NAIP For Zambia 2014 - 2018

Government of the Republic of Zambia
Ministry of Agriculture and Livestock
Zambia
National Agriculture Investment Plan (NAIP) 2014-2018
Under the Comprehensive Africa Agriculture Development Programme (CAADP)
Final Draft

Mulungushi House
Independence Avenue
PO Box 50197
15100 Ridgeway
Lusaka, ZAMBIA
May 2013
Government of the Republic of Zambia National Agriculture Investment Plan 2014–2018
Ministry of Agriculture and Livestock (Comprehensive Africa Agriculture Development Programme)
TABLE OF CONTENTS
Foreword ....................................................................................................................................4
Acknowledgements .....................................................................................................................6
Abbreviations and Acronyms ......................................................................................................7
Executive Summary ....................................................................................................................9
1 INTRODUCTION....................................................................................................15
1.1 BACKGROUND..........................................................................................................15
1.2 APPROACH AND METHODOLOGY ...............................................................................16
2 SITUATION ANALYSIS .........................................................................................17
2.1 ZAMBIA’S ECONOMIC DEVELOPMENT CONTEXT: SUCCESSES AND CHALLENGES ..........17
2.2 AGRICULTURAL SECTOR CONTEXT ............................................................................20
2.2.1 Agriculture spending trend analysis .................................................................21
2.2.2 Agriculture growth and poverty reduction options ............................................22
2.2.3 The agriculture policy environment prior to CAADP.........................................25
2.2.4 Zambian CAADP Compact..............................................................................26
2.3 SUB-SECTORAL ANALYSIS ........................................................................................29
2.3.1 Food Security and Nutrition .............................................................................29
2.3.2 Natural Resources Base .................................................................................33
2.3.3 Production and Productivity.............................................................................37
2.3.4 Market Access ................................................................................................45
2.3.5 Service Delivery Systems and Institutional Capacity .......................................50
3 INVESTMENT PROGRAMMES .............................................................................56
3.1 OVERALL OBJECTIVE OF THE NAIP ...........................................................................56
3.2 PROPOSED STRUCTURE OF NAIP .............................................................................57
3.3 SUSTAINABLE NATURAL RESOURCES MANAGEMENT PROGRAMME ..............................59
3.4 AGRICULTURAL PRODUCTION AND PRODUCTIVITY IMPROVEMENT ...............................63
3.4.1 Livestock Component......................................................................................63
3.4.2 Crops ..............................................................................................................65
3.4.3 Aquaculture .....................................................................................................68
3.5 MARKET ACCESS AND SERVICES DEVELOPMENT .......................................................70
3.6 FOOD AND NUTRITION SECURITY AND DISASTER RISK MANAGEMENT ..........................74
3.7 KEY SUPPORT SERVICES – KNOWLEDGE SUPPORT SYSTEMS.....................................76
3.8 KEY SUPPORT SERVICES – INSTITUTIONAL STRENGTHENING ......................................78
4 SUMMARY NAIP BUDGET ...................................................................................80
4.1 COSTING METHODOLOGY .........................................................................................80
4.2 BASE COSTS ...........................................................................................................80
4.3 AVAILABLE FUNDS ....................................................................................................83
4.4 PRELIMINARY FINANCING GAP ...................................................................................83
5 IMPLEMENTATION ARRANGEMENTS ................................................................85
5.1 POLICY AND LEGAL FRAMEWORK ..............................................................................85
5.2 INSTITUTIONAL ARRANGEMENTS AND ROLES .............................................................86
5.2.1 Institutional Arrangements...............................................................................86
5.2.2 Roles ..............................................................................................................87
5.3 FINANCING MODALITIES ............................................................................................88
5.4 MONITORING AND EVALUATION .................................................................................88
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5.5 RISK ANALYSIS MANAGEMENT ..................................................................................89
APPENDIX 1: APPROACH AND METHODOLOGY ........................................................................92

APPENDIX 2: NAIP IMPLEMENTATION AND COORDINATION ORGANOGRAM ...............................97
APPENDIX 3: REFERENCES ...................................................................................................98
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Foreword
Despite the strong macro-economic indicators showing, over the past decade, poverty levels in
Zambia have remained alarmingly and stubbornly high, amongst our people, particularly those
in the rural areas. This has not only been of concern, but a great shame for anyone of us
associated with any level of leadership of our Nation – be it those in government or in the
opposition. The dismal impact on poverty reduction inspite of significant economic growth in the
past decade, underscores the urgent need for the country to refocus its development agenda in
general, and agricultural development, in particular.
For many years, it has been common knowledge that agriculture in Zambia can act as an
engine of economic growth and poverty reduction within a relatively short gestation period, but
only if it is given the necessary attention that it deserves and resources that it requires. Given
that about 80% of the country’s population depends on agricultural related livelihoods; it follows
that the agricultural sector has the greatest potential to significantly impact the country’s poverty
reduction agenda. This demands a refocusing of the agricultural sector’s development
strategies and programmes towards drivers of inclusive agricultural growth. This is what the
National Agriculture Investment plan (NAIP) seeks to achieve.
The National Agriculture Investment Plan (NAIP), which was crafted under the CAADP, has
been designed to make a difference in the manner in which the agricultural development
agenda will be pursued in Zambia, going forward – between 2014 and 2018. The emphasis of of
NAIP is pro-poor agricultural led economic development, which approach conforms to the PF
manifesto as reflected in section 3, 12 and 14. This will be realized through re-orientation of
policy and legislative framework, which support a pro-poor agricultural development agenda that
meets our Government’s poverty reduction aspirations. In addition, the NAIP has been
deliberately designed to focus on those areas that are most critical to be fastest in propelling
growth.
The key areas of support include;
(I) Sustainable use of the natural resource base;

(II) Infrastructure and market access;
(III) Food security and disaster management; and
(IV)Research and technology
These focus areas although reflected in different sections of this document are all interlinked,
complimentary and require strong synergies to ensure they remain sound.
The NAIP has been designed following a strong and elaborate stakeholder consultative process
at National, Provincial, District and Community levels. NAIP implementation will be led by the
government through MAL with strong private sector participation which is expected to
progressively grow focusing on the provision of an enabling environment that facilitates and
promotes private sector. Government will gradually give way and facilitate the private sector to
assume an increasingly greater role. At the various levels from National to Community, NAIP
will be coordinated, supervised, monitored and evaluated by appropriate existing structures,
namely the Agricultural Sector Advisory Group (Ag-SAG), the Provincial Agriculture and
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Environment Sub-committee (PAES) of the Provincial Development and Coordination

Committee (PDCC); the District Agriculture and Environment Sub-committee (DAES) of the
District Development and Coordination Committee (DDCC) as well as the Community
Agriculture Committee (CAC).
Fellow Citizens, esteemed Cooperating Partners and all stakeholders, let me make an earnest
appeal to each one of us seriously to resist the temptation of treating this as “business as
usual.” We need to quickly change from that mentality as we set ourselves to implement the
NAIP. With concerted efforts, I believe we can make a difference through the effective
implementation of NAIP. This programme can in turn contribute uniquely and significantly,
towards the goal of poverty reduction. Let us all put our hands to the plough and push forward.
Together, I am certain we can achieve much more. Infact I dare say that failure is not even an
option. Success of this programme is a compelling imperative that we must all contribute to.
May I commend all those who have tirelessly worked, sofar, in contributing to the preparation of
this programme.
May I ask God Almighty to bless the labours of our hands and minds. May I also appeal that
each one of us involved, pray for God’s wisdom in implementing this great work which is before
us.
Robert K.K. Sichinga, MP

Minister of Agriculture and Livestock
Republic of Zambia
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Acknowledgements
The Ministry of Agriculture and Livestock (MAL) would like to sincerely thank the various
stakeholders who participated in the formulation of this National Agriculture Investment Plan
(NAIP). We would like to express our special appreciation to the Minister of Agriculture and
Livestock for his supportive role throughout the process. From time to time, the Minister
engaged those involved in the formulation process to ensure that the Plan was on course. To
the Directors, I wish to extend special thanks for providing valuable technical and moral
leadership throughout the formulation process. The Agriculture Sector Advisory Group (Ag
SAG) is appreciated for providing leadership through special meetings that were called to
provide feedback to the formulation process.
We would like to salute the various provincial, district and community level stakeholders who
provided valuable information during the provincial visits. The information collected provided an
important contribution to the NAIP. The line ministries, private sector, the civil society, farmer
organizations and individual farmers were at hand to provide various inputs into the formulation
process of the NAIP. The agricultural Cooperating Partners took special interest in the
formulation of the NAIP by providing critical information as well as engaging the NAIP
Formulation Team through various fora including their monthly meetings.
The Ministry of Agriculture and Livestock would like to further extend its heart-felt appreciation
to the Indaba Agricultural Policy and Research Institute (IAPRI) for providing useful and up to
date situation analysis on the various components of the agricultural sector.
Lastly, we would like to extend our appreciation to the NAIP formulation team for putting the
document together. The Team was made up of staff from the ten (10) Departments in the
Ministry of Agriculture and Livestock, eight (8) local experts as well as three (3) FAO Technical
experts under the Investment Centre. The Team worked tirelessly in engaging stakeholders at
all levels and putting together various submissions that have given rise to this document.
Siazongo D. Siakalenge
Permanent Secretary
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Abbreviations and Acronyms

ABD Agricultural Business Department
ACF Agriculture Consultative Forum
AgSAG Agricultural Sector Advisory Group
AMIC Agricultural Marketing Information Centre
APRM Africa Peer Review Mechanism
AUC African Union Commission
CAADP Comprehensive Africa Agriculture Development Programme
CDI Capacity Development Initiative
CDSF Capacity Development Strategic Framework
CMT Change Management Team
COMESA Common Market for Eastern and Southern Africa
CP Cooperating Partner
CSO Central Statistics Office
DACO District Agricultural Coordinator
DCUs District Cooperative Unions
DMC Department of Marketing and Cooperatives
EOs Executive Officers
EU European Union
GDP Growth Domestic Product
JSRs Joint Sector Reviews
FAO Food Agricultural Organization of the United Nations
FEWSNet Famine Early Warning Systems Network
FISP Fertiliser Input Support Programme
FMU Financial Management Unit
FRA Food Reserve Agency
FRP Food Reserve Programme
FSPP Food Security Pack Programme
FSRP Food Security Research Project
GRZ Government of the Republic of Zambia
HR Human Resources
HR&AM Human Resources and Administration Department
HRM Human resources management
IFAD International Fund for Agricultural Development
IFMIS International Financial Management Information System
IFPRI International Food Policy Research Institute
IAPRI Indaba Agricultural Policy Research Institute
JASZ Joint Assistance Strategy for Zambia
JCTR Jesuit Centre for Theological Reflection
KPIs Key Performance Indicators
LCMS Living Conditions Monitoring Survey
MAL Ministry of Agriculture and Livestock
MAL HQ Ministry of Agriculture and Livestock Head Quarters
MAL M&E Ministry of Agriculture and Livestock Monitoring and Evaluation
MCDMCH Ministry of Community Development, Mother and Child Health
MDG Millenium Development Goal
MIS Management and Information System
M&E Monitoring and Evaluation
MoF Ministry of Finance
NAIP National Agricultural Investment Plan
NAIS National Agricultural Information System
NAMBoard National Agriculture Marketing Board
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NAP National Agricultural Policy

