Tanzania Cluster Initiative
Project: An Evaluation
Report from the Eight
Cluster Initiatives
Bitrina Diyamett
Adalgot A. Komba

ATPS SPECIAL PAPER SERIES No. 38

Ms Diyamett is a Senior Research Officer at COSTECH and National Coordinator, ATPSTanzania while Dr. Komba is a Senior Lecturer at IDS, University of Dare s Salaam and memberof ATPS-Tanzania

Published by the African Technology Policy Studies Network, P.O. Box 10081, 00100
General Post Office, Nairobi, Kenya.

© 2008 African Technology Policy Studies Network (ATPS)

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Table of Contents

1.0 Background to the Project
2.0 Conceptual Framework
2.1
Definition and role of Cluster
2.2
Factors contributing to cluster formation in Africa
2.3
Steps in cluster formation
3.0 Identification and Monitoring of Indicators
3.1
Environmental factors
3.2
Cluster type and phase at the point of intervention
3.3
Social; capital and trust
3.4
Already established linkages
3.5
Active participation from the private sector
4.0 Cluster Identification, Selection and Monitoring
5.0 Final Cluster Performance Evaluation
5.1
Introduction
5.2
Methodology
5.3
Metalworking and Engineering Cluster
5.4
Eastern Region Mushroom Cluster
5.5
Food Processing Cluster
5.6
Tourism and Cultural Heritage Cluster
5.7
Seaweed Cluster
5.8
Nutriceuticals Cluster
5.9
Sisal Cluster
5.10 Vegetable Seed Cluster
6.0 Summary and Overall Concluding Remarks
7.0 Framework for Performance Measurement
Acknowledgements
References

List of Abbreviations and Acronyms
AVDRC
CoET
CIs
FGD
IMS
IT
MACEMP
PADEP
SIDO
SUA
TTC
TCCIA TFDA
TOSCI
TVSP

Asian Vegetable Research and Development Centre
College of Engineering and Technology
Cluster Initiatives
Focus Group Discussion
Institute of Marine Science
Information Technology
Marine and Coastal Environment Management Project
Participatory Agricultural Development and Empowerment project
Small Industry Development Organization
Sokoine University of Agriculture
Technology Transfer Centre
Tanzania Chamber of Commerce, Industry and Agriculture
Tanzania Food and Drug Authority
Tanzania official Seed Certification InstituteTanzania Vegetable Seed ProgrammeList of Tables and Figures

List of Tables
Table 1: List of Pilot Clusters
Table 2: Proposed potential clusters identification chart
Table 3: Performance indicators
List of Figures
Figure 1:

Cluster initiatives entry points

Acknowledgement

Being quite a novel idea, at least in Tanzania, in the filed of science, technology and innovation
policy we must admit that it has not been easy thing to do even though in the end it has proven to bevery rewarding. In this context therefore the final output of this cluster initiative evaluation exercise is
the result of support and contribution from many institutions, organizations, individuals and theirgroups. Through such collective endeavour is has been possible for evaluation team to learn groupdynamics that drive innovative clusters through interviews, discussions, observations or simply
listening.
The above notwithstanding the team would like to take this opportunity to offer special thanks to SIDA
whose financial support to Cluster Initiative made possible for ATPS-Tanzania to participate inmonitoring and evaluation process. Thanks also to ATPS Secretariat in Nairobi for their administrative
and technical support to the whole exercise. Cluster Facilitators have been very forthcoming
throughout the process and to them we owe so much. Thanks to them all.
Last but not the least, are the cluster members, the ‘foot soldiers’ of the initiative and to whom
success or failure belong. Mere words are not enough to express how much we have appreciatedtheir unconditional support and cooperation without which the exercise was doomed from the start.
It is our hope that this brief final report captures all of their views, feelings and concerns about the
project. If not then the fault must be ours and for that we say sorry! Otherwise it has been great
working with you all. To those who have managed to get into the second phase and to new comers
to the project, Good luck!
About ATPS – Tanzania
To those new in the field of science and technology policy perhaps few words ATPS should suffice.
It stands for African Technology Policy Studies, a region-wide network bringing together researchscientists, engineers, academics and policymakers interested in policy issues related to development
and utilization of science and technology in the African context. Headquartered in Nairobi withnational membership in more than 20 countries East, Central and West.
ATPS – Tanzania is a national chapter of ATPS, a fully registered NGO since 2001 and participant ofmany organization’s activities. It draws it membership from Universities and other institutions ofhigher learning, government, industry, research and development organizations, civil society andprivate individuals. It undertakes research and analysis of S&T policy issues, organizes seminars,

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ABOUT THE AFRICAN TECHNOLOGY POLICY STUDIES NETWORKThe African Technology Policy Studies Network (ATPS) is a multi-disciplinary network of researchers,
policy makers, actors in the private sector and other end users interested in generating, promoting
and strengthening innovative science and technology policies in Africa. With a regional secretariat in
Nairobi, the network operates through national chapters in 23 countries, with an expansion plan tocover the entire sub-Saharan Africa.
One of the objectives of the network is to disseminate research results to policy makers, legislators,
the organized private sector, civil society, mass media and farmers’ groups through publications,dialogue and advocacy. Among its range of publications are the Working Paper Series (WPS),
Research Paper Series (RPS), Special Paper Series (SPS) and the Technopolicy Briefs.
Papers published under the ATPS Special Paper Series are those commissioned as concept
papers, think pieces, leading conference papers and keynote addresses. In keeping with
our knowledge brokerage function, ATPS publishes, with permission of the author(s) or
journal editors, papers (published or unpublished) produced by distinguished academics/
researchers for a different purpose but judged by ATPS to be of excellent quality. Thesepapers address significant policy questions relevant to the work of ATPS and/or support
the Southern voice or an African perspective. ATPS also considers theoretical papers that
advance our knowledge of science and technology policy issues.
ATPS is supported by a growing number of donors including the International Development ResearchCentre (IDRC), the Carnegie Corporation of New York, the Rockefeller Foundation, the World Bank,
the OPEC Fund, Ford Foundation, Coca-Cola Eastern Africa, the African Development Bank, InfoDev,
European Union and the Royal Dutch Government.

1.

Background to the Project

Tanzania’s eight cluster initiatives (CI) project was launched in January 2006. The SIDA-funded
project is the first such project to have ever been embarked on in Tanzania, and therefore a trial
project that was planned to run for 18 months. The mid term evaluation for the project was done in
July and August 2006. This final evaluation builds on the previous evaluation, but also includes abrief overview of the mid-term evaluation as part of the background for each cluster initiative. Since
the readers of this report might not had chance to read the mid-term report where the project was
fully introduced and the framework for evaluation put in place, background information on the projectis provided as well as the framework for evaluation. It is important to note that the framework used forthe midterm evaluation consist of only those indicators considered necessary for the early stages ofclustering, which in this report it is suggested that this be used during the baseline survey for selecting
clusters to participate in the initiatives. The suggested table of indicators that should be used forevaluating clusters at different stages is given in Section six. The table, to a large extent, has been
informed by this final evaluation.
The Cluster Initiative project is the outcome of the first Conference on Innovation Systems andInnovative Clusters in Africa held in 2004 in Tanzania. The broad objective of the conference was toestablish the status of innovation systems and innovative clusters in Africa. Emanating from theconference was the fact that very little is known about the functioning of innovation systems andinnovative clusters in Africa. More specifically, the concept of cluster initiative is hardly known, indicatingthat there are very few, if any, cluster initiatives taking place in the region. A plan of action to addresssome of these shortcomings was therefore developed. This included the 18 months clusters initiative
pilot project consisting of 8 clusters. The first of the project was launched in January 2006 andended in July 2007. Table 1 shows the names of participating clusters.
Table 1: The eight participating Cluster Initiatives
Cluster
Metalworking and Engineering Cluster
Mushroom Cluster
Vegetable Seed Cluster
Seaweed Cluster
Tourism and Cultural Heritage Cluster
Nutriceuticals Cluster
Sisal Cluster
Vegetable and Food Cluster

