommendations made by the group are as follows:

> [Seed certification -]{.underline} areas of interest to note should
> include seed testing facilities, seed enforcement agency and seed
> quality control.
>
> [Seed law enforcement:]{.underline} - private sectors should be able
> to strengthen their respective internal policy control as one of the
> responsibilities of seed industry.

To facilitate these developments the under listed suggestions were made:

a.  Registration of all categories of seed operators i.e. the small,
    medium and large scale operators.

b.  Identify the key players and access their performances to enhance
    quality control and data collection.

c.  There should be registration guidelines and responsibilities to be
    attached to the registration processes and the support that they
    require.

## 

# Key players in the seed business

The group classified the key players into two categories.

i.  The producers and

ii. The marketers

**The producers**

These are the multinationals/nationals e.g. the medium sized companies
that are noted to consist of the experienced elite seed growers.

**The marketers**

> These are seed marketers/ distributors/contact growers

-   Agro input marketers i.e. stockiest for fertilizers, agro-chemicals,
    and seeds.

-   Stockiest who collect from seed companies and then sell to these
    farmers.

### 

**Action Plan for developing seed production and marketing system in
Nigeria**

The group concluded that the action plan for the development of an
effective and competitive seed production marketing system in Nigeria
should include the following:

i.  Capacity building of seed companies and institutions engaged in seed
    development.

ii. Identification of roles of each of the key players e.g. NSS
    producing foundation seeds etc.

iii. Develop cordial relationship between the private seed companies and
     the farmers

iv. Categorize key players in terms of performance and size.

v.  Formation of seed farmer groups for marketing and distribution at
    state, and LGA, ward levels respectively.

vi. Creation of the demand for seeds through seed information awareness
    and motivation.

vii. Provision of credit facilities for the key players and the linkage
     of marketers to credit facilities.

viii. Encouragement of farmers' seed cooperatives societies at the
      production level and the grassroots.

ix. Strengthening and harmonizing the activities of the national seed
    service (NSS) and project coordinating unit (PCU) on seed production
    programmes as well as the states organizations.

x.  Promoting rural market penetration to help the private sector's
    activities on seed marketing.

xi. Promotion of complementary input packages to farmers as production
    incentives at subsidized rates e.g. seeds plus agro chemicals.

xii. Promotion of commodity and input trade associations.

xiii. Promotion of input seeds to be effected at farmer level.

**[LIST OF ATTENDANCE]{.underline}**

1\. Dr. Adeyemi Joshua,

Managing director/CEO,

Premier Seeds Nig. Ltd.,

Chikaji Industrial Estate,

P. O. Box 1673,

Zaria - Kaduna State.

2\. Mr. Adekunle Salisu,

Marketing Manager,

Premier Seeds Nig. Ltd.,

Chikaji Industrial Estate,

P. O. Box 1673,

Zaria - Kaduna State.

3\. Mr. Mondiu B. Sarumi,

DD/Registrar,

National Centre for Genetic resources and

Biotechnology (NACGRAB),

Moore Plantation,

P. M. B. 5382,

Ibadan.

4\. Dr. Candidus Echekwu,

Principal Research Fellow,

Institute for Agric Research (IAR/ABU),

Ahmadu Bello University,

P. M. B. 1044,

Samaru, Zaria.

5\. Senator Garba Taura,

Chairman,

NACOTAN,

Kano.

6\. Alh. Danazumi Husaini,

Financial Secretary,

NACOTAN,

Kano.

7\. Mallam Ismaila Adamu,

Agronomist,

Projects Coordinating Unit (PCU),

FMA & RD,

P. O. Box 325,

KM 29 Suleja - Lokoja Highway,

Sheda - Abuja.

8\. Dr. Aminu M. Babandi,

NC - CROPS,

Projects Coordinating Unit (PCU),

FMA & RD,

P. O. Box 325,

KM 29 Suleja - Lokoja Highway,

Sheda - Abuja.

9\. Dr. O. O. Oyebanji,

Deputy Director,

Projects Coordinating Unit (PCU),

FMA & RD,

P. O. Box 325,

KM 29 Suleja - Lokoja Highway,

Sheda - Abuja.

