George T-M. Kwadzo And John Thompson Ghana Poultry
Ghana’s Poultry Sector:Limited Data, Conflicting Narratives,Competing VisionsJames Sumberg, Martha Awo, Dela-Dem Doe Fiankor,George T-M. Kwadzo and John ThompsonGhanaPoultry
Ghana’s Poultry Sector:Limited Data, Conflicting Narratives,Competing VisionsThis paper analyses the policy context around the Ghana poultrysector with a particular focus on a number of ‘evidence issues’.We will identify and probe where there appear to be different orconflicting facts, interpretations, narratives and visions, and considerimplications for policy processes in the light of the rhetoricalacceptance of evidence-based approaches to policy. Being explicitabout the limitations of evidence-based policy in situations like thiscan only increase the prospects that poultry policy in Ghana willdeliver outcomes that are economically viable, socially just andenvironmentally sustainable.About the AuthorsJames Sumberg is an agriculturalist by training and has over 30years’ experience working on small-scale farming systems andagricultural research policy in sub-Saharan Africa and Latin America.A key research interest has been the dynamics of change withinagricultural systems. He joined IDS as a Research Fellow in October2009. Previously he served as Programme Director at The NewEconomics Foundation and Senior Lecturer in Natural ResourceManagement in the School of Development Studies, Universityof East Anglia. He has also held research positions at WADRA - theAfrica Rice Centre and the International Livestock Centre for Africa.Martha A. Awo obtained her training in development studies in theInstitute of Social Studies (ISS) in The Hague, The Netherlands andthe Center for Research Development (ZEF) in University of Bonn,Germany. She is currently working at the Institute of Statistical Socialand Economic Research (ISSER), University of Ghana. As a ResearchFellow, Dr Awo colaborates with local and international researchersto undertake field surveys in combination with teaching graduatelevel course on Research Methods at ISSER. Her research interestsinclude international trade, domestic and rural markets, gender andagricultural development, food security, poverty, inequality andpower dynamics.Dela-Dem Doe Fiankor is a student of the Sustainable InternationalAgriculture program at the Georg-August University, Gottingenwhere he is currently pursuing an MSc. in International Agribusinessand Rural Development Economics. He earned his BSc. degree inAgriculture (Agribusiness option) in the University of Ghana wherehe also undertook his national service as a research assistant.George T-M. Kwadzo holds a Ph. D from the University ofStrathclyde in Development Economics and Business. He hasworked as Senior Lecturer and Researcher in the Department ofAgriculture Economics and Agribusiness for almost twenty sevenyears. His areas of research interest are agricultural developmentand policy, development project analysis, value chain analysis,poverty analysis, and international trade. He has providedconsultancy services to various domestic and internationalorganizations including the World Bank, FAO, IFAD, AfDB, USAID,DfID, GTZ, and numerous international NGOs.This is one of a series of Working Papers from the STEPS Centrewww.steps-centre.org.ISBN: 978-1-78118-139-3 STEPS 2013IDS Master LogoJohn Thompson has worked on power, policy and sustainabilityissues in food and agriculture, water resource management andrural development for nearly 25 years, in both developing andindustrialised countries. He joined IDS in October 2006 as aResearch Fellow in the Knowledge, Technology and SocietyTeam and serves as joint convenor of the STEPS Centre Foodand Agriculture domain and co-ordinator of the FutureAgricultures Consortium, which aims to encourage criticaldebate and policy dialogue on the future of agriculture inAfrica and other developing regions.About the STEPS CentreToday’s world is experiencing rapid social, technological andenvironmental change, yet poverty and inequality are growing.Linking environmental sustainability with poverty reduction andsocial justice, and making science and technology work for thepoor, have become central challenges of our times. The STEPSCentre (Social, Technological and Environmental Pathways toSustainability) is an interdisciplinary global research and policyengagement hub that unites development studies with scienceand technology studies. We are developing a new approach tounderstanding and action on sustainability and development inan era of unprecedented dynamic change. Our pathwaysapproach aims to link new theory with practical solutions thatcreate better livelihoods, health and social justice for poor andmarginalised people. The STEPS Centre is based at the Instituteof Development Studies and SPRU