Location
Morogoro
Dar es Salaam, Coast and Morogoro regions
Arusha and Kilimanjaro
Zanzibar
Bagamoyo
Dar es Salaam
Tanga
Morogoro

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ATPS SPECIAL PAPER SERIES NO. 38

The project started with training of the cluster facilitators on the cluster initiative concept andidentification of “low hanging fruits” by the cluster facilitators, that is, identification of the immediateneeds with lowest cost possible. It should however be noted that the initiative was not preceded by abaseline survey of the clusters to inform the selection process, but rather designed to combine theprocess of study and intervention in a kind of learning-by-doing. In other words, the potential clusters
were selected on the basis of some limited information about their clustering characteristics, potential
for growth and contribution to poverty reduction/alleviation. The midterm evaluation exercise therefore
concentrated more on the initial status of the clusters and possible monitoring indicators at the earlystages of clustering, which this report is proposing to act as criteria for further identification ofclusters for future initiatives. The major objective of the midterm evaluation was, therefore, to find out
whether the CIs were on the right track towards establishing innovative clusters, rather than theimpact in economic terms.
The rest of the report is structured as follows: the section that follows provides a brief conceptual
framework on cluster development and growth. The aim is to identify some appropriate conceptual
tools that can be used in the development of indicators for monitoring and evaluation of the cluster
initiatives. Section three briefly describes the developed indicators, while section four is devoted tobrief methodological framework. Section five describes the 8 clusters, headways made after the
inception and potential for further growth using the developed indicators. Section six provides someoverall concluding remarks, and finally section seven proposes framework for short, medium andlong term evaluation of clusters.

2.

Conceptual Framework

2.1

Definition and Role of Clusters

Clusters are group of firms engaged in similar or related economic activities in a national economy.
In most cases they have been defined by two important attributes, namely spatial agglomeration andsectoral dimension. According to Rosenfeld (1997), cited in Le Veen, (1998), an industry cluster is ageographically bounded concentration of similar, related or complementary businesses, with active
channels for business transactions, communications, and that are faced with common opportunities
and threats. According to Porter (1990), clusters are basically of two types: horizontal and vertical.
Vertical clusters are made up of firms that are linked through buyer-seller relationships. Horizontal
clusters include firms that share common market for the end products, use a common technology orlabour force skills or require similar natural resources; they are basically competitors.
However, it must be pointed out that the two categories are not mutually exclusive. In most cases
clusters are made up of both horizontal and vertical relationships. Recognition and categorization ofclusters in terms of vertical and horizontal is especially important during cluster initiative as it is morechallenging to embark on cluster initiative for those clusters that are predominantly horizontal, whereneed for each other as suppliers and buyers is non existent; and where technology management
requires careful balancing between which information to share and which not to with counterparts
who are viewed as both collaborators and competitors. As observed during the midterm review,
these are some of the challenges that were facing the Morogoro-based metalwork and engineering
cluster.
Clusters have, in most cases, been associated with dynamism, innovation and competitiveness,basically because of collective efficiency achieved through joint actions, cooperation and externalities
that enable enterprises to overcome many constraints in the area of capital, skills, technology andmarkets. Other by-products are building a relatively educated labour force, gaining government aswell as international support for their role in promoting economic growth (Anderson, et al, 2004;
Oyeyinka and McCormick, forthcoming).
Generally clusters are able to survive and succeed, mainly because their ability to upgrade theirbusiness activities towards more diversified and sophisticated products and services, and reach acertain scale through building up a supply-production-distribution value chain, acquiring knowledge
and technology (both domestic and foreign) and their dissemination and adaptation. When a cluster

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ATPS SPECIAL PAPER SERIES NO. 38

4grows and achieve economies of scale and visibility, many stakeholders including policy makers are
attracted to it. Thus one of the indicators of the well performing cluster is its growth in terms ofnumber of firms and other actors, employment opportunities, output, etc.

2.2

Factors Contributing to Cluster Formation in Africa

Apart from defining and describing clusters, of much interest in cluster evaluation is to understandthe natural process of cluster formation. Knowledge of natural cluster formation, especially in termsof conducive environment is very important for embarking on the cluster initiative as it tells a lot on thepotential for cluster growth. Thus, this section provides an overview of cluster formation in the African
context.
According to some limited information on cluster formation and growth in Africa, the following are themost important factors in the natural cluster formation and growth:•Natural resource endowment•
Proximity to major market•
Local entrepreneurs with tacit knowledge and basic skills in trading, design or
manufacturing. Most have started very simple and gradually expanded; e.g., for metal, thebusiness started with trading and repair but gradually evolved into assembling andmanufacturing activities•
Market push, that is, there has to be a demanding market for products and services•
Limited government intervention. Although in some of the clusters governments are
responsible for their formation, but it is not a formal conscious effort to create clusters, butrather by-product of enforcement of laws and regulations, such as those pertaining to town
planning (Oyeyinka and McCormick, forthcoming)
Taking up the last point above, in most cases, the world over, government interventions in cluster
formation are manifested in the following areas: defining sectoral policies, regulation and standard
and enforcing them; creating a special agency or organization to promote, coordinate and facilitate
development of clusters; establishing various public institutions (such as councils, incubator,
technology clusters and institutes) to provide technological and technical support, provide incentives
such as tax holidays, special funds, duty free imports, cheap lands; promote alliances and partnershipamong local firms and with foreign firms; provide infrastructure, road, water, power, warehouse, IT
facility, etc. (Anderson, et al, 2004). It goes without saying, therefore, that to a large extent factors thatlead to cluster formation in Africa are very much similar to those related to cluster formation elsewherein the world. This fact gives a sure opportunity to learn from best practices in cluster initiatives
elsewhere in the world.

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2.3

Steps in Cluster Formation

Many clusters evolve spontaneously and take shape gradually over extended period of time. Fourmain phases ca be identified: (i) creating trust, (ii) forming linkages, (iii) vision or strategic directionand (iv) undertaking actions (Anderson, et al, 2004). The cluster initiative can start at any given
phase, and in literature there is no one fit approach to trigger the process. There are however threemajor alternatives in cluster initiative processes (i) the engineered (ii) the organic (iii) and the reengineered. Each goes through the same general phases explained above, but with different entry
points as shown in Figure 1. It is very important to recognize the phase at which a certain cluster iswhen embarking on initiative, as this gives a rough picture of the “low hanging” fruits to start with.
Improve new tech.
and firm growth
Improve inter-actor
network creation
Engineered
Clustering
entry point

Building social
capitalDeveloping
linkages & vision

Improve cluster
formation
Improve factor
markets
Improve cluster basis

Re-engineered clustering
entry point

Organic clustering
entry point

Fig.ure 1: Cluster initiatives different entry points
Source: Adapted from Anderson, T. at al, 2004

The engineered clustering
This is generally a top-down approach cluster initiative and typical for those clusters that are still at
the early stage of development. In Europe, policy makers lead and in North America, it is the private
individuals who are important. In Africa who leads or rather who can lead? Is it a University? an
NGO’s? or Development Partners? For the present, and first cluster initiative in Tanzania the University
in collaboration with development partners have assumed leadership role. This trend might continue
throughout Africa. However, as it can be noted later in this report, government is increasingly becominginterested, and therefore play leading role in the next wave of cluster initiatives.