NCDP National Cooperatives Development Policy
NDP National Development Plan
NEPAD New African Partnership for Africa’s Development
NEWU National Early Warning Unit
NGO Non-Governmental Organization
NRDC Natural Resource Development College
PACO Provincial Agricultural Coordinator
PAF Performance Assessment Framework
PCS Primary Cooperative Society
PCU Provincial Cooperative Union
PEFA Public Expenditure and Financial Accountability
PEMFA Public Expenditure
PEP Performance Enhancement Programme
PER Public Expenditure Review
PFM Public Financial Management
PLARD Programme for Luapula Agriculture and Rural Development
PPD Policy and Planning Department
PPP Public Private Partnership
PRBS Poverty Reduction Budget Support
PSC Programme Steering Committee
PSMD Public Service Management Division
PSPF Public Service Pension Fund
REC Regional Economic Community
SADC Southern Africa Development Coordination
SAPP Smallholder Agricultural Productivity Programme
SIDA Swedish International Development Authority
SMC Stock Monitoring Committee
SNDP Sixth National Development Plan
SWOT Strengths, Weaknesses, Opportunities and Threats
TWG Technical Working Group
UIN Unique Identification Number
UNZA University of Zambia
WB World Bank
ZCA Zambia College of Agriculture
ZCC Zambia CAADP Compact
ZCF Zambia Cooperative Federation Limited
ZIAH Zambia Institute for Animal Health Institute
ZNFU Zambia National Farmers ‘Union
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Executive Summary
Introduction
Evidence from around the world suggests that agrarian based economies such as Zambia
require major productivity growth in agriculture for them to achieve the integrated goals of
poverty reduction, national food security and broad-based economic growth. This in turn
requires a well developed, coordinated and focused investment plan that facilitates public,
private sector, farmer organizations and individual farmer participation. In this regard, the
National Agricultural Investment Plan (NAIP) under the Comprehensive Africa Agriculture
Development Programme (CAADP) seeks to identify and prioritize key investment and policy
changes in Zambia that are critical to enhancing the desired agricultural productivity growth.
CAADP is a framework that seeks to facilitate the achievement of an annual agricultural growth
rate of at least 6% in African countries triggered by an annual national budgetary allocation of at
least 10%.
The CAADP processes are facilitated by Regional Economic Communities (RECs). The Zambia
CAADP Compact was signed in January 2011, facilitated by the Common Market for Eastern
and Southern Africa (COMESA) as a framework to accelerate the country’s realization of the
Vision 2030 through the medium term five year National Development Plans (NDPs).
Consequently, the NAIP has been fully aligned to the Zambia CAADP Compact and the Sixth
National Development Plan (SDNP) and seeks to operationalize the National Agriculture Policy
(NAP 2012).
The NAIP is organized in four (4) interrelated programmes: (i) Sustainable natural resources
management; (ii) Agricultural production and productivity improvement; (iii) Market access and
services development, and; (iv) Food and nutrition security and disaster risk management. Key
Support Services (KSS) are dealt with separately and have been split into two broad categories:
KSS – Knowledge support systems and KSS – Institutional Development. Crosscutting issues
are an integral part of the whole NAIP. NAIP implementation emphasizes private sector
(corporate private sector) led agricultural growth with government providing the necessary
facilitatory enabling environment.
The preparation of the NAIP was undertaken with a wide stakeholder consultation process at
national, provincial, district and community levels. All major stakeholder categories (including
government line ministries and the Ministry of Agriculture – MAL; the corporate private sector,
international and local Non-Governmental Organizations – NGOs; farmer associations and
groups, individual farmers) were consulted.
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Situation Analysis
Country context
Over the past decade (2001 – 2011), Zambia’s economy has been growing at an annual
average of 6% GDP, rising from -2% in 1975 and 1995. The positive rate has been triggered by
high global copper prices and robust investments in sectors such as telecommunication,
construction, retail and manufacturing. During the same period, the country has exhibited
significant improved positive macro-economic indicators including inflation rate which has
remained in the single digits, thereby significantly contributing to a reduction in the cost of public
and commercial borrowing.
Despite these encouraging positive signs, poverty rates have remained persistently high at
more than 60% since 1991. The situation with rural poverty is worse as rural poverty rates have
been stuck at 77% for the past decade, thereby negatively affecting the majority of the country’s
population that lives in rural areas. In this regard, NAIP seeks to identify priority investment and
policy changes that would result in robust agricultural growth that lessens the incidences of rural
poverty.
There is a general agreement on the nature of investment and policy changes that are needed
for a sustained agricultural growth. These fall into two categories. First, those that raise farmers’
productive capacity. These include: Research and development of new technologies; Rural
extension; Credit systems; Agricultural education; Accumulation of farm assets (labor, land and
financial); Investments in quality upgrading of existing assets (education, health, social capital,
soil fertility); Improved input supply systems, and; Investments in road and irrigation
infrastructure. Second, those investment and policy changes that improve the farmers’
incentives and depend on: Input and output prices; Perceived risk, including price and weather
related risks; Transportation costs and communication infrastructure; and the effectiveness of
institutions governing land tenure, markets and natural resource management.
Agricultural sector context
Despite the stagnant rural poverty, the growth rate of agriculture, fisheries and forestry since
2009 has been robust at more than 10%, exceeding the minimum recommended CAADP
growth rate of 6%. Over the past decade, Zambia’s agricultural growth has been highly volatile.
For instance, in 2005 and 2007, the growth rate was negative. This high level of volatility is as a
result of poor rainfall in the two years which in turn depicts the high level of Zambia’s
dependence on rain-fed agriculture. The positive agricultural growth in the three years under
review are as a result of four major factors: Favourable weather conditions in most of the major
agricultural regions of Zambia; Increased fertilizer use among smallholders, primarily caused by
increased distribution of fertilizer under the government’s Farmer Input Support Programme
(FISP); Increased hybrid seed use, and; All other factors.
Between 2007 and 2012, the Government of Zambia’s (GRZ) spending on agricultural and rural
development exceeded the recommended CAADP minimum of 10%. However, this was as a
result of supplementary spending for maize marketing through the Food Reserve Agency (FRA).
Government’s spending on agriculture exhibits a recurrent pattern. In most years, more than
60% of the expenditure on agriculture goes towards two programmes, the Farmer Input Support
Programme (FISP) and the FRA.
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The high government spending on agriculture, the robust agricultural growth rate over the past
four years and the persistent high levels of rural poverty represent a paradox. The issue at hand
is why have the high spending on agriculture and the robust growth rate not resulted in a
significant impact on rural poverty reduction? This is on account of the fact that the 72% of all
small scale farm households cultivate less than 2 hectares of land annually and are incapable to
produce enough surplus for sell in order to benefit from government spending on agriculture.
Besides, less than one third of this category of farmers received inputs through FISP in 2010
and a majority of these did not anticipate to selling maize. On the other hand, a minority of small
holder farmers who constitute 3.8% of the total small scale farm households and cultivate 5
hectares annually are the ones whose majority received input support through FISP in 2010.
Hence small sizes of cultivated land is an issue contributing to persistent rural poverty apart
from low productivity levels.
A poverty reduction agricultural-led growth requires an appropriate supportive policy

environment that stimulates the participation of all actors including the private sector. The NAIP
has highlighted areas where policy reviews, adjustments and refinements may be beneficial. For
instance, there is a need to re-align policy and increase budget allocations to production and
productivity and commercialization initiatives. Policy challenges needed for Zambia’s
agricultural development include the passing and implementation of a market-based legislation
including the Agriculture Marketing Bill and the Agriculture Credit Act, as well as fertilizer
distribution program reform and an increased private sector role in agriculture, that would allow
the value chain efficiency enhancement for priority commodities. Furthermore, general
institutional weaknesses need to be addressed within a programme-based approach to facilitate
implementation of a well-structured and prioritized investment framework.
Investment Programmes
NAIP’s overall objective is “to facilitate and support the development of a sustainable, dynamic,
diversified and a competitive agricultural sector that assures food security at household and
national levels and maximizes the sector's contribution to GDP” (NAP, 2012). To achieve this
objective, the following five impact indicators will be tracked between the current (2011) and five
years time from now (2018): (i) reduction of rural poverty from 77% to 50%; (ii) increase in
agricultural exports as a percentage of non-traditional exports from 41% in 2011 to 55%; (iii)
reduction in chronic malnutrition of children under five from 45% to 30%; (iv) reduce soil erosion
per hectare from 20tonnes to 10 tonnes, and; (v) increase cereals production from the 3.2
million tonnes to 6.0 million tonnes.
The above overall goal will be realized through the implementation of four inter-related
programmes and Key Support Services (KSS). The programmes and their respective
components are briefly highlighted as follows: (1) Sustainable Natural Resources Management
[(i) Land-use Planning, Administration and Management; (ii) Ensure efficient water-use and
irrigation; (iii) Forestry Management; (iv) Energy Efficiency Promotion, and; (v) Capture fisheries
management]; (2) Agricultural Production and Productivity Improvement [(i) Livestock; (ii) Crops;
(iii) Aquaculture development]; (3) Market Access and Services Development [(i) Institutional
market arrangements and performance; (ii) Increasing access to rural and market infrastructure;
(iii) Increasing access to rural finance; (iv) Promote value chain integration], and; (4) Food and
Nutrition Security and Disaster Risk Management [(i) Food security; (ii) Nutrition security; (iii)
Disaster risk management and mitigation].
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The two categories of Key Support Services (KSS) and their respective components/
subcomponents are as follows: (1) Knowledge support systems [(i) Research; (ii) Seed; (iii)
Extension; (iv) Agricultural education and training institutions)], and; (2) Institutional
Strengthening [(i) Policy dialogue; (ii) Planning, M&E; (iii) Financial Management (and
Procurement); (iv) Human resources management)]. The cross-cutting issues have been
embedded into all the four NAIP programmes as well as the KSS components. The cross-
cutting issues include; (i) Gender; (ii) Environment; (iii) Other sector policies & on-going plans;
(iv) decentralization.
Sustainable Natural Resources Management Programme
This programme has two major objectives: (i) To sustain increased agricultural production,
productivity and value addition of major crops, livestock, forest and fisheries by comparative
advantage in different agro-ecological regions in the country, and; (ii) To create and enhance
the sustainable use and maintenance of the existing agricultural resource base to be able to
efficiently support vibrant and resilient agricultural production systems. Selected strategic
objectives by component are as follows: (a) Land-use Planning, Administration and
Management component will focus on: (i) Improving Land Use Planning, and; (ii) Reducing land
degradation in priority catchments. (b) The strategic objective of the Water-use and Flood
Control component will be to increase availability of water for multi-purpose use. (c) Forestry
Management will target reduction in deforestation due to shifting cultivation and agriculture
extensification, and (d) Capture fisheries management will be concerned with promoting
sustainable exploitation of capture fisheries resources. To implement these components and
their respective strategic objectives will require a budget of US$ 280.80 million over the five year
NAIP implementation period.
Agricultural Production and Productivity Improvement Programme
This will have three major components; livestock, crops and aquaculture, discussed in
succession. Due to its nature, the capture fisheries has been dealt with under the sustainable
natural resources management programme.
Livestock Component
The Livestock component’s overall policy objective is “to improve the sustainable and efficient
production, productivity and value-addition of diversified livestock sub-sector”. The strategic
objectives by component are briefly discussed. The component on ensuring Animal Health and
Disease Control will focus on increasing Livestock population as well as improving vaccination
coverage while the one on promoting increased Livestock productivity and Production will be
concerned with increasing the quantity of livestock products. Ensuring adequate Livestock
Infrastructure component will target increasing livestock productivity. Lastly but not the least,
two strategic objectives: Conserve important local livestock strains and develop appropriate
livestock production technologies will be under the Support Applied Livestock Research
component. The total budget for the whole five year period is US$ 354.25 million.
Crops Component
The component’s policy objective is “to increase sustainable crop production, productivity and
value addition for a diversified range of competitive crops apart from maize”. This will need the
implementation of the following four sub-components and their respective objectives. The sub-
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component on promoting increased productivity will seek to increase crop production and
productivity, in order to meet national needs and promote exports as its main strategic objective.
The promote access to inputs sub-component will be concerned with improving access to inputs
(seed and fertilizer) through better targeting of FISP. Two other strategic objectives will be
implemented under the Crops component: Promote Good Agricultural Practices (GAP), and;
Promote mechanization of crop production systems (animal draught, etc) under the good
agricultural practices and mechanization of crop systems sub-components. The total budget for
the five year period is US$ 852.68 million.
Aquaculture Component
The policy objective for the Aquaculture Component is “to increase fish production, productivity
and value-addition through sustainable and efficient management of aquaculture”. Under the
Fish seed Development and Pond and Dam Aquaculture promotion sub-components, the
respective strategic objectives will be: To produce quality fingerlings of right species in sufficient
quantities and To establish pond and dam Aqua-parks on the appropriate areas by conducting
an Environmental Impact Assessment (EIA). The last two strategic objectives of aquaculture will
be to restock the depleting capture fisheries through Aquaculture and to establish an early
warning and planning system. These will be realized through the implementation of
Enhancement of Capture fisheries production and Climate change and climate variability sub-
components. The total budget is US$ 51.57 million.
Market Access and Services Development
This has two main policy objectives: (i) To create an enabling environment that will facilitate an
efficient supply of agricultural inputs, increase private sector participation and improve the
functioning of markets”, and; (ii) “To improve the quality and enhance the competitiveness of
potential agricultural exports in order to fully utilize markets (regional and international) thereby
increasing agricultural contribution to foreign exchange earnings”. The four components and
their respective strategic objectives are as follows. First, the component on Supporting
Institutional Market Arrangement Performance has three strategic objectives under it:
Strengthen and revitalize cooperatives movement; Establish agricultural marketing and trade
information, and; Enhance quality of commodities marketed. Second, Increase Access to Rural
and Market Infrastructure will focus on enhancing storage facilities for surplus production for
sale as well as enhancing farmers access to local and national markets. Third, Increase Access
to Rural Finance will focus on improving access to banking services and credit in rural areas.
Lastly Promote Value Chain Integration will target the improvement in value addition of
commodities and that of the warehouse systems for high yields commodities. The total budget
over the five year period is US$ 257.21 million.
Food and Nutrition Security and Disaster Risk Management
Three components will be implemented. Food security will target two strategic objectives,
improving food security at national level and reducing household level post harvest losses.
Nutrition component will address the nutrition security for households through education as well
as promote adequate food utilization at household level. Lastly, Disaster Risk Management will
enhance farmers’ protection to disaster as well as strengthen information systems. The total five
year budget is US$ 659.86 million.
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Key Support Services – Knowledge Systems
This has four components: research, seed, extension and agricultural education and training.
The four respective strategic objectives for each of the four are: (i) Enhance service delivery
systems to ensure adequate funding of research and extension through alternative financing
options; (ii) Enhance the extension service delivery systems; (iii) Enhance Seed extension, seed
testing, and variety testing, registration, and protection, and (iv) Develop and implement
appropriate training programs. The total five year budget is US$ 254.48 million.
Key Support Services – Institutional Strengthening
The five components are: Policy Dialogue and Analysis; Financial Management; Human
Resources Management; Planning, Monitoring and Evaluation (M&E), and; stakeholder
institutional capacity building. Their respective strategic objectives are: Build capacity in policy
analysis and impact assessment in Policy Planning Department (PPD); Improve budget delivery
(efficiency) and effectiveness of public spending; Improve planning management and evaluation
of Human Resources at all levels; Improve planning, monitoring and reporting of MAL activities
and results, as well as sector performance, and undertake general capacity building of partner
institutions (government, private sector, civil society organizations and farmer organizations)
that will be involved in NAIP implementation. The total cost for institutional strengthening over
the next five years is US$ 19.86.
Summary NAIP Budget
The total budget for NAIP over the 5 year implementation period is US$ 2,730.69 million. This is
broken down as follows: 78.4% or US$ 2,141.33 million will come from Government and the
Cooperating partners; 14.4% or US$ 391.67 million is expected to be contributed by farmers,
and; 7.2% or US$ 197.70 million will come from the corporate private sector. This budget does
not include investments going on at farm level nor those by the corporate private sector. On-
going and planned interventions total US$ 457 million of which US$ 308 is on budget. The
financing gap is estimated at just over US$ 651 million.
Implementation Arrangements
The private sector, local governments, central government communities and community groups
will all have specific roles and functions, with government confining itself to primarily creating an
enabling environment to facilitate effective implementation performance. The private sector is
expected to lead the NAIP implementation. An elaborate Monitoring and Evaluation (M&E)
system will be developed that allows for periodic Annual Impact Assessments that will culminate
in annual reviews. The annual impact assessments will feed into the Annual Work Plan and
Budget preparation for the following year through evidence based results.
A combination of financing arrangements will be permissible that promote alignment to