10\. Mr. Odudu Etukudo,

Senior Agric Officer,

Projects Coordinating Unit (PCU),

FMA & RD,

P. O. Box 325,

KM 29 Suleja - Lokoja Highway,

Sheda - Abuja.

11\. Mr. Abdulkadir Gudugi,

Agric Economist,

USAID - Nigeria,

Metro Plaza,

Abuja.

12\. Dr. Patrick Kormawa,

Economist,

IITA,

P.M.B. 5320,

Ibadan.

13\. Dr. R. U. Okechukwu,

Research Associate,

IITA,

P.M.B. 5320,

Ibadan.

14\. Mr. Nath Utoh,

PL Seed Industry Development,

National Seed Service (NSS),

Federal Department of Agriculture,

KM 31, Sheda - Abuja.

15\. Alh. Ashiru Sabo Ringim,

Managing Director/CEO,

Nagoma Seeds,

150 Yankaba/Hadejia Road,

Kano.

16\. Mr. S. A. Rasheed,

Principal Agric Officer,

Federal Department of Agriculture,

FMA & RD,

Area 11, Garki,

Abuja.

17\. Akudiukwu Ifediorama,

Federal Department of Agriculture,

FMA & RD,

Area 11, Garki,

Abuja.

18\. Mr. Godson Uzoigwe,

Assistant Director,

Federal Fertilizer Department,

FMA & RD,

Area 11, Garki,

Abuja.

19\. Mr. Samuel O. Olayiwola,

Principal Land Resources Officer,

Federal Fertilizer Department,

FMA & RD,

Area 11, Garki,

Abuja.

20\. Dr. Benson A. Adebusuyi,

Assistant Director,

Federal Fertilizer Department,

FMA & RD,

Kaduna.

21\. Mr. Kehinde Adelugba,

National coordinator,

Planning, Monitoring & Evaluation,

National Seed Service (NSS),

Federal Department of Agriculture,

KM 31, Sheda - Abuja.

22\. Mr. O. J. Shobowale,

Asst. Director/PL,

National Seed Service (NSS),

Federal Department of Agriculture,

KM 31, Sheda - Abuja.

23\. Dr. Sunday E. Abimiku,

NC - Technical services,

National Seed Service (NSS),

Federal Department of Agriculture,

KM 31, Sheda - Abuja.

24\. Mr. Lawrence O. Fajana,

Asst. Director.

National Seed Service (NSS),

Federal Department of Agriculture,

KM 31, Sheda - Abuja.

24\. Abba Muhammad,

Director Tech. Services,

Kano State Agricultural & Rural Development Authority (KNARDA),

KM 9, Hadejia Road, Kano.

**[PROJECT STAFF PRESENT:]{.underline}**

1\. Alh. Sabiu Auwal,

Zonal Coordinator,

IFDC - DAIMINA Project,

KNARDA Building,KM 9, Hadejia Road,

Kano.

2\. Dr. H. B. Singh,

Chief of Party, IFDC - DAIMINA Project,

Plot 737 Panama Street,

P. O. Box 10948, Maitama, Abuja.

3\. Dr. U. A. Alkaleri,

Project Manager, IFDC - DAIMINA Project,

Plot 737 Panama Street,

P. O. Box 10948, Maitama, Abuja.

4\. Mr. E. H. Ekpiken,

MIS Specialist, IFDC - DAIMINA Project,

Plot 737 Panama Street,

P. O. Box 10948, Maitama, Abuja.

5\. Mr. Ogaga Ikogho,

Admin/Finance Officer, IFDC - DAIMINA Project,

Plot 737 Panama Street,

P. O. Box 10948, Maitama, Abuja.

6\. Mr. Bola Ajadi,

Marketing Specialist, IFDC - DAIMINA Project,

Plot 737 Panama Street,

P. O. Box 10948, Maitama, Abuja.

7\. Blessing Ihediwa,

Secretary, IFDC - DAIMINA Project,

Plot 737 Panama Street,

P. O. Box 10948, Maitama, Abuja.

8\. Mrs. Evelyn Okwudolor,

Secretary, IFDC - DAIMINA Project,

Plot 737 Panama Street, P. O. Box 10948,

Maitama, Abuja.