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ATPS SPECIAL PAPER SERIES NO. 38

The initial catalyst of an engineered clustering process could be a given investment opportunity, adynamic leader, or a regional/national economic crisis (poverty for Africa). Then general steps are
as follows: Form or develop existing social capital to anchor the cluster idea; maintain or establish
new mechanisms for building trust, formulate a vision and strategy and then undertake action.
The organic clustering
Essentially this is a bottom-up approach whereby clusters initially display spontaneous development
towards the establishment of linkages and joint strategy. From this platform of continuous or recuring instance of cooperatives, an innovative cluster appears. Intervention or cluster initiative istargeted at tightening of networks and collaboration, introduction of supportive framework, theacquisition of things such as such new technology, and removal of rigidities or other constraining
factors.
The re-engineered clustering
The cluster is said to be re-engineered when an existing cluster (engineered or organically developed)
is viewed as having specific competitive significance or potential, but is hindered from progress forsome critical reasons. Key linkages might be broken or never formed, or there are other crucialdelimiting factors within the cluster itself or its surroundings that are blocking its dynamism. For suchreasons the process is started (or re-started) through corrective actions such as establishing, or reestablishing key linkages, dismantling or breaking of adverse rigidities or through the communicationof new vision and strategy.

3.

Identification and Monitoring Indicators

On the basis of the conceptual framework above, the identification and monitoring indicators are
therefore proposed. To a large extent the indicators highlight the potential for cluster initiative
development, rather than cluster growth in economic terms, that is, potential for contributing toeconomic development. Perhaps, this is what is important at this early stage of cluster initiatives.
.

3.1

Environmental Factors

Geographical proximity – at least two firms collaborating in close proximity; in the same production
chain; close to research or higher learning institution; effective or potential demand for the products;
proximity to market; natural resource endowment; presence of highly educated entrepreneurs;
potential for beneficial externalities. Such environmental factors are especially important to note forcluster initiative at early phase of the cluster formation, that is, the engineered cluster initiative type.

3.2

Cluster Type and Phase at the Point of Intervention

When a certain cluster spontaneously develops to later stages, there is a great potential for initiative
to succeed. In addition, it is also much easier to establish linkage to co-located firms, especially ifthey are in the same production chain (users and suppliers). However, for engineered cluster initiative,
especially if the cluster is predominantly horizontal, i.e., competitors, much more efforts are needed
for it to succeed.

3.3Social Capital and TrustThis is measured in terms of awareness of potential mutual benefit among the key cluster actors,common vision, open communication and transparency between the key actors. In addition, broader
scope for information sharing which is measured in terms of number of committed actors to thecluster and openness with which common issues are addressed. The existence of associations
and clubs of cluster members also signifies a degree of trust and social capital needed to sustain
cluster.

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3.4

Already Established Linkages

Geographical proximity coupled with involvement in related activities necessitate formation of mutually
reinforcing and/or beneficial linkages both back and forward linkages. Development and growth ofclusters depends on established linkages not only between members but also with supporting
institutions. Therefore, their existence, strengths and weaknesses can be a good indicator for cluster
potential. This can be measured in terms of extent of collaborative activities between cluster firms
and support organizations.

3.5

Active Participation from the Private Sector

In the context of industry, cluster is economic entity and as such cluster formation is a private
endeavor. The experience has shown that if the initiative is strongly supported by the entrepreneurs
themselves there is much greater chance for success than if the need for it is felt only by thegovernment and academic officials. Thus, knowing how cluster came into being should provide
indication of future prospects, that is, potential for its sustainability.

4.

Cluster Identification, Selection and Monitoring

The major objective of cluster initiatives is to instill dynamism in those areas and sectors where thecountry believes will be of strategic importance for wider socio-economic development andcompetitiveness. However, since the CIs are only new in an African setting, any clusters that show
signs of being organic in nature are likely to be selected to provide lessons, irrespective of whether
or not the selection is strategic in terms of socio-economic development and competitiveness.
However, the best way to start the process is to conduct formal cluster identification exercise.
Unfortunately, it is time consuming and expensive exercise. Procedures for this exercise have beendeveloped for more developed countries, and there is a possibility to learn from this and adapt toconditions obtainable in our own situation. Therefore, for the time being, the following simple andinexpensive, but not necessarily the best method is proposed.
First, is call for proposals by advertising the intent for cluster initiatives development in the media,
where the criteria for application are fully described in very simple language and let the facilitators ofpotential clusters submit fundable proposals. Second; a very quick baseline survey is conducted toestablish the initial conditions of clusters that have submitted proposals using the developed indicators,
and selecting the best on the basis of quality and number required. This effort can be supplemented
by picking those clusters known by the CIs development organ in the country.
However, it must be realized that some of the indicators are more important than others. The modality
then is to give maximum differentiated scores to indicators. The scores are then summed up, andthe top X number of clusters are selected; where X is the number required for initiative development.
Table 2 below further clarifies this point.
Table 2: Proposed Potential Clusters Identification Chart
Cluster name
Cluster phase at the point of intervention Level of social capital and trustLevel of linkages
Level of private sector participation
Level of environmental factors Total scores and potential
for growthEngineered, organic or re-engineered
High, medium or law
Strong or
weakHigh or low
Strong or weak High or low

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5.

Final Cluster Evaluation

5.1

Introduction

As earlier mentioned, this final evaluation is further to the mid-term evaluation. The major objectiveof the final evaluation has been to determine the extent to which the project had desired impact on
the performance of the clusters. To a large extent the exercise also used the indicators developed
above, but was carried out with open mind to capture any other emerging factor to be used as anindicator. As it can be noted later, two more indicators are added to the list of indicators developed
earlier. These are leadership and visibility of clusters. Thus, in addition to discussing methodologicalframework the section provides detailed description and analysis for each cluster and how it has
fared vis-à-vis the indicators. Concluding remarks for each also draw on the mid-term review.

5.2

Methodology

Two major approaches were used to collect information: Survey and Focus Group Discussions(FGD). For those clusters with few members survey was used with visits to all members and talked
to them individually. However, for those clusters with many members, random representative sample
was developed. Most survey questions revolved around the impact the project had on individual
business in regard to the above identified indicators. The choice ranged from no impact at all togreat impact. In conducting FGD guiding questions were very general and on the difference theproject had made on the performance on participating individual businesses. The above indicators
guided the questions, but were also open to note anything extra. Questions on what could have been
done differently in the cluster initiative process to achieve maximum impact were also asked. The
following questions were asked to engage the group into discussion:
1. What is your shared vision as a cluster?
2. What activities have you undertaken as a cluster ever since January 2006 when the program
started?
3. How relevant are these cluster-based activities to your individual business, and your collective
vision?
4. What can you say about the impact of the program in regard to the following major indicatorsof innovative cluster-linkage and collaboration among yourselves, and other important organizations-trust among your selves.

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5.
Generally, what can you say about the impact of the program on your individual
business- Just anything positive
6. How do you think in future the cluster initiatives can be approached for maximum positive
impact?

5.3

Metalwork and Engineering Cluster

BackgroundThe cluster is located in Morogoro municipality, comprising of 14 firms working in the metalwork
and engineering sector, and 27 other micro enterprises working on mostly charcoal stoves. In termsof spatial proximity, i.e. distance from one firm to the other, the metal working firms exhibit typicalcharacteristics of any other township in Tanzania, where the firms are scattered in different parts ofthe town. The charcoal stove enterprises, however, exhibit unique characteristics in the sense thatthey are very close together, concentrating along the main road and close to the major market in
Morogoro. The cluster lack long term involvement of the research or higher learning institution, but
most of the members, especially the metal work group, have relatively higher education levelcompared to other clusters. This is a very important strength of this cluster.
The midterm evaluation indicated that this is an engineered type of cluster initiative. There was very
little cooperation, linkage and trust among cluster members, especially between the larger firms andthe smaller ones. There was very little understanding of the concept of cluster initiatives, and what
benefit it can offer to individual businesses.
In addition, while the number of entrepreneurs increased in charcoal stove sub-cluster, it was noteasy to predict the direction of growth of the metal work sub-cluster; whether it will be in terms ofgrowth of individual firms or number of firms in the cluster. This is still pending issue even with thisfinal evaluation. The direction of growth of this cluster and how it is going to be different from thesame sector in other towns and cities in Tanzania is not known, and difficult to predict.
Evaluation Findings
Positive Impacts
The survey result indicated that the project had moderate impact on all of the identified indicators.
According to FGD the following are some of the positive impacts of the project:
Linkage
There has been an improved cooperation between the cluster members, especially between thesmall and larger firms. “Before the project it was unthinkable to approach the larger firms for help”,
explained one of the smaller entrepreneurs. Generally the incidence of cooperation such as jointpurchases of inputs and job sharing in the cases where orders go beyond individual capacity has
increased among cluster members. There has also been some technology transfer, in terms of
training as a result of the project, and sharing of information among the cluster members.