government’s financial management, procurement and monitoring and evaluation procedures.
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1 INTRODUCTION
1.1 Background
Zambia is a landlocked country located in Southern Africa, lying between latitudes 8° and 18°
South of the Equator and longitudes 22° and 34° East of the Greenwich Meridian. Zambia
shares a common border with 8 other countries: Tanzania and the Democratic Republic of
Congo (DRC) in the north; Angola in the west; Namibia, Botswana and Zimbabwe in the south,
and Mozambique and Malawi in the east. The country has a total land surface area of 752,616
km², lying between 1,000 and 1,600 m above sea level. Zambia’s main drainage systems are
the Zambezi, Kafue, Luangwa and Chambeshi-Luapula rivers. The country has five major lakes:
Kariba (man-made), Bangweulu, Mweru, Mweru-Wantipa and Tanganyika. The rivers and lakes
provide the country’s most important water, fisheries and tourism resources. The annual rainfall
ranges between 500 mm and 1,500 mm from November to March, varying with latitude and
altitude.
Evidence from around the world suggests that in largely agrarian societies, such as Zambia,
achieving the interrelated goals of rapid poverty reduction, national food security, and broad-
based income growth requires major productivity growth in agriculture (Johnston and Kilby
1975; Mellor 1995). This in turn requires sustained and well-targeted investments from the
public and private sectors, as well as from individual farmers. Triggering the sorts of
investments (and particularly Foreign Direct Investment) needed to attain significant increases
in agricultural productivity requires both a well-developed and coordinated investment plan
aimed at increasing funding for the known drivers of inclusive agricultural growth, as well as a
policy environment that encourages investments from both farmers and private enterprises. The
purpose of this National Agricultural Investment Plan (NAIP) under the Comprehensive Africa
Agriculture Development Programme (CAADP) is to identify and prioritize key investments and
policy changes needed to enhance agricultural productivity growth in Zambia in ways that will
contribute to poverty reduction and inclusive economic growth.
CAADP is a framework that emphasizes and recognizes that Agriculture has a critical role in
Africa’s development agenda to reduce poverty, food insecurity and increase household
income. The African Union (AU) and the New Partnership for Africa’s Development (NEPAD)
launched CAADP in 2003 through the African Heads of State and Government summit held in
Maputo, Mozambique. At this Summit, the African Heads of State and Government agreed to
prioritize agriculture as a leading sector to champion Africa’s economic growth path. CAADP is
an initiative that aims to accelerate agriculture development in African countries through a
minimum annual agricultural sector growth of 6%. This would be realized through the allocation
of at least 10% of the national budget to the agricultural sector.
The promotion of the CAADP agenda by AU/NEPAD in African countries is undertaken primarily
through the Regional Economic Communities (RECs). In case of Zambia, CAADP processes
have been facilitated by the Common Market for Eastern and Southern Africa (COMESA). The
Zambia CAADP Compact was signed in January 2011, as a framework to accelerate the
country’s development agenda under the umbrella of the Agriculture Chapter of the Sixth
National Development Plan (SNDP) and the Patriotic Front (PF) Manifesto, particularly sections
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3 and 12 on Agriculture and Land respectively. The Compact brings together all major players
and actors in the sector, i.e. Government, the Financing Partners (Cooperating Partners), the
Private Sector, Civil Society Organizations (CSOs) and Farmer Representatives.
Following the signing of the CAADP Compact, Zambia has identified the need to develop a
comprehensive Agriculture Development Plan, which should provide an appropriate strategic
framework for CAADP for the period from 2013 to 2017.
This NAIP is organized in four interlinked Programmes: (i) Sustainable natural resources
management; (ii) Agricultural production and productivity improvement; (iii) Market access and
services development, and; (iv) Food and nutrition security and disaster risk management.
Support services are dealt with separately while crosscutting issues have been embedded in the
whole NAIP (see Chapter 4 for details). The private sector (i.e. corporate private sector) will be
key in driving the agenda for Zambia’s agricultural development and economic growth, with
government providing the necessary facilitatory environment.
1.2 Approach and Methodology
The preparation of this National Agriculture Investment Plan (NAIP) was anchored in the
existing country development strategies and was done through a four-phased approach (see
Appendix 1 for detailed approach and methodology): (a) situation analysis/mapping of gaps,
challenges and issues; (b) synthesis of mapped gaps, challenges and issues; (c) development
of strategic focus (vision, mission, objectives) and strategies formulation/updating, and; (d)
development of implementation framework, including review of policy, legal, institutional and
Monitoring and Evaluation (M&E) frameworks, as well as costing of programme strategies and
activities (see Appendix 4 for Results Framework Summary and Costings). A wide range of
stakeholders was consulted at various levels, from national to community (see Appendix 5 for a
list of stakeholders consulted). NAIP under CAADP framework is meant to animate the
implementation of the country’s strategies and policies, including Sections 3 and 14 of the PF
manifesto relating to Agriculture and Land governance.
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2 SITUATION ANALYSIS
2.1 Zambia’s Economic Development Context: Successes and Challenges
Over the last decade (2001-2011) Zambia has achieved significant GDP growth of over 6
percent, rising from -2 in 1975 and 1995 (see Figure 1 below). The positive growth in the last
decade has been driven primarily by high global copper prices and robust investments in
sectors such as construction, telecommunications, retail, and manufacturing (CSO, various
years). At the same time, Zambia has exhibited significant improvement in several key macro-
economic indicators; inflation rates in Zambia have been in the single digits since 2009, which
has contributed to a significant decline in the cost of public and commercial borrowing (Bank of
Zambia).
Figure 1: Annual GDP Growth (%) 1965 to 2011
Source: Central Statistics Office (various years)
Despite these encouraging signs, poverty rates have remained persistently high. As shown in
Figure 2, poverty rates have remained above 60 percent since 1991. Although significant
improvements have been made in reducing urban poverty rates, poverty remains an acute
problem for rural people in Zambia, with poverty rates stuck at over 77 percent for more than a
decade. Persistently high levels of rural poverty suggest that rural people, who make up the
majority of Zambia’s population, have not effectively captured the overall improvement in
Zambia’s economic performance. This NAIP seeks to identify spending priorities and policy
changes to lessen the incidence of rural poverty through robust agricultural-led growth.
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Figure 2: Percentage Trends in Incidences of Poverty Levels (1991 - 2010)1
Source: Living Conditions Monitoring Surveys, various years.
Causes and Consequences of Broad-Based Rural Poverty Reduction: Lessons

Learned
Stagnant levels of rural poverty pose a major challenge for Zambia. Effectively addressing rural
poverty will unlock a dramatic transformation in the overall structure of the Zambian economy.
Experiences from other countries suggest that increasing rural incomes through sustained
agricultural productivity growth provides the most effective way of improving rural livelihoods
and triggering sweeping transformations in the overall structure of the economy in
predominantly agrarian societies. How does this agricultural-led economic transformation work?
The process of agricultural transformation involves a shift from low-productivity, subsistence

farming to high-productivity, commercial agriculture. These changes in agriculture, in turn,
enable two distinctive structural changes in the broader economy: a) economic diversification
into services and manufacturing and b) spatial concentration of population and economic activity
in urban centres.
Rising agricultural labor productivity provides the initial spark for this broad structural
transformation (Timmer 1988). As per capita incomes increase in agriculture, farmers diversify
consumption into non-foods (Engel’s Law). Additionally, in order to continue raising on-farm
productivity, farm households simultaneously increase demand for purchased inputs such as
fertilizer, pumps, improved seeds, fuel, transport, processing and repair services. Both sources
of increased farm household demand stimulate demand-led economic diversification into
manufacturing and services. Because of economies of scale in production, infrastructure and
power supply, many of these nonfarm businesses cluster in rural towns and urban centres
thereby providing a ready market for agricultural produce. As a result, agricultural productivity
gains contribute directly to broad sectoral and spatial transformations (Chapoto et al 2012).
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There is general agreement on the sorts of investments and polices needed to trigger the
agricultural productivity gains necessary to sustain this structural transformation (Mosher 1966;
Timmer 1988; World Bank 2008; Haggblade, Hazell and Gabre-Madhin 2010). These fall into
two general categories:
1) Those that raise farmers’ productive capacity. These include amongst others:
 Research and development of new technologies;
 Rural extension;
 Credit systems;
 Agricultural education;
 Accumulation of farm assets (labor, land and financial);
 Investments in quality upgrading of existing assets (education, health, social capital,
soil fertility);
 Improved input supply systems ;
 Investments in road and irrigation infrastructure; and
 Collective efforts to manage watersheds or other natural resources and to control
pests and diseases
2) Those that improve farmer incentives. These depend on:

 Input and output prices;
 Perceived risk, including price and weather related risks;
 Transportation costs and communication infrastructure; and
 The effectiveness of institutions governing land tenure, markets and natural resource
management.
Achieving these objectives of structural transformation requires a well-targeted combination of

public and private investments that take into account the stage of agricultural/market
development and how these affect each farmer category in Zambia, coupled with an enabling
policy environment. There is also need to understand the constraints to market participation and
adoption of improved technologies facing the country’s farmers and address these
systematically, if the above objectives are to be realized under NAIP. Studies of Asian
economies that have achieved sustained improvements in agricultural productivity, poverty
reduction, and food security help to prioritize the relative importance of policy changes and
specific investments. While there are significant differences between the Asian experience and
Zambia, the lessons learned are instructive. In the six countries examined by the Economic
Intelligence Unit (2008), policy and institutional reform, particularly in terms of improvements in
trade liberalization, privatization, and clarification of property rights, yielded the greatest
improvements both in terms of agricultural productivity growth and poverty reduction. This was
followed by public investment in agricultural research and natural resource management. An
important finding from this study is the relatively poor returns to investments in subsidies for
fertilizer, seeds, and agricultural chemicals, both in terms of agricultural productivity growth and
poverty reduction(See GISAMA Policy Synthesis #1).
Two broad conclusions regarding policy and investment priorities for Zambia emerge from these
two studies:
1. Zambia must commit to significant policy and institutional reform in order to reap the benefits
of its investments in agriculture. The specific policy reforms will vary by sub-sector, but
broadly speaking Zambia’s agricultural policies must create an enabling environment for
private sector investment in the sector. In particular, institutional strengthening aimed at
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improving the predictability of government action in agricultural markets is critical (Jayne et

al 2010).
2. Productivity improvements in cereals, root and tubers, livestock, and high-value export crops
may have significant effects on poverty reduction and economic growth. However,
increasing productivity is better achieved through investments in agricultural research,
roads, farm credit, and irrigation than through input and output subsidies.
2.2 Agricultural Sector Context
Despite the stagnant rural poverty levels in Zambia, the overall growth of the sector has been
robust for several years. As shown in Figure 1, the overall growth rate of the agriculture,
forestry, and fisheries sector in constant 1994 kwacha terms has exceeded the CAADP target of
6 percent since 2009. This has been primarily driven by significant growth from agriculture,
which has grown at a rate of over 10 percent during the same period. On the other hand, the
fisheries sub-sector has recorded negative growth over the same period, which has exerted
downward pressure on the overall growth of the agriculture, fisheries, and forestry sector.
Another important insight from Figure 3 is the high level of volatility in the growth rate for the
agricultural sector. For example, in 2005 and 2007 Zambia recorded negative growth rate for
agriculture. This volatility is primarily the result of unfavourable weather conditions in those
years. This, in turn, is closely related to Zambia’s over-dependence on rain-fed agriculture.
Estimates from FAO suggest that of the 2.75 million hectares of land with potential for irrigation
development, only 155,912 ha is currently under some form of irrigation (FAO AquaStat).
Figure 3: Agricultural Sector Growth Rate (% change in constant 1994 kwacha terms)
2003-2012
Source: CSO, various years
Several factors have contributed to the significant growth of the agricultural sector since 2009.
Over that period Zambia has recorded three consecutive years of maize bumper harvests, with
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surplus maize production exceeding one million tons in 2010, 2011, and 2012. In terms of the
magnitude of their effect, the contributing factors to the 2010 bumper harvests were: 1)
Favourable weather conditions in most of the major agricultural regions of Zambia; 2) Increased
fertilizer use among smallholders, primarily caused by increased distribution of fertilizer under
the government’s Farmer Input Support Programme (FISP); 3) Increased hybrid seed use, and
4) All other factors (Burke et al 2010). The magnitude of favourable weather conditions on
Zambia’s maize bumper crop and the under-development of its irrigation potential suggest that
Zambia remains highly vulnerable to weather pattern changes.
2.2.1 Agriculture spending trend analysis
The Zambian Government has demonstrated strong commitment to agriculture and rural
development through allocations of more than 10 per cent of the total budget goal laid out in the
Maputo 2003 Declaration. Figure 4 shows the share of the total national budget devoted to the
agricultural sector between 2007 and 2012. During that period, the actual spending on
agriculture has exceeded the 10 percent spending. However, Zambia has achieved this
spending goal primarily through supplemental funding for agriculture resulting from the
government’s response to the consecutive years of bumper harvests. In the bumper harvest
years the Government of Zambia has provided the Food Reserve Agency with supplemental
funds to procure the majority of the nation’s surplus maize production at above market rates
(Jayne et al 2011). Without this supplemental funding, spending for agriculture would have
been below the 10 percent goal since 2008.
Figure 4: Percent of National Budget Spent on Agriculture 2007-2012: Allocated and