Science and TechnologyPolicy Research at the University of Sussex, with partners inAfrica, Asia and Latin America. We are funded by the ESRC, theUK’s largest funding agency for research and training relatingto social and economic issues.www.steps-centre.org.Follow us on Twitter @stepscentreOther titles in this series include:ApproachPathways to sustainability: an overview of theSTEPS Centre approach1. DynamicsDynamic Systems and the Challenge ofSustainability2. Governance Understanding Governance: pathways tosustainability3. DesignsEmpowering Designs: towards more progressiveappraisal of sustainability4. Agriculture Agri-Food System Dynamics: pathways tosustainability in an era of uncertainty5. HealthHealth in a Dynamic World6. WaterLiquid Dynamics: challenges for sustainabilityin water and sanitationFor more STEPS Centre publications visit:www.steps-centre.org/publications
Ghana’s Poultry Sector:Limited Data, Conflicting Narratives, Competing VisionsJames Sumberg1, Martha Awo2, Dela-Dem Doe Fiankor3,George T-M. Kwadzo3 and John Thompson1STEPS Working Paper 561Institute of Development Studies (IDS), Brighton, UK2Institute of Statistical, Social and Economic Research, University of Ghana, Legon3Department of Agricultural Economics and Agribusiness, University of Ghana, Legon
Correct citation: Sumberg, J., Awo, M., Fiankor, D-D. D., Kwadzo, G.T-M. and Thompson, J. (2013) Ghana’sPoultry Sector: Limited Data, Conflicting Narratives, Competing Visions, STEPS Working Paper 56, Brighton:STEPS CentreFirst published in 2013 STEPS 2013Some rights reserved – see copyright license for detailsISBN: 978-1-78118-139-3ONLINE ONLYAcknowledgements: The Institute of Development Studies (IDS) at the University of Sussex, the FutureAgricultures Consortium and the ‘political ecologies of carbon in Africa’ project of the ESRC STEPS Centre bothprovided institutional and intellectual support for this study. Specifically, Professor Ian Scoones, ProfessorMelissa Leach and Dr Lars Otto Naess all from the IDS, mentored this fellowship. My PhD supervisors, Dr ClaireQuinn and Professor Piers Forster, provided research guidance that further informed the conceptual frameworkfor this work. In Kenya, the NEPAD-Kenya Secretariat provided institutional support for the fellowship. I thankthe proponents of the Kasigau project ‘Wildlife-Works Co. Ltd.’ for their support during fieldwork. The authoralso wishes to thank Professor Kate Schreckenberg, Lecturer in Environmental Sciences, Faculty of Engineeringand the Environment, University of Southampton for her helpful review of an earlier draft of this paper.For further information please contact: STEPS Centre, University of Sussex, Brighton BN1 9RETel: 44 (0) 1273915673; Email: steps-centre@ids.ac.uk; web: www.steps-centre.orgSTEPS Centre publications are published under a Creative Commons Attribution – Non-Commercial – NoDerivative Works 3.0 UK: England & Wales Licence egalcode)Attribution: You must attribute the work in the manner specified by the author or licensor.Non-commercial: You may not use this work for commercial purposes.No Derivative Works: You may not alter, transfer, or build on this work.Users are welcome to copy, distribute, display, translate or perform this work without written permissionsubject to the conditions set out in the Creative Commons licence. For any reuse or distribution, you must makeclear to others the licence terms of this work. If you use the work, we ask that you reference the STEPS Centrewebsite (www.steps-centre.org) and send a copy of the work or a link to its use online to the following addressfor our archive: STEPS Centre, University of Sussex, Brighton BN1 9RE, UK (steps-centre@ids.ac.uk).ii
Table of ContentsList of Figures and Tables . iiiAcronyms . iv1.Introduction . 12.Background . 23.Evidence: What is known? . 34.Policy: context, rhetoric and reality . 7Competing visions . 115.Conclusions . 13References . 15List of Figures and TablesFigure 3.1Official estimates of national poultry populationFigure 3.2Official estimates of chicken meat productionFigure 3.3Imports of day-old chicksFigure 3.3Official estimates of chicken meat importsTable 4.1Measures announced in the annual budget statement relating to thepoultry sectoriii
AcronymsAIWGAvian Influenza Working GroupBUSACBusiness Sector Advocacy ChallengeEBPEvidence Based PolicyECOWASEconomic Community of West African StatesCAADPComprehensive Africa Agriculture Development ProgrammeCAHWsCommunity Animal Health WorkersCEPSCustoms, Excise and Preventive ServiceCETCommon External TaxDFIDDepartment for International DevelopmentDOCDay Old ChickFAOSTATStatistics Division of the Food and Agriculture OrganizationGAINGlobal Agricultural Information NetworkGATTGeneral Agreement on Tariffs and TradeGNAPFGhana National Association of Poultry FarmersHPAIHighly Pathogenic Avian InfluenzaICOURIrrigation Company of Upper RegionIFPRIInternational Food Policy Research InstituteILRIInternational Livestock Research InstituteISSERInstitute of Statistical Social and Economic ResearchMOFAMinistry of Food and AgricultureLDPLivestock Development ProjectMRACLSMulti-Round Annual Crop and Livestock SurveyNAFCONational Food Buffer Stock CompanyNGONon-Governmental OrganisationRVCRoyal Veterinary CollegeSRIDStatistics Research and Information Directorateiv