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Visibility
The cluster project has attracted the attention of the government, especially local, to their business.
Others thought being in the cluster has made the individual businesses being known more in thecommunity. The visibility has been facilitated by the media. In addition according to others, theproject has made the registration of business much easier.
Shortcomings
The group, however, mentioned the following shortcomings that need to be addressed:• Some of the very useful machinery in metal products production such as the forging machine,
electroplating and heat treatment facilities are absent in all cluster firms.
• Raw materials are very expensive.
• Traveling back and forth among cluster members is costly as firms are not located in close
proximity.
• Interest rate for SIDO’s loan is very high.
• Most members would like to go for in-service further technical training but can not afford.
Suggestions from cluster members
The group made the following suggestions to alleviate some of the above-mentioned problems:• The government should quickly allocate appropriate common areas for the cluster members.
• Credit facilities should be made easy and available. For example, the cluster has to find away to be a guarantor of loans to cluster members.
• SIDO should re-asses their priorities according to the reasons it was established in the firstplace.
• The export of scrap iron should be banned to avail raw materials for domestic firms at acheaper price.
Concluding Remarks
Taking into account the state of this cluster before the project, the above findings surely are very
positive steps towards success. During the midterm review it was found out that cluster members
had very little trust among themselves. The concept of cluster had not yet sunk in the minds of themembers; and there was very little indication of linkage among the cluster members, especiallybetween the larger and smaller entrepreneurs. The current positive outcome seems to be the resultof the committed cluster leaders, who constantly sought for modalities to improve the trust andcooperation among cluster members.

5.4

Eastern Region Mushroom Cluster

BackgroundThe cluster covers the whole regions of Morogoro, Dare s salaam and Coast. It consists of mushroom
farmers, spawn makers, wild mushroom pickers and processors. The activities are not yet located inany special area, but done in a household setting as backyard initiatives. Important environmental
factors are huge natural resource endowment, potential market, both internal and export, presence

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13

of stakeholders association, and close involvement of the higher learning institutions such as the
University of Dar es Salaam and Sokoine University of Agriculture (SUA).
The midterm evaluation clearly indicated that members see the benefits of collective efficiency as
against individual effort. This quality is so much demonstrated in this cluster more than any other.
There could be two major reasons for this. First mushroom production is so much knowledge
intensive. Somebody has to know the right spawns the right substrates, right temperature, etc. A small
mistake ruins everything; people therefore need each other for good practices. Another possible
reason as explained by the farmers is that individual farmers can only produce a small amount ofmushrooms, while the major customers require mushrooms in bulk. There is therefore a need forseveral farmers to join forces to serve a certain common market. Another important contribution to
the high level of social capital might have come from the existence of mushroom growers association.
These people have been meeting and discussing issues of common interest long before the cluster
initiative.
Evaluation Findings
Positive Impacts
This cluster has very visible achievements in the 18 months of the pilot project. Following are someof the positive impacts as mentioned by FGDs.
Visibility
The project made mushroom producers known and hence easy access to both financial andmaterial support. Example is the mushroom collection center accessed from the local government,
and funds for training and production of the mushroom growers’ manual provided by the SME
Competitiveness facility.
Improved Trust and Linkage
Farmers got to know more about each other; not only in mushroom business, but even in social life.
In regard to this, one of the cluster members had the following to say: “Not only has our business
relations improved, but also our social life. It was not common for me to talk to some of the cluster
members, not even to exchange greetings; but now we are buddies, and I feel free to confront themwith whatsoever problem I have, whether social or business”. The project also improved flow of
information and cooperation among cluster members as result members has gained knowledge on
better methodologies on mushroom farming and collection of wild mushroom. Through linkage andlearning, the banana farmers have also gained more income by discovering that banana leaves areused in mushroom farming.
Product Diversification
The cluster has lead to an increased diversification in mushroom products. Examples are mushroom
cakes and other snacks. This has been possible as a result of training and information sharing
among cluster members.

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Increased Number of mushroom farmers
The Cluster has motivated more people to go into mushroom business. More importantly, according
to FGD, youths have been kept busy with mushroom farming and away from social evils.
Shortcomings
This cluster had very little to say when it came to shortcomings. They complained of two major
things: the wide area covered by the cluster, which made communication and meetings to be very
expensive. The complaint was made by the cluster leaders. The second thing they complained
about is very expensive technology from the Technology Transfer Center of the University of Dar es
Salaam, which according to the members, was supposed to be affordable as University is part of thecluster. They complained that the technology is more expensive and not necessarily of higher quality
compared to prices and quality of the same technology from other sources within the country.
Suggestions from cluster members
The members of the cluster had a number of suggestions on how cluster initiative can be approached
so as to attain maximum positive impact. These are as follows;• The Technology Transfer Centre at the University of Dar es Salaam should lower the pricesof the machines they produce so that they can be affordable.
• The Government should put in place policies that can improve the environment for cluster’s
initiative.
• The Cluster should get a sustainable source of funding; example is loans with reduced
interest rates, and subsidies.
• Cluster members can also initiate a revolving fundConcluding Remarks
This cluster was found to be in the right track even during the midterm survey. It is doing even better
now, especially if they can work on the problem of funding and spatial proximity, i.e. dividing thecluster into 3 sub-clusters, with leadership put in place for each of the three sub-clusters.

5.5

Morogoro Food Processing Cluster

Background
Morogoro region is famed for its weather conducive for agricultural production supplying markets
such as Dar es Salaam with plenty of vegetables and fruits. The cluster initiative deals with processingof such vegetables and fruits into forms easier for preservation and/or into new and more valuable
products. It brings together individuals and groups involved in the processing of vegetables andfruits. These also include drying and packaging and production of such products as beer and winefrom agricultural products such as banana. In essence it is a natural resource based cluster.
The midterm-evaluation survey indicated that the cluster has developed linkage with a number ofactors; indeed more than any other cluster initiative in the project. These are Sokoine University ofAgriculture; College of Engineering and Technology, University of Dar es Salaam; Small Industries

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Development Organization (SIDO); Tanzania Chamber of Commerce, Industry and Agriculture(TCCIA) and government authorities both local and central including Tanzania Food and Drug
Authority (TDFA). In addition, the cluster had also developed a common market outlet.
Evaluation Findings
Positive Impacts
Through FGD and interviews with stakeholders the following positive results has been identified:
Visibility
The cluster is now better known to both the customers and government officials. As a result there ismore sale and assistance from the local government. The example is the premise for joint market
outlet which had already been attained even before the midterm evaluation.
Linkage and Information Sharing
The project has created forum for exchanging of ideas, as a result, according to FGD, there is
improvement in product quality for most members. As earlier noted, the cluster has also establisheda joint market outlet, which according to most members, has enhanced their sales. They alsoorganize a joint exhibition when ever the chance presents itself.
Collective Efficiency
The cluster has initiated joint purchase of raw materials, which according to cluster members, hasradically reduced cost for purchase of inputs.
Shortcomings• There is a problem on the quality control and differentiated trademark. In regard to this, thepractice has been that SIDO makes labels for all small food processors. However, in mostcases, the products from some producers do not parallel the nice labels prepared by SIDO.
These sub-standard products had tended to ruin the market for all the products, including
those from entrepreneurs who have invested in quality improvement. In this regard the cluster
needs different labels and trademark that is unique to the cluster. The members are currently
working on this.
• Lack of capital: Just like other clusters, this has been a major stumbling block.
• There is the problem of destructive competition-too many small entrepreneurs producing
the same products for the same market.
• The members also complained that entrepreneurial courses offered to them are not helpfulthey are not enriched with adequate skills.
Suggestion from cluster members• Individual members should improve their products’ quality so as to immediately improve theimage of the cluster and a strong industry later• The members also suggested for the cluster to have a joint center/facility for processing the
products

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16•

The members proposed the cluster to have its own brandConcluding Remarks
This cluster has shown very little improvement ever since midterm evaluation. This could be because
the cluster had already made great headways by the midterm evaluation time. However given theappropriate environmental factors, sprits of the members and current plans, there is little doubt thatthe cluster will continue to grow in a sustainable manner.