Actual Spending
Source: Kuteya 2012
The Government of Zambia’s spending on agriculture exhibits a recurrent pattern. In most years
the majority of the total spending goes to two programs, maize purchases through the FRA and
input subsidies under the FISP. These programmes are budgeted for under the Poverty
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Reduction Programmes budget line in the Ministry of Finance (MoF). Figures 5 and 6 present
the breakdown of the agricultural budget and the Poverty Reduction Programme budget for
2013.
Figure 5: 2013 Budget Allocations to Agriculture
Source: Kuteya, 2012
Figure 6: Distribution of Poverty Reduction Programme Spending 2013
Source: Kuteya 2012
2.2.2 Agriculture growth and poverty reduction options
Given the high levels of spending on agriculture and the robust agricultural growth rates
recorded in Zambia over the last four years, the persistence of rural poverty represents a
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paradox. Why has the significant growth and spending for agriculture failed to have a
measurable impact on rural poverty? Part of the answer lies in the capacity of the rural poor to
benefit from the current spending priorities of the government.
The Central Statistical Office estimates that 72.7 percent of all small-scale farm households
cultivate less than two hectares of crops. These small farmers tend to be the poorest segment
of the rural population. Of this majority, less than a third received FISP inputs in 2010 and a
majority did not anticipate selling maize. Of those very small farmers that anticipated selling
maize, the quantities they anticipated selling were small. This implies that they are not
benefiting from government maize-buying policies because they do not have surplus to sell.
Conversely, among the minority of farmers cultivating 5 hectares or more, which makes up only
3.8 percent of all smallholder households, the majority received FISP inputs and their
anticipated sales were high. This same group of farmers buy their own fertilizer and they do not
need subsidies. As this suggests it tends to be the relatively wealthy rural minority who
disproportionately benefits from current government spending patterns for agriculture, rather
than the target group, the most vulnerable
Small landholding among small-scale farmers is frequently attributed to labor and capital
constraints; because Zambia is often considered a land abundant country, land access is rarely
considered a binding constraint for small-scale farmers. However, while labor and capital
constraints certainly limit the size of farmers’ fields, increasing evidence suggests that land
constraints are a real problem in many customary land areas in Zambia. Nationally
representative survey data from 2001 and 2012 shows that roughly 56 percent of small-scale
farmers believe that there is no land in their village that has not been allocated to someone
(Sitko and Jayne 2012). The lack of unallocated land leads to land fragmentation and
decreasing farm sizes as farmers sub-divide their land for future generations. This has worrying
implications. As Hichaambwa and Jayne (2012) show, land size is closely correlated to a
farmers’ capacity to effectively commercialize production. An increase in 1 hectare of land for
farmers with less than 2 hectares contributes to an increase in agricultural sales of 330-550
percent, while gains in land access among those with 5 hectares or more have only a minimal
effect on levels of commercialization (Hichaambwa and Jayne 2012).
Another important and interrelated factor contributing to the persistence of poverty in rural
Zambia is the consistently low yields farmers achieve for most agricultural crops. As shown in
Figure 7, for most major food crops in Zambia yield remain well below global averages.
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Figure 7: Average yields of key commodities compared to global average
Source: CFS datasets, various years with Global figures obtained from COMESA
As these data suggest, the majority of rural Zambians operate under conditions of relatively
severe land constraints and low yields, which makes it extremely difficult for them to effectively
benefit from the Government of Zambia’s current spending priorities for agriculture. Improving
agricultural productivity and farm incomes, in the context of land constraints for the majority of
small-scale farmers, is therefore a priority for GRZ.
A Computable general equilibrium (CGE) model was used to analyze the growth potential of
agriculture sector and the results showed that Zambia can reach the six percent agricultural
growth if additional growth in all crops and sub-sectors is realized (IFPRI, 2008). The model
further indicated that Zambia couldn’t rely only on maize or higher-value export crops to achieve
this growth target. Rather, broader-based agricultural growth, including increases in diversified
crops, fisheries and livestock production, will be important. Even if Zambia is already committing
more than 10 percent of the national budget to the agriculture sector, the current expenditures
have not proved effective at reducing poverty or increasing agricultural growth. CAADP targets
include expenditures in research and development and key agricultural expenditures in other
sub-sectors. In order to meet the CAADP target, the Government of Zambia must increase its
spending on agriculture in real value terms by about 17–27 percent per year between 2006 and
2015, and spend about 8–18 percent of its total expenditure on the sector by 2015. Moreover
the expenditures should also be diverted to other crops and agriculture subsectors.
The government has been engaged in defining a framework that will give an opportunity to
revisit, in a comprehensive manner, the issues the agriculture sector is facing, identifying
strategic options and strategies for poverty reducing growth including diversification of the
agricultural sector, which will be central in improving resilience of the food system to future
challenges such as climate change. GRZ felt critical the development in a coherent and
harmonized manner of a long term framework to guide the planning and implementation of
current and future policies, NDPs, and other development initiatives and providing a framework
for increased investments in particular in critical programmes that would stimulate growth and
private sector involvement. SNDP also calls for integration of climate change into major
development sectors.
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2.2.3 The agriculture policy environment prior to CAADP
Zambia experienced several phases of policy changes that affected the agriculture sector
starting from market economy from independence in 1964 to the early 1970s, then a state-
controlled economy from the early 1970s to the mid-1980s, followed by structural adjustment
programs before returning to an introduction of neo-liberal policies in the 1990s (Kodamaya,
2011).
After 1991, Government of the Republic of Zambia (GRZ) implemented economic liberalization
and de-regulation policies such as the privatization of state enterprises and liberalization of
agricultural markets and trade. The trade balance for cereals recorded a deficit for all years in
the 1990s. That decade is known as very difficult for the rural dwellers who became
impoverished as the result of lack of Government support towards the agricultural sector.
From 2001 to 2008 the “New Deal” administration recorded economic growth with agriculture as
the centre of Zambia’s development and poverty reduction as the main goal. The policies
implemented were based on the PRSP 2002–2004 where the principal interventions in the
agricultural sector included “Targeted Support System for Food Security” in order to “promote
the use of low-input and conservation farming technologies” and encourage low-input
agriculture utilizing conservation farming rather than providing inputs such as fertilizer. However,
some policy changes were later introduced including the government involvement in maize
marketing and re-introducing fertilizer subsidies. The government expanded the role of the Food
Reserve Agency (FRA) by making it a de facto marketing board and playing the role of
importing fertilizer and distributing supplies to smallholder farmers until 2002, when the Fertilizer
Support Program was launched (World Bank, 2010).
Sixth National Development Programme (SNDP)
The current major guiding document of the agriculture sector in Zambia is the Sixth National
Development Plan (SNDP) 2011–2015 that is the successor of the Fifth National Development
Plan (FNDP). The SNDP’s main objective is to renew the Vision 2030’s goal for “a prosperous
middle-income nation by 2030”. The main theme of the SNDP is “sustained economic growth
and poverty reduction”. The SNDP amongst others defines Agriculture, Livestock and Fisheries
as main priority growth sectors together with Mining, Tourism, Manufacturing and Commerce
and Trade. The SNDP planned important investments in infrastructures that will support the
sector’s development. The SNDP has eight objectives focusing on Crops, Livestock and
Fisheries. The eight objectives are intended to achieve food security in an environmentally
sustainable manner. Agriculture commercialization is a key objective that would be attained
through the promotion of competitive, efficient and transparent public and private sector driven
marketing system for agricultural inputs and outputs and also increase market access both
national and international.
National Agricultural Policy (NAP)
The Zambia National Agricultural Policy 2004–2015 is aimed at achieving five main objectives
that would help to ensure national and household food security through all-year-round
production and post-harvest management of adequate supplies of basic foodstuffs at
competitive costs” (Zambia, 2004). Concerns being raised by some stakeholders in the sector
including the heavy support given to the agriculture system through specific commodities and
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the current political environment have necessitated the review of the NAP (2004-2015). The
revised NAP aims at achieving “An efficient, dynamic, competitive, sustainable and value-
adding export led agricultural sector that assures income, food and nutrition security for
vulnerable rural households while ensuring competiveness for the agriculture industry.” The
policy measures that will be implemented to achieve the vision of the NAP include amongst
others promoting diversification of agricultural production, productivity and utilization, through
strengthen research and agriculture extension delivery, improve both input and output marketing
and stakeholders involvement, foster investments and infrastructure development as well as
strengthen capacity.
2.2.4 Zambian CAADP Compact
The Comprehensive Africa Agriculture Development Programme (CAADP) is an initiative by

African governments under the African Union/New Partnership for Africa’s Development
(AU/NEPAD) to accelerate growth and eliminate poverty and hunger among African countries.
The main goal of CAADP is to help African countries reach a higher path of economic growth
and achieve Millennium Development Goals (MDGs) through agriculturally-led development
which eliminates hunger, reduces poverty and food and nutrition insecurity, and enables
expansion of agricultural exports.
As a continental framework for food security and agriculture development, CAADP has been
designed and is fully owned and led by African governments. The Common Market for Eastern
and Southern Africa (COMESA) has been mandated to coordinate and harmonize CAADP
implementation at national and regional levels in collaboration with the Department of Rural
Economy and Agriculture (DREA) of the African Union Commission (AUC), the NEPAD Planning
and Coordinating Agency (NPCA) and Development Partners (DPs) and in close consultation
with the Southern African Development Community (SADC). COMESA in its coordination and
leadership role in CAADP implementation has guided in conformity with the broader principles of
experience sharing and dialogue, mutual accountability, and partnership.
In principle, CAADP seeks to achieve a 6 per cent average annual growth rate for the agricultural
sector with the already stated allocation of at least 10 per cent of the national budget to the
sector.
The Zambia CAADP Compact (ZCC)2 is intended to strengthen, support and facilitate effective
implementation of the National Agriculture Policy (NAP) and the Vision 2030 through five-year
phases of National Development Plans (NDPs), and is aligned to the four CAADP pillars (see
Table 3):
 Pillar I: Sustainable land and water management

 Pillar II: Rural infrastructure and markets
 Pillar III: Food supply and hunger
 Pillar IV: Agriculture research and technology dissemination
The Government of Zambia embarked on preparing a CAADP Compact with a National

ownership as the entire process is ‘driven’ by the national side. The Ministry of Agriculture and
Livestock (MAL) took the Political leadership with other sector line and coordinating Ministries
2
This is neither an international treaty nor a legally binding instrument.
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under the strategic guidance (coordination, oversight) of the ‘Agricultural Sector Working Group
and Ag sector Advisory Group – AgSAG). There was not a ‘CAADP-specific WG’ established,
although the use of all departments of MAL technical expertise was facilitated and also the
strengthening of existing platforms improved ‘inclusiveness’ especially with regard to the private
and associative sectors, as well as academia. This level was the stakeholder forum.
The CAADP compact was prepared following the standard process that starts with a strong
analysis of the sector with a stocktaking exercise, that consists of a review of the country’s past
agricultural performance, current trends, future outlook, and strategies and policies. Some
modelling was also done to determine the extent of growth and poverty reduction that could be
achieved if various options were to be focused on. The stocktaking also assessed the extent to
which Zambia was in the right direction to achieve CAADP targets and what would be the main
requirements to reach those targets (IFPRI, 2008).
The Government through its Ministries of Finance and National Planning (MFNP), Agriculture
and Cooperatives (MACO), Livestock and Fisheries (MLF), and other relevant stakeholders on
18 January 2011 signed the Zambia CAADP Compact. These relevant stakeholders include
Development Partners, Civil Society (ACF), Farmers Organizations (ZNFU), Private Sector
(Zambia Association of Manufacturers), COMESA, the African Union and NEPAD.
Subsequently, the recently elected Government of Zambia launched the preparation of the
Zambia National Agricultural Investment Plan (NAIP), on 26 July 2012, with the aim of preparing
a strategic framework for the prioritization, and planning of investments that will drive Zambia’s
agricultural growth and development. NAIP is designed to operationalize the CAADP compact.
The NAIP is a 5-year road map for agricultural and rural development that identifies priority
areas for investment and estimates the financing needs to be provided by Government and its
development partners (including the private sector). It is anchored to, and aligned with, the
national vision of becoming a middle-income country by 2030 together with a number of key
policy and strategic instruments including the National Agricultural Policy (NAP), the Sixth
National Development Programme (SNDP), and the signed Zambia CAADP Compact.
The CAADP process including Compact and NAIP development is timely as both NAP and
SNDP are currently under revision to incorporate Patriotic Front Manifesto priorities (see Table
3). Those revisions also give an opportunity for a complete alignment and harmonization of the
strategic documents guiding the actions of the GRZ for the agriculture sector development.
There are other policies influencing the agriculture sector development that need to be
acknowledged:
• National Food and Nutrition Policy

• National Water Policy
• National Policy on Environment
Also impacting the agriculture sector development potential is the fact that agriculture is the
most climate-sensitive sector and climate change (CC) is expected to negatively affect food
security in most sub-saharan countries (IFPRI, Lobell...). This is reflected in the World Bank
PPCR project in Zambia, which includes addressing climate resilience in the agriculture sector.
In national development and environment instruments, climate change features prominently as
does agriculture in this context. National environment instruments dealing with climate change
include agriculture (NAPA, NCCRS..). A national climate change programme to coordinate CC
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activities is being prepared. It will be led by the MoF, and MAL will be expected to play a part.
NEPAD has also organized workshops on integrating climate change adaptation and mitigation
into national agriculture and food security investment plans within the context of CAADP. It
seems increasingly certain that the achievement of agricultural development and food security
goals will require climate change adaptation, which should be taken into account in any future
investment plan.
Clearly, the achievement of agricultural development and food security goals will require climate
change adaptation. In this regard, NAIP has been developed in such a way that it addresses CC
issues. Addressing climate change in the context of agriculture will need to form part of a
Zambian long-term framework guiding planning and implementation of current and future
policies. Floods, droughts, heavy rainfall and other extreme events in Zambia are expected to
increase in intensity and frequency. Already, recurrent droughts and floods are intensifying,
resulting in adverse and significant impacts on lives and livelihoods, and damage to key
infrastructure. If left unaddressed, it is estimated that climate change and variability could
reduce GDP growth by 0.9% a year, costing Zambia US$4.3 billion in lost GDP over the next
decade, and place the achievement of national development goals at risk. Thus, climate change
issues are increasingly intertwined with the nation’s development goals and will require
integrated and adaptive strategies at national, regional and local levels.(source: Zambia:
Strategic Program for Climate Resilience (SPCR) 2011).
For the above reasons, institutional strengthening would need to include better integrated and
aligned policy making and planning between Ministries of Agriculture and Environment and
other key stakeholders. The CSA project (FAO, 2013) will use policy dialogues and participatory
scenario building tools to increase awareness of and develop policy options for a more holistic
approach to national agriculture, food security and climate change goals.
The components of the NAIP also have key benefits but also trade-offs for climate change.
These need to be taken into account in identifying specific activities. SLM practices can
increase productivity but also have adaptation and mitigation benefits. Irrigation will increase
resilience to recurrent droughts. More efficient use of fertilizers can limit nitrous oxide
emissions while organic fertilizers may improve water retention and soil carbon sequestration.
Diversification will need to take into consideration climatic uncertainty and risks. The CSA
project (FAO, 2013) may help with understanding and overcoming barriers to adoption of
conservation agriculture. It can also help in building capacity in Ministries of Agriculture to
understand and integrate climate change into agricultural policy and planning.
The CAADP and NAIP processes have highlighted areas where policy reviews, adjustments
and refinements may be beneficial. First, there is a need to re-align policy and increase budget
allocations to production and productivity and commercialization initiatives; as the need for food
aid and other forms of food security related development assistance declines. Attracting private
investment is key to successful rural commercialization along with attention to other dimensions
of the enabling environment for rural commercial development. In addition, general institutional
weaknesses need to be addressed within a programme-based approach to facilitate
implementation of a well-structured and prioritized investment framework.
Some policy challenges of Zambia’s agricultural development include the passing and
implementation of a market-based legislation including the Agriculture Marketing Bill and the
Agriculture Credit Act, as well as fertilizer distribution program reform and an increased private
sector role in agriculture, that would allow the value chain efficiency enhancement for priority
28 | P a g e
commodities, Land use planning and Land administration have been identified as important
issues in a number of documents and the need is to improve land use planning and land
administration in order to achieve sustainable land management by enhancing security of tenure
of smallholder farmers, through efficient and effective land policies, legislation, certification and
administration. There is a lack of focus on livestock development policy including small
ruminants. There is need to give attention to related policy issues of production and productivity
as well as animal health. The National Water Supply and Sanitation Policy needs to be
developed in order to ensure the protection of water and sanitation infrastructure against
disasters and natural hazards.
Based on the previous discussion, this will require, among other things:
1. Prioritizing investment in agricultural research, aimed particularly at identifying crop