USAIDUnited States Agency for International DevelopmentUSDAUnited States Department of AgricultureWTOWorld Trade OrganizationYAPYouth in Agriculture Programmev
1. IntroductionOver the last decade persistent rural poverty, climate change, food price increases, rising population pressureand heightened investor interest have re-focused attention on the agricultural sector in sub-Saharan Africa. Asgovernments, development partners, NGOs and investors try to determine how best to respond to a rapidlychanging context, there has been an upsurge of interest in agricultural policy, including how it is argued, madeand implemented, the politics associated with it, and the ‘success stories’ that can provide both insights into itsimpacts and lessons for the future.Along with this new enthusiasm for agriculture and agricultural policy comes a strong discourse about‘evidence-based policy’ (EBP). Rooted in the fields of medicine and healthcare, EBP purports to bring rationalityto policy making, and it is often summarised as focusing on ‘what works’ (Pawson 2002). The EBP movementhas been repeatedly critiqued for a simplistic, linear understanding of the relationship between evidence andaction and for its normative approach to the desirable relationships between research-based knowledge andpolicy formulation. More recent literature on EBP, and particularly that associated with the ‘realist synthesis’,recognises that there are different ‘evidence bases’; that the notion of evidence can be quite slippery; and thatdifferent kinds of evidence can be interpreted and valued differently (Head 2008; Pawson 2002; Whitfield2013). Nevertheless, the idea that policy must take account of evidence (e.g. of what worked where and forwhom) is now generally accepted, and many governments and donor agencies, from the United KingdomDepartment for International Development to the World Bank, emphasise the central importance of EBP toimprove development interventions. Of course, before the point of evaluating the impacts of various policyoptions, ‘evidence’ is also critical for establishing trends, constraints and dynamics within a sector or around aproblem of interest. The concerns about the availability and quality of baseline data relating to food andagriculture in Africa (e.g. crop areas, yields, livestock populations and offtake levels) are long-standing and wellrecognised (Kelly and Donovan 2008). More often than not policy analysts, advocates, and programme andproject developers rely on national data series available through government statistics offices and the StatisticsDivision of the United Nations Food and Agriculture Organization (FAOSTAT) because it is ‘the best dataavailable’ (or more often because it is ‘the only data available’).The coverage and quality of such data may vary depending on the nature and importance of the crop or livestockspecies, the nature of production systems and the domestic and export-oriented marketing arrangements. Datarelating to minor crops and livestock species, those dominated by small-scale producers and mixed croppingsystems, or where there is little government intervention are often more limited and/or of particularly lowquality. This is essentially the situation for poultry in Ghana and, as we shall see, it has significant implicationsfor the policy process. We will argue that because of these ‘evidence issues’, the poultry sector in Ghanaprovides important insights into the realities and limitations of evidence-based policy-making in the agriculturalsector in Africa.The objective of this paper is to explore these evidence issues through an analysis of the main trends anddynamics around poultry production, consumption and trade in Ghana. We will identify and probe where thereappear to be different or conflicting facts, interpretations, narratives and visions, and consider implications forpolicy processes in the light of the rhetorical acceptance of evidence-based approaches to policy. Because oftheir dominance within the poultry sector we focus specifically on chicken meat and eggs. In the next sectionwe briefly introduce the Ghana poultry sector and then explore the official statistics about the sector that arewidely cited by policy analysts and advocates. Next, we analyse the context, rhetoric and reality of policy as itimpacts the poultry sector, and explore competing visions for the sector. The paper ends with a set ofconclusions that highlight the limitations of EBP when basic information about the sector is lacking.1