5.6

Tourism and Cultural Heritage Cluster

Background
The Bagamoyo-based Tourism and Cultural Heritage cluster has historically evolved over time andin the process a number of activities have emerged to cater for the fast growing industry.
Organizationally, the cluster is comprised of the following sub-clusters: Hotels; Transport operators;
Tour guide operators; Restaurant and bars; Traditional healers and herbalists; Guest houses andLodges; Food vendors and processors; Handcrafts producers and sellers; and Theatre and sculpture
From its inception this Cluster had trappings of becoming a successful initiative in terms of its
potential for development and growth. Geographical proximity, interrelated chain of activities, bothhorizontal and vertical, motivated membership and able leadership have been its strong points.
The midterm evaluation indicated that the social capital is very high and so is mutual trust amongcluster members. As expressed by one of the hoteliers, “We have to also be engaged on tourism
advertisement to do good business, but thanks to cluster initiative, because this role can now be left
to it”. In general, all members were over motivated and this raises the possibility of demoralization if
the existing social capital and trust is not properly directed and/or exploited.
The cluster also can potentially enjoy the beneficial externalities because of the co-existence of the
sub-clusters. For instance an improvement of the tourist sites means inflow of more tourists; meaning
it is good business for the hoteliers and other sub-clusters. As a result, there is huge interest in
sharing of tourist information among sub-clusters, especially information regarding services andtourist sites. The existence of Bagamoyo College of Arts and its representation in the cluster isanother strong point. This final evaluation of the cluster reveals the following developments.
Positive Impacts
The cluster initiative has produced some visible positive impacts, mostly in short term, which can be
the basis for future development and growth. They include the following:
Visibility
Even though tangible economic gains from the observed linkage and trust are less visible at thispoint in time, social and political capital cultivated so far promises to be of great value in the near
future.

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Solidarity and commitment
Cluster members demonstrate high degree of solidarity and commitment towards its development.
This is reflected in their participation in cluster activities such as meetings, exhibitions and cash
contributions to open a bank account. In long run such ‘social capital’ is critical to cluster sustainability.
Conservation awarenessSustainability of the cluster depends on continued flow of local and foreign tourists which in turn isthe function of sustained preservation of beaches, historical sites and cultural heritage. Cluster
formation has been very instrumental in bringing conservation and preservation issues to the fore of
the tourist industry.
Shortcomings
The cluster is experiencing a number of problems that are likely to undermine achievements alreadymade. These are as follows:
Missed goals/targets
Some important goals/targets the cluster set to achieve have been missed. Finding premise is oneof them. So far cluster and sub-clusters’ activities are scattered all over often unknown to both local
residents and visiting tourists. Thus finding a permanent premise to conduct business was a toppriority. Efforts to acquire premise for displays, shops and office accommodation has proven elusive
target. At one point the cluster was accommodated at TCCIA’s building but has since been forced tovacate for failure to pay rent. To raise public awareness of cluster existence and functions it wasenvisaged that promotional campaigns would be undertaken using Bagamoyo-based Cultural
College through songs and cultural performances. This is still pending issue that need to beaddressed by stakeholders.
Markets and marketing
Perhaps emerging from above, some sub-clusters are finding it difficult to find markets for theirproducts especially handicrafts and traditional foodstuffs. Sub-clusters belonging to women members
are most impacted by this problem.
Facilitation
From focus group discussion with cluster members it became clear that facilitation process has
emerged as a serious problem requiring appropriate intervention. The issue at stake is thedomineering role of the Facilitator and undermining of cluster leadership. As a result decision
making has become more complicated especially as far as financial matters are concerned.
Suggestions by cluster members
The future sustainability of the cluster is the function of a number of developments to address someof observed challenges/problems. According to members they include the following:

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Resource mobilization
Shortage of financial resources is a serious constraint to cluster’s sustainable development andgrowth. Indeed, some of the shortcomings such as premise and office space can be attributed to it.
Additional funding from alternative sources such as local authorities, financial/banking institutions
will be needed to sustain cluster’s activities. The cluster leadership has been in contact with somebanks to explore the possibility of financial support in the form of soft loans. The situation calls forsustained lobbying and advocacy drive.
Enhanced autonomy
There is urgent need to rethink the role of Facilitator in cluster development and growth. Moreautonomy is needed to allow cluster members to make own decisions and live up to them. Autonomy
is needed in resource mobilization and deployment to help lessen friction between Facilitator(s) andmembers.
Concluding remarks
The cluster has made little headway ever since midterm evaluation; this is probably because of theabove constraints; especially the facilitation process. However, the evaluation team holds a strong
view that despite the above problems the cluster has a very huge potential for growth if well facilitated.

5.7

Seaweed Cluster

Background
Seaweed farming is a resource-based venture whereby the ocean is a major resource. The farming
was introduced in Zanzibar during the late 1980s after researches had indicated its potential as
cash crop. Since then the number of farmers has increased from a handful in the early 1990s toabout 100 to date. It is a collection of small scale farmers, majority of them being women, engaged
in common activities of seaweed farming and soap making, and traders who buy and export sea
weeds. At the moment the cluster activities are centered in two villages: Bulelwo and Kidoti both inUnguja Island. Just like the mushroom cluster most important environmental factors for this cluster
is huge natural resource endowment, potential for value adding activities and product diversification.
With proper marketing there is also huge market potential, both local and export. Another importantstrength of the cluster is close involvement of the higher learning institution, the Zanzibar-based
Institute of Marine Sciences, University of Dar es Salaam.
The midterm evaluation indicated that there are strong established linkages between farmers,
researchers at the IMS and trading firms. The traders also supply farmers with inputs on credits.
However, these positive developments notwithstanding, the relationship between traders and farmers
could be of the subordinate nature, as farmers depend so much on traders for inputs; and to a large
extent the traders determine the price. Otherwise and most importantly, the review noted that crucial
assets for cluster growth such as trust and linkage, to a large extent are in place, and that what
remains is sustained development of the cluster in terms of value adding activities and diversification.
The following are some of the positive impacts Seaweed Cluster:TANZANIA CLUSTER INITIATIVE PROJECT: AN EVALUATION REPORT FROM THE EIGHT CLUSTER INITIATIVES

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Positive impacts
Enhanced Visibility
Activities of the Seaweed Cluster have attracted attention of the government and other institutions/
agencies dealing with agricultural development and environmental conservation. Participatory
Agricultural Development and Empowerment Project (PADEP), SUCCESS project and Marine andCoastal Environment Management Project (MACEMP) have all promised to provide support interms of finances and/or equipment. Such support is very crucial to cluster sustainability.
Development of New Techniques
Even though seaweed farming has been in existence since the late 1980s some of the most valued
species have proven difficult to farm and disappeared in some places. Seaweed Cluster has facilitateddevelopment of new farming techniques, floating rafts (“vichanja”) that have allowed for the reintroduction of such species hence enhanced earnings for participating cluster members.
Product diversification
Traditionally, seaweeds are farmed, harvested, dried and sold to traders ready for export. One ofpositive achievements of the cluster is ongoing efforts to add value by diversifying its local use.
Though still work-in-progress, the proposed products include seaweed herbal soap products andseaweed snacks. This has the potential of raising the income of seaweed farmers, and therefore
further contributes to poverty reduction.
Quality improvement
There is evidence of improved quality of seaweed. It stems from the introduction of appropriate
drying techniques. Before the initiative farmers used to dry seaweeds by spreading them on the
ground to be sun-dried and in the process collected dirt. Through the cluster farmers have now been
introduced to new drying techniques whereby seaweed contamination with dirt is avoided. This has
potential of raising prices. Floating raft techniques is also contributing to quality improvement.
Environmental conservation
Floating raft technique is considered as being more environment-friendly compared to traditionalfarming techniques undertaken in shallow waters close to shore. Out of environmental concerns
emanating from seaweed farming, MACEMP is considering popularizing this technique to otherseaweed farming areas as part of environment conservation measures.
Women empowerment
There is evidence of women being empowered as the result of the cluster development. For example,
in one sub-cluster women owns premise, run a nursery/kindergarten and operate a bank account.
However, with introduction of deep-water rafting technique and farming of more valued species men
are being ‘recruited’ to render support.