varieties, input application recommendations, and animal husbandry techniques that
are well suited for small farming systems operating under rain-fed conditions. Moreover,
investments in extension services to disseminate research findings and overcoming
barriers to adoption of innovative practices are necessary;
2. Increasing investments in road systems to better link farmers to markets and to lower
transaction costs. These investments may also stimulate voluntary migration to
currently under populated regions, which would help to ease some of the land
constraints being experienced in some small-scale farming areas;
3. Developing strategies for increasing the investments in irrigation;
4. Redirecting funding away from low return subsidy programmes will be necessary to
increase spending in the known drivers of agricultural productivity growth, and;
5. The effectiveness of these investments will ultimately depend on improving the
predictability of government action in agricultural markets, particularly in terms of the
behaviour of FRA’s buying and selling practices and regulations over cross border
trade.
2.3 Sub-sectoral Analysis
2.3.1 Food Security and Nutrition
2.3.1.1 Context
Food and nutrition security focuses on a number of issues including: affordable food prices,
steady food availability, knowledge and skills in processing and preservation of diverse foods,
stability of sources of income and the general education for male and female parents and
guardians. This component of the NAIP focuses on the chronically food insecure as well as
populations vulnerable to and affected by various emergencies and crises linked to the
Millennium Development Goal targets of extreme poverty and hunger http://www.nepad-
caadp.net/pillar-3.php. Despite its rich agricultural resources, Zambia has continued to
experience chronic food and nutrition security problems. Stunting rates in Zambia stand at 45
percent, with 21 percent being severe. Stunting remains the most common nutritional disorder
affecting under five years children in Zambia, above the sub-Saharan Africa average of 42
percent; and (ZDHS 2007).
The best available direct measure of food insecurity is an estimate of daily energy intake
manifesting in high stunting rates for children and low BMI for adults. Nearly half of the country’s
29 | P a g e
rural population, 45 percent have daily caloric intakes below 1,750 (an average for individuals of
all age groups) per day (FAO food balance sheet calculation) while their families spend nearly
80 percent of their incomes on food. Calorie consumption ranges from 1,185 in Luapula
province and 2,103 in Lusaka compared with an estimated average daily requirement of 2, 750
and 2, 600 for men and women respectively. The FAO food balance sheet calculation also
indicates that, on average, only two percent of calories consumed by Zambians are from pulses,
vegetables, and nuts highlighting the dire need for dietary diversity. Shortage of nutrients in
diets limit growth, weakens immunity, cause xerophthalmia (an irreversible eye disorder leading
to blindness), and increase mortality.
Results from the nationally representative Rural Agricultural Livelihoods Survey (RALS) 3
conducted between May 2011 and April 2012 show that 42% of rural households expereinced
food shortages during that time, while 52% had sufficent food access (see Figure 8). The period
under consideration coincided with a major bumper harvest in Zambia. During normal
prodcution years the number of food insecure households would in all likelihood be higher.
Of the 42% food insecure agricultural households, the average number of months that they went
without sufficent food access was 3.2 months. As shown in Figure 8, most household food
deficits in rural Zambia occur during the months of Decemeber, January, and February. This
suggests that food security in rural Zambia has a distinctly seasonal dimension, which coincides
with Zambia’s production and marketing season. Between Decemeber and February, food
stocks from agricultural household’s own prodcution begin to diminish, while at the same time
the prices of food in retail market begin to rise. As a result many rural households are forced to
forego meals or decrease the quantities of food served per meal.
Figure 8: The Seasonality of Food Security in Rural Zambia (2011-2012)
2.3.1.2 Challenges
Low energy intake: Zambia has low energy intake (the best proxy indicator for food
insecurity). The estimated average daily requirement for men and women (FAO) is 2,750 and
2,600 respectively. However, 45% of Zambia’s population have daily caloric intakes that are
3
The Survey was jointly conducted by CSO, MAL, and IAPRI
30 | P a g e
below 1,750 (average for all age groups – FAO Food Balance Sheet calculation). Calorie
consumption ranges from 1,185 in Luapula province to 2,103 in Lusaka.
Serious stunting levels: Stunting remains the most common nutritional disorder affecting
under five year children. Stunting rates stand at 45% and are above the Sub-Saharan Africa
average of 42% (ZDHS 2007) and in rural areas are commonly at 53%. Of the 45% stunting
rates, 21% are severe.
Dominance of mono cropping: In terms of cropping characteristics, small-scale farming

systems are overwhelmingly dominated by a single crop, maize. For instance, about 82% of all
smallholders grew maize in 2009/10. This presents a nutrition challenge where maize accounts
for 57% of daily caloric consumption (FAOstat). The FAO Food Balance Sheet calculation
indicates that, on average, only two percent of calories consumed by Zambians are from pulses,
vegetables, and nuts highlighting the dire need for dietary diversity.
Poor coordination among key players dealing with food and nutrition: The persistence of
malnutrition as a public health concern despite increasing agricultural production belies any
notion that the malnutrition and under nutrition problem can be solved entirely from the supply
side by increasing production. Nutrition is intrinsically multi-sectoral, and strategies to improve
nutrition outcomes should seek to purposefully integrate the contribution of relevant disciplines.
Multi-sectoral efforts intended to simultaneously address agriculture and nutrition have often
been hindered by institutional barriers and insufficient resources.
Poor food storage at household level: emphasis of food security should be at household
level. Presently, inadequate food is stored at this level due to low production and productivity
(as noted in section 4.1.3 – Production and Productivity Improvement) as well as an absence of
appropriate storage technologies. These challenges have led to the situation highlighted in the
Market Access and Services Development programme (Section 4.1.4) which states that only
21% of the small scale farmers sold maize in 2008 while 36% were actually net-buyers of
maize.
Inadequate nutrition education: this includes education/information on preparation of locally

based/produced nutritious foods. There is need to rationalize the food production time for our
farmers and that of food preparation and nutrition. It is not only important to produce the food
but to rationalize the role of household food production, food preparation time and Nutrition.
Women play dual roles in both agricultural production and nutrition (food preparation), and
interventions that consider trade-offs between their respective roles and their time and labor
constraints are more likely to lead to positive outcomes.
Inadequate mechanisms to deal with disaster risk management: the country has notable
gaps in mechanisms calculated to deal with disaster risk management including inadequate and
poor functioning weather related insurance; weak information systems (e.g. early warning
systems) targeting disaster management, and weak vulnerability assessment institutions.
2.3.1.3 Lessons Learnt
Women need to be appropriately facilitated to enhance household food and nutrition

security: Agriculture in Zambia supports the livelihoods of over 70 percent of the population. At
least 78 percent of women in Zambia are engaged in agriculture, compared with 69 percent
men. Consequently if facilitated with appropriate support services, women have the potential to
31 | P a g e
significantly contribute to food and nutrition security and given their dual roles highlighted above,
those related to both agricultural production and nutrition (food preparation).
Need for an all-inclusive growth: Zambia’s economy has grown steadily in real terms since
2001. However, the percentage contribution of the agricultural sector to GDP declined from 16
percent in 2001 to 12.6 percent in 2009. Though the overall poverty rate in Zambia has declined
over time, poverty rates in rural Zambia remain stubbornly high, with 80 percent of the rural
population living in poverty. This underscores the dire need for an all-inclusive economic growth
that includes the majority of the small-scale farmers scattered across different parts of rural
Zambia. It is this nature of economic growth that would have the desired positive impact on
reducing food and nutrition insecurity.
Low agricultural production partly as a result of poor technology update: While input use
has trended upward since 2001, 60 percent of Zambia’s farmers still do not use fertilizer on their
fields, while more and among those that use fertilizers only 27 percent have access to it when
they need it. More than 60 percent do not use hybrid maize seeds even though a maize seed
subsidy programme has been under implementation for more than a decade. These are key
contributing factors to low small-scale farmer production and productivity that inevitably leads to
poor food and nutrition security. These challenges become even more important under climate
change as unpredictable rainfall and temperature patterns make the timing of fertilizer use and
the use of suitable seeds more critical to the production process.
Food and nutrition security is a cross-cutting issue and may be addressed through the
“Farming as a Business” approach: Food and nutrition concerns cut across all the other
three key programmes under this NAIP: Sustainable Natural Resources Management;
Production and Productivity Improvement, and; Market Access and Services Development. At
the core of efforts aimed at addressing food and nutrition insecurity is the promotion of the ethos
of “Farming as a Business”. The Sida/Government supported Agricultural Support Programme
(ASP 2003-2008) whose emphasis was capacity building on “Farming as a Business” in four
provinces of the country4 had remarkable results among participating households and
communities (ASP End of Programme Impact Evaluation, 2011). These results included: (1)
Heightened household assets acquisition (improved houses, oxen/cattle, light trucks, etc.) and
community (dip-tanks, dams/weirs) asset for a considerable proportion of participating
households. (2) More than 90% of participating households did not face food and nutrition
insecurity problem. The participating households were involved in a variety of enterprises and
had enough financial capacity to procure food throughout the year (FGD, NAIP Mbala
Community Consultations, 2012).
4
Southern, Central, Northern and Eastern
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2.3.2 Natural Resources Base
2.3.2.1 Land
2.3.2.1.1 Context
Zambia covers 752 610 km2 land area with a total mass of 75 million hectares. Land
administration in Zambia has been a subject of wide spread interest due to competing needs
that include housing, investment, mining, forests and agriculture. Land access and acquisition
has posed societal and developmental challenges in the country. Mean land access among
small and medium farmers is roughly 3 hectares. There are large variations among provinces
(see Table 1), within provinces and, most importantly, within villages. Western, North-western
and Lusaka provinces have the smallest mean household access, less than 2 hectares (World
Bank, Social Analysis paper,2005).
Table 1: Population, land area, population density, and land access per household
Province Population Land Area (km2) Population Ha/Household
Density per Land
Area (km2)
Central 1006766 94394 10.7 3.23
Copperbelt 1657646 31328 52.9 3.18
Eastern 1300973 69106 18.8 2.20
Luapula 784613 50567 15.5 2.61
Lusaka 1432401 21896 65.4 1.98
Northern 1407088 147826 9.5 6.54
N-Western 610975 125826 4.9 1.70
Southern 1302660 85283 15.3 2.40
Western 782509 126386 6.2 1.75
Zambia 10285631 752612 13.7 3.05
Source: CSO 2001.
While the 1995 Land Act vests all land in Zambia in the President, who holds it in perpetuity for
and on behalf of the people of Zambia, the Zambian land tenure system consists of two
systems: customary rights applying to the old Reserve and Trust land, now referred to as
customary land, and statutory tenure applying to state (was Crown) land. Because of the
significant differences between them, there has been discrepancies in the agricultural
production and productivity of the two areas and occupancy (Mulolwa, 1998).
Customary tenure covers an estimated 94 per cent of the Zambian area. The recognition of
customary tenure does not bring about the registration of ownership rights, but rather only the
protection of use and occupancy rights. Customary land is controlled by the chiefs and their
headmen but supposedly act with consent of their people. The role of the chief in most Zambia
is as regulator of the acquisition and use of land but there are important variations in the tribes
between the distribution of the interests of control and interests of benefit. Thus the use of these
pieces of land are controlled by chiefs and headmen.
Statutory tenure covers an estimated 6 per cent of the Zambian area. The formal registration
of land ownership is arranged in the lands and Registry Act. In this arrangement, once the
President has given his consent to an application of ownership of land, a certificate of title,
which is conclusive evidence of title (Mulolwa,1998) is headed over. Registration does not cure
33 | P a g e
defects in documents but the registered proprietor of a certificate of title is protected against
ejection, or adverse possession. Pieces of land obtained in this manner usually can or may be
used as collateral in case of obtaining a loan from lending institutions as compared to the
customary tenure.
With respect to agriculture production and productivity, approximately 16.35 million ha of