2. BackgroundPoultry, including chickens, turkeys, guinea fowl and ducks have been produced and consumed in Ghana formany generations. Free roaming poultry are ubiquitous in rural areas; chicken is an essential part of ‘traditional’dishes such as light soup, and for many people a chicken is the heart of Christmas and other festival meals.Chickens still play a role in the ritual lives of some people and places.With an economy dominated by cocoa, it should not be surprising that in the years following independencethere was only limited policy interest in the poultry sector. In an early assessment of the economy it was notedthat ‘in the last five years, a poultry industry has grown up outside the larger towns’ (International Bank forReconstruction and Development 1960). Poultry received some limited attention in the Nkrumah Government’sultimately futile drive to establish large-scale, mechanised state farms in the early 1960s (Due 1969; Hinderinkand Sterkenburg 1983). Interestingly, at the same time as the state farms were being dismantled, poultry wasidentified as a promising area for new investment projects (International Bank for Reconstruction andDevelopment 1967: 29). Since then the poultry sector has had to weather the political and economic crises thatcharacterised the first four decades of the post-independence period. More recently it was affected bystructural adjustment policies and the relatively strong economic growth experienced in recent years.The sector is usually described as being comprised of two distinct parts: modern, commercial, intensive or semiintensive operators on the one hand, and small-scale, backyard, extensive poultry keepers on the other. Whilethese can appear quite distinct, in fact there are linkages between them including disease transmission and theflows of key inputs, products and raw materials (e.g. poultry feed and day old chicks). Nevertheless, in terms ofpolicy, advocacy and development they are most often dealt with as distinct, independent and, at least to somedegree, oppositional. Whether these two parts should be conceived of belonging to a single ‘poultry sector’ isopen to debate.There is a relatively small body of literature on Ghana’s poultry sector but it includes four main strands. Thefirst is made up of studies relating to either commercial or ‘backyard’ production systems. For example, Aboeet al. (2006a) and Aboe et al. (2006b) report on the husbandry, productivity and livelihood contribution ofvillage poultry near Accra, while others report drug use in commercial poultry operations and perceptions ofveterinary services (Turkson 2008; Turkson 2009). The second strand comprises reviews of the sector that arebased essentially on secondary materials (Killebrew and Plotnick 2010). Several such reviews have beenundertaken through FAO (Aning 2006; FAO 2006), while the United Stated Department of Agriculture (USDAForeign Agricultural Service also produces periodic assessments focused in large part on opportunities for USexporters (e.g. Flake and Ashitey 2008). The third strand includes both published papers and other reports thatare framed by the 2007 Avian Flu outbreak. Here work focuses on topics such as epidemiology (Pelletier et al.2012), responses (AIWG 2006) and impacts (Akunzule et al. 2009; Birol and Asare-Marfo 2008; Diao 2008;Mensah-Bonsu and Rich 2010). Finally there is a body of unpublished dissertations and studies in agriculturalschools and colleges dealing with aspects of the poultry value chain (Agbenyegah 2008; Bandanaah 2012;Dadzie 2009; Kangwongnuo 2007; Kyeremeh 2008; Larvoe 2012; Opoku 2011; Owusu 2006; Yeboah 2006).2
3. Evidence: What is known?A common narrative about the poultry sector in Ghana suggests that the 1970s and 1980s was a kind of goldenage when investments were being made, commercial producers did well and the country was nearly selfsufficient in chicken meat and eggs. This narrative suggests that this era waned as economic crises brought onstructural adjustment and trade policies associated with the General Agreement on Tariffs and Trade (GATT)and World Trade Organization (WTO), which in turn opened Ghana’s ma
Ghana’s Poultry Sector: Limited Data, Conflicting Narratives, Competing Visions James Sumberg1, Martha Awo2, Dela-Dem Doe Fiankor3, George T-M. Kwadzo3 and John Thompson1 STEPS Working Paper 56 1 Institute of Development Studies (IDS), Brighton, UK 2 Institute of Statistical, Social and Economic Research, University of Ghana, Legon 3 Department of Agricultural Economics and Agribusiness .
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