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Shortcomings
Discussion with cluster members revealed some inherent difficulties likely to impact the future
development and/sustainability. The following are some of the emerging issues:
Working capital
Seaweed farming, especially of floating-raft type, is resource intensive process that requires substantive
investment in equipment and supplies. In the past traders used to supply farmers with inputs on thecondition that the produce is sold to them. However, with deep water farming costs are relatively highand traders are unwilling to invest.
Technology transfer
The envisaged product diversification is faced with lack of appropriate technological knowledge/
skills. This is likely to hold back the development process despite ongoing support from researchand higher learning institutions.
Suggestions by cluster members
Resource mobilization
Engaging other stakeholders to get them to support their activities is paramount to its sustainability.
As noted above PADEP, MACEMP and SUCCESS projects have already promised support including
finance and equipment. However, more efforts will be needed to ensure adequate working capital tosustain operations.
Technology transfer
Contact has already established with research institutions to provide technical assistance on
development of appropriate machines/equipment and processing technologies including seaweed
dryers. In addition, training should be provided to members to operate new machines/technologies.
Market development
Though development of new markets for new products is crucial to development and growth of thecluster there is no immediate solution to the problem. Therefore, resources will be needed for moreaggressive marketing of the current and envisaged products.

5.6

Nutriceuticals and Functional Food Cluster

BackgroundThe cluster initiative deals with production and processing of food products known to provide nutrition(supplements) and have some medicinal values. The raw materials include soybeans, moringa,
aloe vera and mushrooms. The main objective of the cluster is to raise public awareness onfunctional foods and facilitate production of quality and safe products.
This cluster could not be included in the midterm evaluation as it was not possible to hold discussion
with members because it was not clear then who will be included in the cluster. However, the cluster

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has made a good progress since mid-term evaluation exercise. Cluster leadership is already inplace and the launching accomplished. Initially the cluster had identified more than 60 potential
members but so far there are about 35 active members. The following are some specific positive
impacts:
Positive impact
Women empowerment
Over 90 percent of cluster members are women entrepreneurs engaged in small-scale foodprocessing. There is no doubt that the cluster is empowering women in their respective households
and communities.
Public awareness
Cluster members through their participation in trade shows have popularized their products and as
the result the general public is becoming increasingly aware of the nutritional values of their products.
Linkage and learning
Food processing is knowledge-intensive and most cluster members have acquired skills throughlearning-by-doing as participation in the cluster meetings have provided opportunity for the members
to share knowledge and production techniques.
Shortcomings
Working capital
As with other clusters, financing appear to be stumbling block towards cluster’s development andgrowth. So far most members are engaged in kitchen-type, small-scale processing that put
constraints on the amount that can be produced. Capital shortage is affecting acquisition of technology
and processing facilities.
Standards/quality assurance
It is a serious problem with far-reaching consequences on market penetration and productacceptability by consumers. Processing techniques are as varied as packaging of the products withno known common standards.
Markets and marketing
Potential market for the emerging industry is huge indeed even though underdeveloped. There areno common outlets for most products. Concerted efforts are needed to further cultivate and sustain
markets for products being developed and produced.
Competition
Even though the industry is young and growing fast, it is also characterized by varying levels of capital
investments and experience. There are those few with substantial investment, long experience andname recognition in the market. However, most cluster members are new with small capital
investment hence are faced with competition from large and more experienced producers.

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Suggestions by cluster members
Common processing facilities
To address the problem of working capital and standards/quality of products, members are engaged
in resource mobilization to raise funds. They have already approached municipal authorities for
subsidized loan so that they can be invested in acquisition of machinery/equipment that can be usedby all members. The funds will also be used to acquire or rent premise for common use and also forcollective acquisition of packaging materials.
Rationalization through training
To address the problem of standards and quality attributed to lack of appropriate processing
knowledge and skills cluster leadership has embarked on training programme for members. In suchtraining, members are introduced to ‘advanced’ processing techniques and variety of products.
Common market outlets
Cluster members are envisaging common market outlets as way of not only popularizing their products,
but also facing competition from large producers who are yet to join the cluster.
Concluding remarks
Potential market for this industry is huge; and as such it is one of the sure ways of empowering
women economically. Major challenges are skill development in advanced processing, quality
control and finance. Once these problems are addressed, the cluster can sustain ably and graduallydevelop to capture even the export markets.

5.9

Sisal Cluster

Background
This cluster is basically made up of small scale sisal farmers and sisal processors, mainly one
private company named Katani Limited, which has a monopoly of buying sisal from the farmers
following special arrangements. Although there is no active communication, both the farmers andKatani limited are connected to research institutions. Where farmers are linked to nearby Mlingano
Agricultural R&D Institute, Katani limited has some linkage with the University of Dare s salaam,
College of Engineering and Technology (CoET) in the development of new and value adding activities
to sisal. Currently sisal is processed mainly to produce fiber. Other potential products include acids,
sugar, alcohol and bio-fuels.
The major idea behind this cluster initiative, according to the facilitator, is to embark on research,development and commercialization of new products from sisal, which will expand market andincome of small sisal farmers. Accordingly, the diversification of products from sisal and entrance of
new processors is expected to alleviate the problem emanating from the monopolistic behaviour ofKatani Limited.

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Midterm evaluation indicated that there is serious lack of social capital and trust, first among farmers
themselves and second, between farmers and Katani Limited. This is evident from the fact that
farmers could not trust any one of them to represent them to witness the field test to establish pricefor their produce at the Katani Limited’s site. It was also noted that there exist strong linkages
between farmers and Katani Limited as a sole buyer of sisal. The linkage is however full of subordinationand suspicion, and therefore not healthy. The final evaluation indicates the following positive impacts
and shortcomings:
Positive Impacts
Public awarenessThe cluster has been able to raise public awareness on the potential benefits obtainable from sisal
growers in the event diversification into new products obtainable from sisal is embarked on.
Stakeholders are now better informed about the possibilities of diversifying from the traditional
products that are increasingly less paying.
Technology dissemination
Through the cluster it has been possible to disseminate knowledge on the available technologies
that can be exploited as the way of adding value to sisal sector. However, their application is subject
to further investments in research and development and subsequent commercialization.
Shortcomings
Funding
Survival of the cluster is the function of availability of funds to take ideas from the design stage toimplementation. This is in line with the long-term goal of setting up industrial plant needed totransform sisal by-products, currently being discarded, into something of value. At this point in timesuch funding is not forthcoming. This is serious constraint to its sustainability.
Social capital
The current arrangement is such that there are three main actors: sisal growers responsible forcultivating; Katani Ltd, responsible for facilitating production, buying and processing of sisal into
fiber; and R&D institutions including University of Dar es Salaam. On the one hand, growers viewcluster as purely academic exercise with little possibility of goals being realized. On the other hand,
there exist mistrust between growers and the company. The company has control not only overfinancial resources but also key decision making process including deciding how much to pay forthe sisal. Under such circumstances sustaining cooperation can be very difficult.
Suggestions by cluster members
Investments in R&D
This is knowledge-intensive enterprise and as such more investment in research and development
is needed to make product diversification to be more attractive to current and potential investors.
Concerted efforts are needed to diversify funding sources, public and private, internal and external.