Zambian total mass area is arable land and 5.3 million hectares (28% of total area) is cultivated
and of this, 29,000 ha is under permanent crops.
2.3.2.1.2 Challenges
Land Administration - If a conflict arises over land, it will generally be resolved by a village
chief with help of a group of elders. The security of these rights might be based on the state of
mind of the chief, or a concrete fact. Conflicts of interests in land do not have a formal
procedure. These issues have important links to property rights, investment and economic
opportunities for both urban and rural development. It is also clear that the system governing
land administration, forestry and environmental management in the country is fragmented. This
fragmentation contributes to inadequate collaboration, coordination among government
institutions as well as stakeholders that deal with land administration.
Land Management - Zambia’s land base is environmentally fragile and easily degraded. A
variety of different land degradation processes are at work through natural factors (water and
wind erosion, soil fertility decline, pollution, salinization, vegetation loss and climate variability)
and human induced factors (inappropriate management practices; poor management of natural
forest and tree plantation/woodlot; removal and degradation; overgrazing; poor management of
surface and groundwater resources; forest fires; and population growth). There is strong
evidence that large areas of the croplands, grasslands, woodlands and forests are already
seriously degraded. Soil nutrient depletion in the fields of small-scale farmers is severe with
inadequate replenishment of the nutrients lost due to soil erosion, leaching and removal in
harvested products.
2.3.2.2 Water and Irrigation
2.3.2.2.1 Context
Water - Among the Southern African countries, Zambia is taunted as the most endowed with
surface and ground water supplies. According to the Government of the Republic of Zambia,
the country has about 45% of the water supplies of the total water resources of Southern Africa.
The mean annual runoff is around 100 billion cubic meters while 60 billion cubic meters is stored
in rivers, lakes, streams and swamps.
There are about 1,700 dams. The total capacity is about 106 km3, but this includes 50 percent of
Lake Kariba on the Zambezi River, which is shared between Zambia and Zimbabwe and which
accounts for 94 km3 of this capacity. Not taking into consideration this shared dam, the total
capacity is thus about 12 km3. However, this figure probably also includes small dams with a
height of less than 15 meters.
Zambia lies entirely within two large river basins, the Zambezi River basin and the Congo River
basins. Below are three major river systems within the Zambezi River basin and two within the
Congo River basin (Water Sources and Use, Source:FAO,2012);
34 | P a g e
Wetlands, including dambos, which cover about 3.6 million hectares or 4.8 percent of the total
land area, are a source of livelihood for the majority of small-scale farmers in Zambia. Dambos
are used for grazing animals in the dry season when upland vegetation is dry and with little
nutritive value. They are also important for fishing, livestock-watering, hunting of small animals,
collection of thatching grass, and most importantly, for dry season vegetable growing. Seepage
zones and shallow wells are used as sources of water. Sometimes water storage needs for
irrigation may dictate the construction of a low-cost earth dam. This type of use at small-scale
does not entail the use of heavy machinery for cultivation or draining water.
Total water withdrawal was 1.737 km3 in 2000, with agriculture use accounting for 1.320 km3 (77
percent), or more than three-quarters of the total domestic water use claiming 0.286 km 3 and
industries taking 0.131 km3. Future water use was estimated to reach 1.922 km3/year by 2012,
assuming that land under irrigation would continue to expand at the rate of 1,200-1,500 ha/yr,
industrial use would increase by 10 percent (FAO, 2012).
Irrigation - Zambia’s irrigation potential is estimated at 2.75 million hectares. It is believed that
523 000 ha can be economically developed, but the variance on figure presentation of the
potential by different authors indicate the need for a systematic assessment to determine the
correctness of the findings (FAO 2012). The following categories of irrigated farming are found
in the country: a) Informal irrigation by small-scale farmers; b) Smallholder irrigation schemes; c)
Former quasi-government schemes; d) Private or commercial irrigation schemes;
The total estimated area equipped for irrigation is 155,912 ha, broken down as follows: (i)
55,387 ha under full or partial control irrigation (surface 32,189 ha; sprinkler 17,570 ha, and;
localized irrigation 5,628 ha); (ii) equipped lowlands (wetlands, flood plains, mangroves),
100,525 ha, and; (iii) spate irrigation, zero. Adding (iv) non-equipped wetlands and inland valley
bottoms, and (v) non-equipped recession area gives a total water-managed area of 255,992 ha,
with the later two contributing 100,000 ha and 10 ha respectively (FAO Aquastat Data, 2005).
Zambia with more water resources only had 0.9% of its arable land irrigated between 1995 and
1997 (GRZ, 2006). Most of the irrigated land lies along the line of rail, above karstic areas for
ground water, adjacent to standing water bodies such as rivers and dams, and in dambos and
wetlands for smallholders and emergent farmers (GRZ, 2004).
Irrigated agriculture has shown to increase yield two-fold to four-fold when compared with rain-
fed agriculture. Rain-fed wheat yields between 1.5 and 2 ton/ha compared to the national figure
of 6 ton/ha when irrigated. Similarly rain-fed maize yields 1.5 ton/ha using conventional methods
compared to 3 ton/ha under conservation farming and/or water harvesting conditions and 9
ton/ha under irrigation. The main irrigated crops are sugar cane (18,418 ha), wheat (12,200 ha)
and rice (8,000 ha). Other irrigated crops include vegetables (3,000 ha) and maize (1,500 ha).
All these are annual crops. The major permanent crops under irrigation are coffee (5,160 ha),
bananas (3,000 ha) and citrus fruits (2,210 ha). Cotton irrigation has virtually collapsed in the
country due to commercial farmers opting for high-value irrigated crops like paprika. About 88
percent of the area equipped for full or partial control irrigation draws its water from surface
water and 12 percent from groundwater.
The Government has developed and managed smallholder irrigation schemes with external
financing and GRZ own resources. But most of these schemes were poorly managed as a result
most of them are in deplorable infrastructure state. Until recently the majority of Zambians
35 | P a g e
shunned irrigation with a view that it entailed huge investments requiring pump sets and pipe
networks. However, frequent and disastrous droughts, which led to the failure of rain-fed crops,
forced farmers to go into some form of irrigation using available surface water resource (FAO
2012). The challenge seems to identify suitable sites, and also the type of crops that can be
grown economically, allowing scheme operators to make a return, so that operations and
maintenance costs can be covered. Institutional aspects are also a key factor influencing the
success of irrigation schemes, and the establishment and training of Water Users Associations
is seen as a sine qua non condition for the successful operation of irrigation schemes.
2.3.2.3 Forestry
2.3.2.3.1 Context
The Integrated Land Use Assessment - ILUA (2005-2008) has prepared the following country’s
forestry status: (i) The forestry cover is estimated at 49.9 million hectares or 66% of the
country’s total land cover. Most recent estimates (2009-2010) put the forestry cover at 55%,
quite a significant drop from the 66%; (ii) The total growing stock in volume across all land uses
in Zambia stands at 2.9 billion cubic meters; (iii) The national biomass is estimated at 5.6 billion
tones. There are 2.8 billion tons of carbon stored in the country’s forests.
Agricultural land covering about 20 percent of the land area is the largest contributor to loss of
forest in Zambia. The rate of deforestation is estimated at 250 000 to 300 000 hectares per
annum. The forest sector has the potential to contribute significantly towards economic growth.
However, the main challenge is with the increasing demand for food and energy as a threat on
forest resources and biodiversity. Forests play an important role in protecting river basins and
watersheds. To improve forestry contribution to national development, the country’s forestry
policy and legislation promotes broad-based participatory approaches of management and
utilization of the forestry resources. Agriculture being a major cause of deforestation in Zambia,
policies should be put in place to promote agro-forestry, non-wood products and sustainable
forest management.
2.3.2.4 Capture Fisheries
2.3.2.4.1 Context
Zambia has within its boundaries the sources and large parts of two of the largest river systems
of Africa; the Congo and Zambezi. The lakes, swamps and floodplains of these river systems
together with part of lake Tanganyika form the greater part of the fisheries of Zambia (WorldFish
Centre 2004). Although water is abundant, access and use is limited by human, institutional and
financial resources. The fisheries subsector contributes around 1.24 percent of the gross
domestic product (GDP) or 3 percent of agriculture GDP from its meager annual national budget
allocation of 0.12 percent (Musumali et al, 2009). This relatively small contribution at macro
level masks important contribution of fish production to the rural economy through employment,
earnings and as a source of food.
According to the latest statistics (MTR 2009, MoFNP), fish production under capture fisheries
increased by 20%, from 65,927 Mt in 2006 to 79,403 Mt in 2008, though it’s not clear whether
36 | P a g e
this increase was as a result of the use of recommended fishing methods and gear. Kapenta
production grew by 90% over the same period, from 6,251 Mt to 11,890 Mt.
Current annual catch is estimated at 70,000 tones, but the country has the capacity to produce
about 150,000 metric tons of fish annually on a sustainable basis. The average annual per-
capita consumption of fish is estimated at 6.4 kg, which accounts for more than 40% of the
animal protein intake of an average Zambian diet.
The increasing demand for fish has resulted in increasing the fishing pressure on nearly all
important fish stocks. This situation calls for the need to improve the management of capture
fisheries if they are to continue to contribute positively to economic development. By the year
2015, Zambia’s population forecast is at 15.2 million requiring per capital fish consumption
levels of around 10 kg per year or 152,000 tons of food fish per annum. Recommended
maximum food fish export allowable for Zambia is 120,000 tons per year. By 2015, the country
will require 140,000 tons of fish to meet both domestic consumption at current levels and export
requirements. This implies invariably an increase of 82,000 tones in fish production over and
above the current levels of 70,000 tones will be necessary by the year 2015. However, the lack
of fisheries data and statistics availability in the last decade and the general decline in
availability of such data over years has provided unreliable statistics as regards the actual fish
available for consumption (WorldFish Center). This calls for establishment of a good Research
and Development section in the Fisheries department.
2.3.3 Production and Productivity
2.3.3.1 Livestock
2.3.3.1.1 Context
Livestock is an important agricultural sub-sector, contributing about 3.2 percent to the overall
national GDP, 42 percent to the agricultural GDP and 45 percent to the poorest household’s
income (MAL et al., 2012). The sector is segmented into commercial, emergent and smallholder
(traditional) farmers. The smallholder farmers, however, own about 80 percent of the total
livestock. The population of livestock within the smallholder sector is currently estimated at 2.2
million cattle, 2.1 million goats, 1 million pigs, and 50,000 sheep (IAPRI, 2012). However,
between 2008 and 2012, there was a decline in the livestock population as shown in Figure 9.
Of 1,417,992 smallholder households, about 21 percent own cattle, 25 percent own goats, 14
percent own pigs, less than 1 percent own sheep about 80 percent own poultry (IAPRI, 2012).
37 | P a g e
Figure 9: Smallholder Livestock Population by Year

population of livestock 3,000,000
2,500,000
2,000,000
1,500,000
1,000,000
500,000
-
cattle goats pigs sheep
2001 1,489,728 1,179,301 492,465 51,336
2004 2,392,893 1,740,329 615,514 111,156
2008 2,815,583 2,420,077 1,016,199 157,535
2012 2,162,357 2,073,493 942,349 49,063
Source: IAPRI, 2012
Productivity in the sub-sector is low especially among the smallholder farmers. Population
growth rates for cattle are estimated at 2 percent; calving rates at 55 percent; calf mortality rates
at 20 percent; adult mortality rates at 5 percent and milk yield of 2 litres per day (World Bank
and UKaid, 2011; MAL et al., 2012). The average number of cattle owned is 9 compared to 17
and 66 cattle among emergent and commercial farmers respectively (World Bank and UKaid,
2011). Similarly, the average ownership of goats, pigs and sheep among the majority (more
than 50 percent) smallholder farmers is less than 9 (MAL et al., 2012; IAPRI, 2012).
Demand for meat and milk within the country outstrips production. Currently, annual production
of meat (beef, goats, pork, and broiler chicken) and milk are estimated at 133,000 tons carcass
equivalent and 306 million litres respectively (MAL et al, 2012). Given high growth rate of the
per capita income, fast urbanization and high-income elasticity of meat and milk, projections
show huge gap between supply and demand for meat and milk in 2027. The production deficit is
projected at 434,000 tons of meat and 940 million litres of milk (MAL et al, 2012).
Under Funding of the Sub-sector
The livestock share of total agricultural budget is only 17 percent, which is not in line with the 42
percent contribution to the agricultural GDP (MAL et al., 2012).
High Disease Prevalence
High disease prevalence in the livestock sector is a major hindrance in the production and
exportation of live animals and animal products. Over 60 percent of smallholder farmers have
their animals affected by diseases yearly (IAPRI, 2012). The most important livestock diseases
are Contagious Bovine Pleural Pneumonia (CBPP) and Foot and Mouth Disease (FMD) (MAL et
al., 2012). Currently, Zambia cannot export to the European Markets not even South Africa due
to failure to meet the sanctioned livestock standards. As such, livestock exports of both
carcasses and live animals go mainly to Democratic Republic of Congo and Angola. Thus there
38 | P a g e
is need to improve market access both domestic and international through establishment of
disease free zone areas.
Poor Grassland Management
Most of the livestock in Zambia depend on natural grasslands and browse for feed with the
exception of commercial herd, which receive supplementary feed. Compared to other countries
within the region, Zambia is well endowed with grazing land. She has 20.3 million hectares of
grazing land and supporting only less than 3 million cattle (World Bank and UKaid, 2011).
Moreover, of the total annual production of 18.4 million tons of dry matter, consumable folder
and grass, only 6 million tons (33 percent) is required in ruminants (cattle, sheep, goats)
production. However, there is poor management of pasture among smallholder farmers, which
leads to overgrazing, and loss of animal weight during the dry season.
High cost of feed
On the other hand, poultry and pigs require concentrate feed and it’s estimated that 40 percent
of the total requirements comes from cereals and the rest from agro-industrial by-products. And
of the total 2.7 million tons of cereals, only 84,000 tons (3.8 percent) is needed in monogastric
(pigs and poultry) production (MAL et al., 2012). Thus feed resource should not be a constraint
to livestock development.
Lack of breeding stock
Zambia lacks well functioning breeding centres for the production of appropriate breeding stock
for various types of animals. This has negatively impacted the required level of restocking as
well as production and productivity in the sub-sector.
2.3.3.1.3 Lessons Learned
Good management of pasture: can lead to increased livestock production, improved soil
fertility, reduction in soil erosion and helps to conserve water. In addition, over grazed areas can
become more productive and extend the grazing season. An added benefit of improved pasture
management would be a decrease in Green House Gas (GHG) emissions that would at the
same time contribute to goals of the National Policy on Climate Change.
Livestock sub-sector is prominent as smallholder farmer income source: Though
livestock sub-sector has not been given the prominence it deserves in terms of overall national
budget resource allocation, it is the preferred sector by farmers with regards to source of funds
to meet school, health and other needs. Farmers made this point clear during a field day
(GART 2012).
Low female-headed households’ access to assets includes livestock: PLARD II baseline

