Promoting biofortified crops for nutrition: lessons from orange-fleshed sweet potato (OFSP) in Tanzania
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Date
2015-04
Journal Title
Journal ISSN
Volume Title
Publisher
Institute of Development Studies
Abstract
This case study examines the outcomes of interventions in Tanzania that have promoted the
production and consumption of orange-fleshed sweet potato (OFSP) – a biofortified crop –
with the objective of reducing vitamin A deficiencies. The report contributes to policy efforts
to promote nutrition-sensitive agriculture by providing lessons for the introduction of
biofortified crops in Tanzania and elsewhere. The case study is particularly instructive
because OFSP has been a flagship of biofortification efforts, and because Tanzania
appeared to have high potential for uptake of the crop. The country is a major producer of
sweet potato, although the vast majority of production is of the nutrient-poor white-fleshed
varieties (WFSP). Sweet potato is an important food security crop for small farming
households, particularly in Tanzania’s Lake Zone. The crop has the advantage of requiring
little land and few inputs, and can be stored on-farm for several months. The crop also has
commercial value, and white-fleshed varieties are available in urban markets throughout the
year.
Donor-funded initiatives have played a central role in developing all stages of the OFSP
value chain, with a particular focus on breeding new varieties that appeal to the preferences
of both producers and consumers. Development projects have also supported the
dissemination of planting materials and funded public awareness campaigns. However,
information collected for this case study suggests that, so far, interventions have not
achieved widespread uptake of OFSP. Only a small minority of farming households in
intervention districts grow OFSP. Commercial farmers who supplied OFSP planting materials
to project distribution systems have found that, after project funding ended, the local market
was not viable, and have ceased production. Meanwhile, awareness of and demand for the
crop among consumers have been very limited; one survey conducted in an intervention
district found that only 2 per cent of households consumed OFSP. Traders and food
processors report that there is little demand, and dealing with the crop is not profitable. This
state is perhaps unsurprising given that the introduction of OFSP is still relatively recent, that
project efforts have been relatively scattered and uncoordinated, and that there has been
little focus on commercially viable value chains. Yet the challenges encountered in Tanzania
provide important lessons for other agriculture-nutrition initiatives.
A first lesson is that the successful introduction of a biofortified crop requires the
development of support systems at different stages of the value chain, including seed,
marketing and quality assurance systems. In the case of OFSP, interventions should design
publicly funded distribution of planting materials in order to foster parallel commercial
systems at the same time. Whether commercial systems will provide access for vulnerable
rural households requires further assessment; there may be a need for ongoing targeted
subsidy. A second lesson is that achieving uptake of a nutrient-rich crop may depend on
building viable value chains and demand, even if the aim is to encourage consumption by
vulnerable households. One reason farmers have not invested in OFSP is that – faced with
food insecurity and capital constraints – they prefer crops that can both be used as food or
sold for cash. Agriculture-nutrition interventions should develop a more nuanced analysis of
the decision-making context facing farming households. Third, the absence of demand is
perhaps the key barrier preventing value chain development for OFSP. Yet, without rigorous
research on consumer preferences and willingness-to-pay, it is unclear how this situation can
be addressed. Funding more detailed consumer studies is therefore an immediate priority.
Finally, the case of OFSP highlights the importance of mechanisms that signal nutritional
quality to consumers. The distinctive colour of OFSP tubers is a major advantage; it enables
the consumer to identify nutritional benefits and aids efforts to market the crop. In contrast,
processed products that incorporate OFSP, such as ‘golden bread’, lack this advantage; the
orange colour can be easily faked using food additives. This can undermine consumer
confidence. If market-based interventions are to generate consumer trust, they must either
3concentrate on crops and foods with a clear signalling advantage, or put in place specific
mechanisms to ensure the nutritional quality of end-products.
This report concludes that publicly funded programmes need to build commercial
opportunities for OFSP if the crop is to achieve widespread uptake and contribute to
reductions in vitamin A deficiencies. This will require more strategic and better-coordinated
support from donor agencies, government and their partners. Private sector actors will play a
key role, but are unlikely to invest until supportive conditions are put in place. Future
interventions should aim to create this supportive environment, including by incentivising
production of planting materials, developing commercially viable products and funding large-
scale public awareness campaigns. Public sector actors need to assess whether commercial
planting materials and processed products can be made affordable and accessible to poor
and vulnerable populations; delivering nutrient-rich foods to these groups is likely to require
some form of public subsidy. This case study suggests that two intervention pathways should
be explored simultaneously: (1) public distribution/purchasing and purchasing programmes to
deliver planting materials and/or OFSP tubers to the rural poor, and (2) demand creation
through awareness and social marketing campaigns, along with product development.
Building robust value chains for biofortified crops requires collective efforts from both public
and private sector actors. Donors, national government and non-governmental organisations
(NGOs) can play a key role in catalysing investment through appropriate public purchasing,
increasing public awareness and addressing barriers to acceptability.
Description
Report
Keywords
Orange-Fleshed Sweet Potato (OFSP), Biofortified crop, Tanzania