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However, this is only possible if government and development partners are committed to the idea ofdiversification of products from sisal crop.
Concluding remarks
The idea behind this cluster initiative and its potential for growth hinges on the investment in value
adding activities that include expensive process of R&D and commercialization. Unless adequate
financial resource are mobilized to conduct R&D and commercialization of these novel products
from sisal, potential for growth and success of this cluster is very much doubtful.

5.10

Vegetable Seed Cluster

BackgroundThe cluster initiative, according to the Facilitators, incorporates Arusha and Kilimanjaro regions,covering the districts of Arumeru (Arusha), Hai and Moshi rural (Kilimanjaro). The region is blessedwith agro ecological zone well suited for agricultural production. It has equitable climate virtually
throughout the year. The region is also a home for more than 90 percent of Tanzania’s seed companies(both local and foreign). The region is also blessed with world class vegetable seeds research
institutes, including World Center for Vegetable seeds, Regional Center for Africa.
It must also be born in mind that over 80 percent of the vegetable seeds in the country are imported.
In this regard, the following questions are worth being asked: can’t Tanzania produce its own seeds,
given the available infrastructure? What does it take to do so? Could cluster initiative be an answer?
The questions to a large extent motivated the inclusion of the Arusha vegetable seed cluster as partof the pilot project. Following is a description of the vegetable seed cluster actors/stakeholders.
Training and Research Organizations
1. AVRDC: This is part of the world vegetable seed center. It is a regional centre for Africa that wasestablished in 1992. It is mandated to conduct vegetable research, training, and information services
for the benefit of national research programmes in Africa. The center trains farmers in vegetable
growing and produces foundation seeds for the seed companies. The center is very close to Tengeru
and seed companies. The center is some of the rare location advantage for the Arusha seed cluster
initiative.
2. HORT – TENGERU: Tengeru Horticultural Research Institute, a public institution for horticulturalresearch, farmers training, producer of vegetable foundation seed for seed companies for
multiplication. The institute work very closely with the private company, Alpha Seed Company. The
relationship between Alpha Seed and Hort-Tengeru is, in Tanzania, regarded as good example ofpublic private partnership (PPP)
3. TVSP: Tanzania Vegetable Seed Program, a private initiative which is funded by Multiflowers,
Royal Sluis vegetable trade mark, involved in testing and introduction of improved vegetable varieties
to help raise farmers’ incomes through high yielding and quality economic produce.

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Seed Companies
1. Alpha Seed Company Ltd.: An indigenous seed company involved in vegetable seed production
and marketing. The Company has been successful in organizing women groups who hire land andproduce for Alpha Seed quality vegetable seed. Alpha Seed works in Public Private Partnership(PPP) spirit with Horticultural Tengeru by using its seed processing facilities for cleaning and packing
the seed. Also work in close collaboration with AVRDC by obtaining screened or fresh basic seed for
multiplication on researched materials.
2. East Africa Seed Company, Multiflower, Suba Agro-tech Company Ltd, and Kibo Seed Company
Ltd.: These are seed companies which imports and also produce and pack locally produced vegetable
seed. They use various small holder farmers to produce the seed. They get their planting materials
from Horti- Tengeru and AVDRC
3. Arusha Foundation Seed Farm, This is a public organization that deals with obtaining breeder
seed from research station, multiplies it to foundation seed. Then sell these to seed companies who
use it for multiplication again to get Certified Seed which is packed and sold to farmers.
4. Vegetable companies and fruit processing companies
Other organizations
1. Tanzania Official Seed Certification Institute (TOSCI), that deals with certification of seeds throughfield inspections and laboratory testings. All seed must be checked by them before marketing. Thereare 3 stations – Morogoro, as Headquarters and branches in Tengeru and Njombe.
2. Tanzania Seed Trade Association (TASTA). This is basically an association for the seed companies.
The midterm-evaluation cum baseline survey indicated that cluster exhibit an appreciable degree oflinkages among companies and strong linkage between companies and research institutes, and it
is within “re-engineered cluster initiative”. The cluster contains all the good characteristics of aregional, potentially innovative cluster.
Evaluation Findings
It was not possible to do a formal evaluation because up to now the number of the cluster members
is not known; and very little has been done in relation to planned activities. Only one meeting, which
one of the writers of this report attended, was so far held. The major objective of the meeting was topopularize the concept of cluster initiative to potential members-actual members were to be known
later!
Since the leadership did not had names of the cluster members, and very little was done to implement
the action plan, even the midterm evaluation was done following the naturally existing linkages andcooperation among actors in sector. The findings were that this is an organically evolving innovative
regional cluster. We would therefore wish to suggest, a renewed effort to re-initiate this cluster beconsidered with carefully selected facilitator.

6.

Summary and Overall Concluding Remarks

The report has categorized cluster initiatives into three major categories: the organic, engineered
and re-engineered cluster initiatives. Being in the early stages of development, most of the clusters
have been categorized as engineered. One of the very potential organic clusters is the Arusha
Vegetable Seed Cluster. This cluster has all the elements of organically evolving cluster, which, to alarge extent only needed strengthening of existing linkages and trust. However, very unfortunately, thecluster has made very little headway during the 18 months of the project. This problem to a large
extent can be asserted to weak facilitation.
Another cluster with weak facilitation is the Bagamoyo Tourism and Cultural Heritage cluster. The
role of the facilitator in the development of the cluster initiatives is further evidenced by the Morogoro
metalwork and engineering cluster. During mid-term review the cluster showed all the signs of
mistrust and lack of cooperation. The findings of this final evaluation however, indicated a total
reversal of this behaviour. This to a large extent can be asserted to the effort made by the facilitator
to popularize the concept of a cluster, and how it can help individual entrepreneurs. As a result, wehave included facilitation and leadership in the list of the indicators earlier identified. Another important
indicator added to the list is visibility of a cluster.
Generally we can say that during the 18 months of implementation clusters have shown positive
development, especially as far as the early indicators are concerned. In the longer time perspective
however, the issues regarding financing and opening up of new markets could be a major stumbling
block if it is not be addressed earliest possible. The financial problem is acute for those R&D
intensive cluster initiatives such as sisal. It is the opinion of the writers of this report that given the factthat these clusters are coordinated from a center of excellence in research, such as the University,
one would expect such R&D intensive clusters would have been given an upper hand. Unfortunately
this is currently not the case, largely because of the financial constraints. But for how long would we
be running away from the commercialization of research outputs? How do we justify then spending
on R&D?

26

7.

Framework for Performance Measurement

In Table 3 below we are introducing a framework that can be used to measure performance atdistinct stages of cluster development. The development of this framework, to a large extent has
been informed by the current evaluation process, and some information from the literature, especiallyat the later stages of cluster development.
Table 3: Performance Indicators
Kenya

Time Frame Performance Indicators

Strength and acceptabilityof cluster
Facilitators by the cluster
members
1.Visibility

16

2 years

Number of cluster meetings Discussion with key clusterorganized; implementation ofmembers, focus groupplanned activities, extent ofsharing of cluster vision, andviews of members.