(2012) noted a significant gap in livestock ownership between male and female-headed
households. Among male-headed households, 58% said they kept livestock (close to 60%)
while the corresponding figure for their female counterparts was 36.4%. The major reason cited
for low ownership was lack of financial resources to procure animals. This has tended to
perpetuate female-headed households’ poverty cycle.
Control of diseases
39 | P a g e
To help combat FMD and CBPP, the following would assist if put in place;
 organized veterinary services,
 vaccination of animals,
 livestock movement control,
 livestock traceability and identification,
 disease surveillance,
 zoning and fencing,
 animal health training.
2.3.3.2 Crops
2.3.3.2.1 Context
Small-scale farming systems in Zambia are characterized by low yields and limited levels of
diversification. Overwhelmingly, farming systems are dedicated to the production of maize. As of
2010, 82 percent of small-scale farmers grew maize, covering a total area of over 1 million
hectares (Sitko et al 2011). The predominance of maize production is the result of both its
position as the national staple food and the government’s spending support for maize output
and input markets.
Other important food crops in Zambia are: 1) Cassava, which was grown by 37.9 percent of
farmers in 2010, is the third most common grown crop in Zambia. Most of this production was
concentrated in the Northern and North-western Provinces, where it serves as the regions
staple food; 2) Groundnuts were grown by nearly 50 percent of Zambian smallholders in 2010,
making it the second most widely grown crop behind maize, and; 3) Sweet potatoes, which were
grown by almost 20 percent of farmers are the fourth most commonly grown crop (Sitko et al
2011). Cotton is Zambia’s most important cash crop. As of 2010, roughly 7 percent of farmers
grew cotton, with the greatest production recorded in Eastern Province. Given their
predominance in existing farming systems, these crops should be considered priority investment
crops for improving productivity.
While yields have improved since 2007 (See Figure 10) for many major food crops, much of
this has been driven by favourable weather conditions. Overall, yields for all food and cash
crops remain low, hovering at roughly one-third the global average.
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Figure 10: Yield (MT/ha) Trends for Selected Crops in Zambia
2500
2000
Maize
1500 Groundnuts
(MT/ha)
Rice
1000 Cotton
c
cc beans
500
0
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20
20
20
20
20
Source: GRZ CSO Crop Forecast Surveys 2001-2010
As a result of these low yields, combined with limited land holding sizes, very few smallholder
farmers are able to produce sufficient crop surpluses to sell. Indeed, in most years roughly 30
percent of all Zambian smallholders were actually net buyers of maize (Sitko et al 2010).
However, while national average yields for most food crops are low, there are a sub-segment of
Zambian smallholders who are capable of achieving high levels of productivity. As shown in
Figure 11, the top 10 percent of producers in terms of yields are able to produce 1 to nearly 4
MT/ha more than the national average, depending on the crop. These production levels are
indicative of the productivity potential for Zambian smallholders, given the right combination of
investments and policy incentives.
Figure 11: Five-Year Yield Average: National versus Top 10%, 2005-2010
Source: CFS various years
41 | P a g e
1. Low levels of improved input adoption: Less than 40% of maize farmers in 2009/10 used
fertilizer or hybrid seed (Sitko et al 2010). For other crops improved input use is significantly
lower.
2. Poor price incentives to increase production: Due to a number of factors, including
under investment in road infrastructure, unpredictable trade policies (Jayne et al 2010),
market interventions that undermine private investment in crop markets and storage
(Chapoto and Jayne 2011), and limited public investment in market information systems
(Gage 2011), farm gate prices for agricultural products in Zambia tend to be low and highly
volatile. This limits producer incentives to invest in technologies to improve farm productivity
(Barrett 2008).
3. Poor returns to fertilizer application: Research has shown that Zambia’s soils tend to be
highly acidic. Under these acidic soil conditions, response rates to Compound D fertilizer
applications tend to be extremely low. Analysis by Burke et al (2012), suggest that 51
percent of Zambian soils have a pH of 3.1-4.3. Under these conditions, farmers in Zambia
only obtain a maize yield response of 2.1 kg of maize for every kg of Compound D fertilizer
applied. These returns are not commercially viable, yet Compound D remains a centrepiece
of the Government’s FISP programme.
4. Limited funding for crop research: In the 2013 Zambian budget for agriculture only 3.62
billion kwacha is dedicated to strengthening agricultural research. This is a significant
decline in real terms from the spending on agricultural research in the 1990s, where
spending exceeded 18 billion kwacha (Flaherty and Mwala 2010). Agricultural research has
been shown to yield significant results in terms of improving productivity and reducing
poverty, yet it remains a low priority in the Zambian national budget.
5. Low adoption of improved tillage methods and intercropping: Conservation farming
methods, including minimum tillage and intercropping of leguminous plants with maize or
other field crops, has been promoted as a means to improve soil fertility, limit erosion, and
cut labor time for planting, all of which should improve productivity. Despite being promoted
by MAL and the Conservation Farming Unit, adoption rates remain low. Low adoption rates
suggest that the promoted activities may not be suitable across the board. Extension
services need to be revised to take the differences in the climate change impacts and agro-
ecological constraints into account in order to tailor the promotion of improved tillage
methods to the recipients.
6. Limited extension services: As of March 2011, the Principle Methodology Extension
Officer estimated that the extension officer to farmer ratio in Zambia is only 1:900. This far
exceeds the recommended level of 1:400. Moreover, a World Bank report (2010) estimated
that Agricultural Officers spend 75 to 80percent of their time dealing with FISP logistics
between August and January. This leaves very little time for them to dedicate to their core
work of providing extension advice to farmers.
7. Poor targeting of input subsidy programmes: Zambia’s FISP system provides limited
choices in terms of seed and fertilizer types to farmers, thereby contributing to an
overdependence on maize production and limited adoption of appropriate seeds and
fertilizers for specific agro-ecological and soil conditions. Moreover, poor farmers struggle to
access FISP inputs relative to the better off (Jayne et al 2011).
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1. Increasing improved input adoption rates: In Kenya, the rates of fertilizer use among
small-scale farmers have risen considerably over the last decade. In the maize production
regions of Western Kenya, 90 percent of farmers use fertilizer on their maize (Sheehan et al
2012). Increased adoption has been facilitated by increased liberalization of the fertilizer
market and the legalization of private sector repackaging of fertilizer, which has allowed
farmers to acquire smaller quantities of fertilizer (Agria et al2006). These policies have been
coupled with significant public investments in roads and other infrastructure, which has
allowed for an expansion of input retailers into more and more areas of Kenya.
2. Addressing low returns to fertilizer application: Acidity mitigating measures could be
taken to improve yields in a meaningful way. This may be through tailored application
methods, the use of supplementary inputs such as lime and phosphorus enhancers, or
some combination of pH mitigation and management practices. Moreover, investments
aimed at identifying the appropriate types of fertilizers for the various soil conditions and
farming systems in Zambia will be necessary. For soil acidity mitigation systems, a
combination of investment in agricultural research and promotion programmes will be
needed in order to achieve these goals. . This offers significant potential for public/private
partnership.
3. Increasing funding for public agricultural research: Studies from other countries suggest
that investment in agricultural research yields the greatest returns in terms of increased
agricultural productivity growth and poverty reduction (EIU 2008). However, returns to
research can be slow, which makes them less politically palatable than more visible
investments such as input subsidies.
4. Improved input targeting: Research in other countries has shown that input subsidies tend
to yield the lowest returns in terms of poverty reduction and productivity growth of any public
investment (EUI 2008). Part of this is related to the challenges associated with appropriately
targeting the right farmers with the right inputs. New types of “smart subsidies” may offer
some room for addressing these challenges. Yet, as Minot and Benson (2009) show, input
subsidies do not offer the sorts of long-term benefits to productivity improvement that
investments in crop science can yield. Moreover, subsidies tend to place a great deal of
pressure on national budgets.
5. Improving price incentive for farmers: improving farm gate prices requires investments in
infrastructure, market information, and improved linkages to global and regional markets.
Improving trade relationships will require improvements in the quality of produce, the
capacity to meet global SPS standards, and predictable trade policies.
2.3.3.3 Aquaculture
2.3.3.3.1 Context
Zambia’s rich endowment of water resources accounting for approximately 145 194 km2 (19
percent of total territory) provides the foundation for supporting significant economic growth and
development (FAO, 2004). Although water is abundant, human, institutional and financial
resources limit access and use. The fisheries component contributes around 1.24 percent of the
gross domestic product (GDP) or 3 percent of agriculture GDP from its meagre annual national
budget allocation of 0.12 percent (Musumali et al, 2009). This relatively small contribution at
43 | P a g e
macro level masks important contribution of fish production to the rural economy through
employment, earnings and as a source of food. The potential contribution of the component is
high, given the unutilized and underutilized potential particularly in the aquaculture sub-
component.
The average annual per-capita consumption of fish is estimated at 6.4 kg, which accounts for
more than 40% of the animal protein intake of an average Zambian diet. The increasing demand
for fish has resulted in increasing the fishing pressure on nearly all important fish stocks. This
situation calls for the need to improve the management of capture fisheries if they are to
continue to contribute positively to economic development.
Decline in fish supply: Over the years, there has been an overall decline in the average per
capital fish supply from over 11.4 kilograms in the 1970s to approximately 6.4 kilograms in the
2000s (FAO, 2006), a reduction of nearly half. This reduction may be due to a number of factors
including population growth, which averaged 2.9% per annum in the same period under review
(CSO, 2012) as well as poor management of the fishery.
Poor water management and access for aquaculture and capture fisheries: this is on
account of a number of parameters including: an absence of water disposal checking points;
lack of water quality assessment equipment; lack of water disposal standards for aquaculture,
and; non existence of aqua-parks on lakes and rivers for cage and pen aquaculture as well as
water fronts entry points and land base for cage culture support services to aqua-parks.
Low fish research: there are limited stock densities and fish integrated production systems
with livestock; there is inadequate knowledge on manure application rate of each type of
manure per unit area of pond or dam as well as inorganic fertilizer application rate per unit pond
area. These challenges have resulted in low water fertility for aquaculture.
High water catchment degradation for capture fisheries and aquaculture because most of
these catchment areas are exposed to environmental negative impacts.
Low access to land for aquaculture and capture fisheries resulting in low number of fish
farmers and fishers, leading to further overall low production and productivity.
Community participation in fishery management yields considerable benefits: The

establishment of Zonal Management Committees on Lake Kariba has gone a long way in
realizing important benefits (World Fish Centre Policy Brief 1913).5 The Committees are
constituted by all major stakeholders including: Department of Fisheries (DoF); Fishers;
Traditional Authorities; District Council; NGOs, and representatives from business persons. The
positive outcomes of these include: relocation and establishment of new settlement achieved;
Reduction in fishing camps from 278 (1993) to 67 (1995); Decline in total number of fishers
thereby reducing pressure on the fishery, and Traditional leaders reclaimed some authority.
5
Fisheries in Zambia: An undervalued Contributor to Poverty Reduction.
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Link between low per capita supply of fish and increase in number of fishers: PLARD II
Baseline Survey Report (2012) provides a clear link between the decline in average per capita
fish supply observed in the country over the past years and the increase in number of
boats/fishers per unit area of fishery which further necessitates the increase in number of days
per month when fishers go out fishing as a coping mechanism to compensate for low catches.
The Report observes, “The main factors that negatively affected the type of catch in the
fisheries were the increment in the number of fishers and fishing assets in Mweru Luapula and
Bangweulu fishery. This inevitably increased the number of days per month when fishers go out
fishing”.
Fishing areas do not have any advantage with regards to fish consumption over the
country’s none fishing areas: The demand/supply equation facilitates effective supply of fish
to various parts of the country in line with fish protein demand. Production of fish through natural
fisheries and aquaculture in areas of high potential will inevitably benefit the whole country.
PLARD II baseline report observes that the total amount of fish that was traded out of the total
caught was close to three quarters “the total quantity of traded fish in 2011 was 70% (estimated
at 5,707,100 Kg) of total fish production.”
Necessity for well-managed breeding grounds: Breeding grounds play an important role in
sustainable fishery management. The extent to which these areas are protected from fishing
has a direct link to fish production in the fisheries. However, the majority of fishers often ignore
this fact and hence the need to institute effective fishery management measures. For instance,
of the fishing households interviewed in Luapula province during PLARD II Baseline, 79%
confirmed that fishers caught fish from the breeding grounds in their communities in 2011.
2.3.4 Market Access
2.3.4.1 Context
Market access and services development covers a wide range of investment possibilities, from
input and output market access to financial services development. These are critical
components of a successful transition from low-productivity, semi-subsistence production to
more commercialized production systems.
Input and output market support has been a mainstay of the Government’s approach to
agricultural development since independence. This support has primarily been in the form of
providing pan-territorial maize prices to farmers through parastatal marketing boards and
subsidies for seed and fertilizer, primarily for maize. In its current form, Government provides
these market supports through the Food Reserve Agency (FRA) and the Farmer Input Support
Programme (FISP). Budget allocations for these programmes routinely account for well over 50
percent of the total budget for agriculture. Yet, major challenges exist.
In terms of output markets only a minority of small-scale producers in Zambia are actually able
to produce a marketable surplus. As Figure 12 shows, in a normal year, such as 2008, only 21
percent of small-scale farmers sold maize, while 36 percent were actually net buyers. This
suggests that output market support for maize can only be captured by a relative minority of
smallholders. Moreover, one justification for the continued activity of FRA is that farmers in
Zambia operate under fairly dismal output market access conditions. Yet, recent research
suggests that this may not actually be the case. Analyses of the 2010 Crop Forecast Survey
show that over 60% of maize sales in Zambia occurred at the farm gate, while an additional
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20% occurred within 3 kilometres of the home (Chapoto and Jayne 2011). Only 10% of farmers
in Zambia transported maize over 30 kilometres.
Figure 12: Distribution of the Small-Scale Farmer Population

According to Their Position in the Staple Grain Market, Zambia 2008
2% of
sellers
account for
50% of all
maize sold
36% of
smallholders
are net
buyers of
maize
CSO Supplemental Survey 2008
The vast majority of these were farmers with larger lots of grain who were selling directly to
processors or the FRA (Chapoto and Jayne 2011). Thus, long distance travel to markets
appears to be a deliberate strategy of farmers with sufficient economies of scale who are
seeking out more remunerative markets. This appears not to be an act of desperation caused
by a lack of local markets. Such farmers if sufficiently facilitated to allow an increase in number
and capacity would easily participate in regional markets given the strategic position of Zambia.
Figure 13 is illustrative of the potential the country has in expanding its portfolio in the regional
market if a conducive policy framework was to obtain. From 2004, there was a notable increase
in grain trade from less than 10,000 MT in 2000 to 100,000 MT. This more than tripled from
100,000 MT in 2004 to 350,000 MT in 2011.
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Figure 13: Net Commercial Traded Maize Grain – Export/Imports (MT)
Source: IAPRI 2012
These data suggest three interrelated areas for investment and policy change. The first is to
move policy and investment efforts away from parastatal marketing boards aimed at improving
“access” to markets, and begin engaging in investments and training that help farmers to
improve their capacity to participate in the markets that already exist. This comes down to
investments in marketing training, market information access, and strategies to aggregate
crops. Second, is that strategies aimed at improving smallholder productivity in ways that allows
them to produce a marketable surplus is a necessary first step toward engaging more farmers in
output markets. Finally, devising strategies to further develop village food markets, which
ensure reliable access to staple foods at tolerable prices, is essential for improving the
incidence of poverty and hunger among net staple food buyers. Moreover, reliable markets for
staple foods may be a necessary precondition for facilitating diversification away from low-value
staple food production toward higher value produce, which is an important strategy for
improving household incomes among land constrained households.
In terms of the Government’s input subsidy programme, FISP, nationally representative