Further Support fromgovernment and otherdevelopment partners

2.Established Linkages and
2-3 years
3.Innovation

4.Export orientation

5.Employment generation

1

Joint activities

Increased number of
2-5 years innovating firms in acluster, and number ofinnovations within a firm4
5 years andabove

Measurement Approaches

Increased number ofexporting firms

Interview with cluster

Survey and Focus Group
Discussion

SurveySurveyIncreased
Number of firms and total
number of
number of employment
Surveyfirms in a
generated.
cluster and/or
number of

We assume that visibility is an outward manifestation of the positive factors that are intrinsic to the cluster
It is important to note initial conditions in terms of status of technology in use for each individual firm in a cluster. This can be done
during the first round of monitoring and evaluation.
27
2

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ATPS SPECIAL PAPER SERIES NO. 38

Perhaps it is important, at this juncture to reiterate the point that cluster evaluation is still at its infancy
even for those regions where cluster initiatives have been in place for quite some time now. The bestway, according to the existing literature is to base evaluation on the clustering processes and trajectoryrather than on static measures (Anderson, et al, 2004). In the absence of clear indicators of thedesired end result of clusters, i.e. indicators of competitiveness, it is important to focus on one of thevery important stages towards competitiveness, which is innovativeness. This is even more importantfor African countries that are still at the early stages of building a firm base for competitiveness, i.e.
innovative activities.
The ultimate goal of this framework is to measure the impact of innovativeness, which to a large
extent leads towards competitiveness. The framework is a draft starting point, and therefore should
be used as a guide towards putting in place a more reliable framework as issues unfold during
evaluations. This is necessary as the process has to be informed by practice. Perhaps in future moreinvestments will be needed in undertaking background and/or theoretical studies to inform andguide the process as “low hanging fruits” are exhausted and forced to move into a more complex
systems of innovative clusters.
Epilogue
As we note in this report, 18 months of first phase of cluster initiative ended in July/August 2007. This
final evaluation started in August 2007 and ended in January 2008. It is also worth noting that out ofeight pilot clusters, four clusters have been selected to participate in the second phase of theinitiative. They are: Bagamoyo Tourism and Cultural Heritage Cluster; Eastern Region Mushroom
Cluster; Morogoro Metalwork and Engineering Cluster and Zanzibar Seaweed Cluster. In addition,
11 new clusters have been launched and we do hope that lessons learnt during the first butch ofclusters, especially the constraining factors that have contributed to poor performances in many of
the clusters, including those selected for the second phase will be taken into account.

References

Anderson, T., Serger, S.S., Sorvik, J. and Hanson, W.E.(2004), The Cluster Policies White Book.
IKED, VINNOVA and TCI.
Le Veen J. (1998), “Industry Cluster Literature Review”. Urban and Regional Development-plan 261.
Oyeyinka, B.O and McCormick, D. (2007, forthcoming), Clusters and Innovation Systems in Africa:
Learning, Institutions and Competition. UNU Press.
Porter, M. (1990), The Competitive Advantage of Nations. New York.
Rosenfield, S.A., (1997), “Bridging Business Clusters into Mainstream of Economic Development” .
European Planning Studies 5(1): 3-23
Robinson and Siles, (1999), “Report on Social capital Conference”. Michagan University and theWorld bank.
Shafira, P. and Kuhulman, S. (2003), Learning From Science and technology Policy Evaluation:
Experience from the United State and Europe, Edward Elgar Publishing Inc., Cheltenham.
Solvell, O., Lindqvist, G. and Ketels, C (2003). The Cluster Initiative Green Book. The
Competitiveness Institute (TCI) and Vinnova, Stockholm.

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31

training workshops and exhibitions. The recent work carried under auspices of ATPS-Tanzania is:“Trends in R&D activities in Tanzania: funding sources, institutional arrangements and relevance”;
IDRC Publication (forthcoming).

Other Publications in the ATPS Special Paper SeriesSpecial Paper Series 1: Globalization and Technology: Africa’s Participation and Perspectives: Concept Paper andResearch Agenda by Melvin Ayogu &Osita Ogbu (2002)
Special Paper Series 2: Globalization, Markets for Technology and the Relevance of Innovation Policies in Developing Economies by Sunil Mani (2002)
Special Paper Series 3: Biotechnology in sub-Saharan Africa: Towards a Policy Research Agenda by John Mugabe(2000)
Special Paper Series 4: The Impact of Globalization in sub-Saharan Africa Countries by Mwindaace N. Siamwiza(2002)
Special Paper Series 5: A Blueprint for Developing National ICT Policy in Africa by Clement Dzidonu(2002)
Special Paper Series 6: Impact of Foreign Direct Investment (FDI) on Technology Transfer in Africa by Moses M.
Ikiara (2002)
Special Paper Series 7: Pursuing Technology Policy Research in sub-Saharan Africa: Reflections on the Dimensions, Applications and Implications of a Methodological Framework by M.H. Khalil-Timamy (2002)
Special Paper Series 8: African Response to the Information Communication Technology Revolution by G. Olalere
Ajayi (2002)
Special Paper Series 9: Information and Communication Technologies (ICTs): Poverty Alleviation and Universal
Access Policies by Andrew Dymond & Sonja Oestmann (2002)
Special Paper Series 10: ICT Human Resource Development in Africa: Challenges, Strategies and Options by
T.M. Waema (2002).
Special Paper Series 11: Applications of ICTs in Africa: Development of Knowledge Workers in Centres of Learning
by John Muraguri Waibochi (2002).
Special Paper Series 12: State of Science and Technology Capacity in sub-Saharan Africa by Khalil-Timamy(2002).
Special Paper Series 13: Strengthening National Information and Cmmunication Technology Policy in Africa:
Governance, Equity and Institutional Issues by Melvin Ayogu
Special Paper Series 14: A Science Agenda from An Afrian Perspective by Turner T. Isoun
Special Paper Series 15: International Trends in Modern Bio-technology: Entry by and Implications for African
Countries by John Mugabe
Special Paper Series 16: Foreign Direct Investment (FDI), technology Transfer and Poverty Alleviation: Africa’s
Hopes and Dilemma by Moses Ikiara
Special Paper Series 17: Global Governance of Technology and Africa’s Global Inclusion by Banji Oyeyinka
Special Paper Series 18: Science and Technology and Poverty Reduction Strategy in Sub-Saharan Africa byO.
Akin Adubifa
Special Paper Series 19: An Assessment of Science and Technology Capacity Building in sub-Saharan Africa byO.
Akin Adubifa
Special Paper Series 20: Network as Determinants of Manufacturing SME Cluster Growth in Nigeria Networking
Technical Change and Industrialization: The Case of Small and Medium Firm in Nigeria by Banji OyelaranOyeyinka
Special Paper Series 21: Technology Transfer in a Globalizing World: Many Promises, Lack of Responsibility, andChallenges for Africa by M.H. Khalil Timamy
Special Paper Series 22: Integrated Value Mapping for Sustainable River Basin Management by Kevin UramaSpecial Paper Series 23: Wastewater and Irrigated Agriculture Lessons Learned and Possible Applications in Africa
by Frans Huibers, Lucas Seghezzo and Adriaan Mels
Special Paper Series 24: Survey of Indigenous Water Management and Coping Mechanisms in Africa: Implications

for Knowledge and Technology Policy by Femi Olokesusi
Special Paper Series 25: Survey of Indigenous Water Management and Coping Mechanisms in Africa: Implications
for Knowledge and Technology Policy by Femi Olokesusi
Special Paper Series 26: Water Management and Conflict in Africa: The Role of Management and Technology by
Chris Huggins
Special Paper Series 27: Markets, Institutions and Agricultural Performance in Africa by Julius Mangisoni
Special Paper Series 28: The Biotechnology Revolution and its Implication for Food Security in Africa by Victor
Konde
Special Paper Series 29: Why Africa has Fallen Short of Building Dynamic Agro-processing Capabilities: Constrains, Options and Prospects by Wellington A. Otieno and Ada Mwangola
Special Paper Series 30: Promotion of Public Health Care Using African Indigenous Knowledge Systems and
Implications for IPR: Experiences from Southern and Eastern Africa by Hassan O. KayaSpecial Paper Series 31: The Place of Policy in Applied Health Care and Technology with Special Reference toAfrican Tradition Medicine by Daniel Noni Lantum
Special Paper Series 32: A Framework for the Strategic Analysis and Management of the Brain Drain of African
Health Care Professionals: An Innovative Systems Approach by Rubin Pillay
Special Paper Series 33: ICTs and Health Technology at the Grassroots Level in Africa by Margaret Nyambura
Ndung’u