household data suggests that only a fraction of smallholder households receive inputs under the
programme, and these tend to be the already better off producers. For example in 2010/11, only
28.6% of Zambian smallholders received FISP, with the majority of recipients being the minority
of larger, better capitalized farmers. Of those farmers cultivating more than 5 hectares of land,
which is less than 4 percent of the rural population, the average recipient received over 300 kg
of fertilizer through FISP, which far exceeds the 200 kg that are supposed to be allocated to
farmers (Jayne et al 2011). This suggests that the programme is not well-targeted to vulnerable
producers without the means to acquire inputs at commercial rates. As a result, research has
shown that FISP tends to crowd out private sector fertilizer distribution. One analysis shows that
for every kg of subsidized fertilizer distributed, commercial sales decline by .14 to .33 kg (Mason
and Jayne 2012). This in turn limits private sector’s willingness to invest in more robust fertilizer
distribution system. As a result, access to fertilizer in many rural districts remains a challenge.
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Conversely, Zambia’s seed sector is highly competitive, in part because of the Government’s
seed certification policies. Currently there are nine private seed companies selling maize seed
in Zambia. Of those, three are breeding new varieties in Zambia, three are testing existing
varieties for Zambia’s conditions, and three are using publicly available germplasm (Sitko et al
2010). Zambian seed is exported regionally and district level seed supply systems appear well
developed.
Access to farm credit is another critical, yet underdeveloped, aspect of improving farm
productivity. According to the nationally representative Rural Agricultural Livelihoods Survey, in
2011 only 13 percent of Zambian smallholders had access to credit. As shown in Figure 14, the
vast majority of this credit was acquired throughout grower schemes, primarily for cotton.
Commercial bank credit remains low, in part because of a lack of collateral to access credit
among farmers operating under customary land tenure systems. However, some important
strides have been made by ZNFU, in partnership with Cooperatives and commercial banks, to
facilitate credit access through the Lima Credit Scheme. Under this scheme, good standing
membership in the farmers’ union acts as a form of collateral to support farmers’ access to
credit.
Figure 14: Sources of Credit Among all Smallholder Farmers 2010-2011
Source: RALS 2012; Note HH=household
2.3.4.2 Challenges
1. Crowding out of private sector: As mentioned above, a key challenge to improving market
access conditions in Zambia is the crowding out effect of current subsidy programmes on
the private sector. Addressing this will require reforming FRA and FISP in ways that better
enrols private sector actors.
2. Policy unpredictability: Unpredictability related to import or export restrictions, timing and
pricing of subsidized grains being released on the market, and uncertainty over the scale of
government’s activities in maize markets raises the risk of private sector participation in
Zambian agricultural markets. Developing institutions and legislation to enhance
predictability is critical for encouraging investment and enhancing returns on these
48 | P a g e
investments. Enactment of the Agricultural Marketing Act may provide an effective means
for addressing this uncertainty.
3. Poorly developed infrastructure: In many parts of Zambia road networks remain poorly
developed. This leads to elevated transaction costs, which in turn, lowers returns to farmers
and makes Zambian agricultural exports costly.
4. Poor grades and standards: In Zambia, there is limited enforcement of quality standards
or price incentives for producers or traders to improve quality. As a result, Zambia is unable
to export many crop or livestock products to important markets, both regionally or further
afield. For example, in 2012 the World Food Programme was unable to fulfil a contract in
Kenya for Zambian maize because they were unable to acquire sufficient maize that met
Kenya’s quality standards.
5. Poorly developed storage: Adequate, high quality storage facilities are critical for
improving market conditions. In Zambia, private sector has underinvested in storage
facilities due to the unpredictability of government’s actions in food markets. As a result the
government controls the bulk of the storage in the country. Yet this is not sufficient to handle
bumper harvest years, such as 2010 or 2011. As a result, there is a great deal of crop loss.
2.3.4.3 Lessons Learned
1. Out-grower schemes: Encouraging the development of out-grower schemes in Zambia

may provide an effective means for addressing the various constraints faced by farmers in
terms of input credit and output markets. However, experiences in Zambia and abroad,
suggest the contractual terms of the relationships between farmers and out grower
companies must be clearly defined in order to avoid exploitation of producers (Glover 1990).
2. Market-Based Food Reserve Management: Market-based strategies, such as the use of
call options offered through SAFEX, are a potentially cost effective way of decreasing the
government’s involvement in local food markets, without jeopardizing national food security
interests. In 2005, Malawi successfully purchased a call option on SAFEX in order to lock in
maize price and supply commitment to resolve the domestic supply shortfall caused by
drought. As a result, Malawi was able to import during the lean season at prices lower than
existing market prices by 50-90 USD /metric ton. Finding cost effective and market based
solutions to managing the FRA will allow scarce Treasury resources to be freed up for other
critical market access challenges, including investment in road infrastructure and market
information systems.
3. Warehouse Receipt Systems: Warehouse receipts allow farmers to use stored stocks as
collateral, while delaying the timing of their sales to coincide with seasonal price rises
(Coulter and Onumah 2002). Warehouse receipts have achieved some success in Malawi,
Madagascar, and Tanzania (Coulter 2009). Key challenges include: enrolling financial
institutions, developing accepted price discovery mechanisms, and providing adequate
quality storage facilities capable of ensuring industry accepted quality standards. Zambia
has in place many of the preconditions for implementing a warehouse receipt system,
including the enactment of the Agricultural Credit Act and the existence of the Zambian
Agricultural Commodity Exchange (ZAMACE). Key challenges that remain include the
designation of a warehouse licensing authority and the enrolment of financial institutions so
that they accept warehouse receipts as collateral on loans.
4. E-vouchers: E-voucher based systems for distributing input subsidies for farmers has
proven effective in Zambia. Under an FAO/MAL conservation-farming programme e-
vouchers have been piloted in 37 Districts, with 107 agro-dealers, reaching 55,812 farmers
(Sitko et al 2012). E-vouchers can act to leverage private sector capacity to provide a wide
range of inputs to farmers at a lower cost to government. However, as mentioned above,
49 | P a g e
input subsidies in general do not offer the sorts of long-term benefits to productivity
improvement that investments in crop science can yield.
5. Farmer marketing training: Farmer training on agricultural marketing may provide an
effective means for improving farmers’ ability to interact with existing village-level markets.
These training can focus on aggregation strategies, price negotiation, market identification,
etc.… Research from Kenya shows that farmers who received marketing training received
on average nearly 10 percent higher farm gate prices than farmers in the same village that
did not receive training (Kirimi et al 2011).
2.3.5 Service Delivery Systems and Institutional Capacity
These have been dealt with differently by focusing on two elements; (i) Situation analysis, and;
(ii) key challenges. Consequently, lessons learnt is not part of the diagnostic with regards to
service delivery systems and institutional capacity.
Research and extension
Context
Some interventions by Zambia’s research and extension system have been successful in the
past for a number of reasons. One of the key factors for the success in the interventions has to
do with the strategic re-orientation of the focus of the research system. In the 1970s and 1980s,
agricultural research was heavily biased towards the needs of the large commercial farming
sector and towards maize production. According to a study by ASTI (2010), the most
researched crops in Zambia in 2008 were maize and sorghum, accounting for 24 and16 full-time
equivalent (FTE) researchers, or 15 and 11 percent of the total crop and livestock researchers,
respectively. Other important crops included fruit, cassava, and vegetables, each accounting for
between 7 and 9 percent of researchers. The country’s livestock researchers concentrated
primarily on issues relating to dairy (5 percent), beef (4 percent), and poultry (4 percent).
During the last two decades, the emphasis of research has slightly shifted to support other
crops. This has mainly been through donor funded research projects such as Zambia’s
Agricultural Consultative Forum (ACF) which initiated an Acceleration of Cassava Utilization
(ACU) Task Force, beginning in August 2005. At a regional level, efforts such as the Cassava
Transformation in Southern Africa (CATISA) project aimed to complement national efforts and
help facilitate regional spillovers, so that new products, new technologies or new lessons could
help to accelerate cassava-based commercial growth throughout the region (Haggblade and
Nyembe, 2008).
Challenges
There are three major challenges that have affected National Agricultural Research and
Extension: (i) Inadequate public expenditure in agricultural research and extension; (ii)
Inadequate Contribution of Research (Soils, Livestock, Fisheries and Crops), and; (iii)
Underutilized Extension Services.
The most pressing challenge has been inadequate public expenditure in agricultural research
and extension whose major result has been low performance as evidenced by a drought in the
release of new technologies. As can be seen in Figure 15, R&D expenditure as a percentage of
AgGDP has been on the decline. The downward trend of investment accelerated during 2001–
50 | P a g e
08. For instance, in 2008, Zambia spent the equivalent of 0.29 percent of AgGDP on R&D. This
is less than the African average of 0.5–0.6 percent, as well as the one percent recommended by
the World Bank (Thurlow, et al., 2008; ASTI, 2010; Flaherty and Mwala, 2010).
The other two challenges (i.e. inadequate contribution of research and under-utilization of
extension services) are direct consequences of the first challenge. On account of poor funding
to research, no new improved technologies have been generated. This has in turn led to under-
utilization of the extension services as extension staff have not only found themselves with
insufficient knowledge and skills to extend, but have had no resources to do so.
Figure 15: Government spending on Agricultural R&D in Zambia
Source: ASTI (Agricultural Science and Technology Indicators). 2010–11. ASTI database
Public financial management system
Context
The strength of the financial management and procurement capacity of MAL HQ lies in the fact
that there is a sound financial management legislation and policy, qualified staff in key positions
as well as the establishment of an Audit Committee. The HQ personnel of the MAL in the
Financial Management Unit (FMU), internal audit and procurement sections are trained in the
procedures relevant to their areas. If well guided and managed, they are capable of managing
sound financial management, internal audit, and procurement systems. Procedures for
procurement or for payment voucher authorization are quite strong as laid down, with valuable
controls. External audit is well regarded and rated well by the Public Expenditure Management
and Financial Accountability (PEMFA). From January 2012, the government has been
implementing the IFMIS programme whose advantages include: Audit Committee in place;
program in place for staff training in FMU, Internal Audit and procurement and funds allocated
every year; Financial management system (IFMIS) used for processing payments and takes
account of double entry at national level; IFMIS can be reconciled back to a bank statement for
accuracy, and; Good procedures for procurement and for payment voucher authorization at all
levels
Challenges
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Despite the positive benefits brought by the implementation of the Integrated Financial
Management Information System (IFMIS) by government since January 2012, some
weaknesses exist in the public financial management system, which need addressing. These
include: Government does not prioritize financial management and control since the PFM Unit is
not placed at directorate level; Weak functionality of the audit committee (not sitting very often);
Inadequate staffing levels at provincial and district levels (Provincial Internal Auditors and
District Accountants), and; Poor internal control where often procurement and payment is
managed by the same individual at provincial and district levels, among others.
Policy analysis and dialogue
Context
Currently, Zambia has a weak agricultural policy framework characterized by weak market
institutions. If NAIP is to perform to expectation, there is need for a policy set that promotes
greater reliance on market related institutions and market-based risk management instruments.
This transition requires strong policy analysis and tracking capacity in order to build confidence
for government to commit a rule-based system of intervention that does not undermine private
sector investment and at the same time increases government confidence in the private sector
to deliver against the set NAIP objectives. This would be the basis for facilitation of a continuous
policy dialogue among stakeholders. Such capacity is absent in PPD.
Monitoring and evaluation and management information systems
Context and Challenges
MAL’s Monitoring and Evaluation system has some positive elements, including: existence of
information systems which can be strengthened and improved upon, and; widespread
availability of qualified staff (university graduates) who can easily be trained. Notwithstanding
these positives, M&E has a number of areas needing attention. MAL has an uncoordinated,
disintegrated, insufficient, inefficient M&E/MIS system which is not result-based. There is a
serious lack of sufficient and timely market information on the prices of most of the agricultural
products, and on the supply and demand thereof. There are parallel systems of information
collection and dissemination which exist both within the MAL and outside MAL. Given the
complex nature of the interactions between adaptation, food security and mitigation, the
selection of appropriate indicators is essential for the establishment of a baseline that captures
all relevant information related to Climate Change (CC).
Specific challenges
No specific legal, policy and institutional set-up for M&E/MIS Systems: There is no specific
M&E policy and comprehensive plan to guide the M&E activities including the M&E institutional
set up, and there is no specific document with integrated guidelines for M&E. M&E information
is dotted in various planning and operational guidelines. There are no M&E specific positions in
the Ministry. M&E activities are embedded within the planning functions of the ministry at only
the national and provincial level. Yet the MAL is vertically managed with representation at
National, Provincial, District, Block and Camp levels such that the technical supervision,
resource flows, and reporting tend to follow the same path.
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Limited number of M&E staff: Although the M&E system is principally coordinated by a unit
within the Policy and Planning Department (PPD), it has limited M&E staff. It also has a high
staff turnover and this is viewed to have contributed to delays and in some cases discontinuity
of efforts to improve the M&E system. Most of the work is ad hoc and not necessarily core M&E
work. In terms of skills, only few have had short training in M&E.
Absence of a structured M&E System: Due to its large size, the Ministry of Agriculture and
Livestock needs a well structured M&E system with a presence at all levels (national, provincial
and district). It needs to have staff at all these levels dedicated to undertaking M&E functions.
Absence of M&E Indicator Plan and Strategy: There is no sector M&E indicator plan and
strategy on which real sector performance could be monitored and measured. The main
information source for daily planning is from the administration system but the sector
programmes and activities implemented in various departments are not well connected for M&E
purposes. Each MAL directorate collects some form of information on its own such that these
systems are not interlinked.
Lack of harmonization in indicators, data collection and reporting: Reports are expected
to be generated quarterly, mid-year and annually but in reality there are too many reports
generated at the provincial and district levels. The data collection methodology (forms) and
reporting flow is not harmonized. Most of the indicators are set at input, activity and output
levels i.e. indicators are not result-based. For the most part, there is no baseline information and
indicators are not linked to data sources. The routine M&E activities of various departments
tend not to be tailored to any demand and use beforehand
Inadequate information dissemination: The National Agricultural Information System (NAIS)

exists with a responsibility of collecting and disseminating information through electronic and
print media. The hindrance is that most provinces and districts have no equipment. Similarly,
AMIC is not fully computerized at provincial and district levels. There is also an established
website for the purpose of disseminating information but information is not up to date. The
challenge with all these systems is that they operate independent of the other resulting in some
duplication and overlaps.
Existence of other M&E Systems outside MAL: Alongside the MAL M&E system, donors
manage separate Monitoring and Evaluation (M&E) systems for their supported projects. There
is little evidence of the fact that information from donors’ own independent M&E is fed into the
national system. Other institutions which collect agricultural statistics data include the Central
Statistical Office (CSO), Jesuit Centre for Theological Reflection (JCTR); Famine Early Warning
Systems Network (FEWSNet); Zambia Agricultural Marketing Commdity Exchange (ZAMACE);
World Food Programme (WFP) the United Nations; the Zambia National Farmers‘ Union
(ZNFU); the Food Reserve Agency (FRA); and the Food Security Research Project (FSRP),
now called Indaba Agricultural Policy and Research Institute (IAPRI)
Human resources management
Context
The HR&A Department is charged with carrying out a number of activities which include the
following: Recruitment, Selection and Placement which involves recruiting potential candidates
into the Civil Service and identifying candidates within the system for promotion and transfers on
a quarterly basis; Payroll Management which is meant to facilitate and effect employee
entitlements and ensure that the payroll is clean on a monthly basis, and; capacity building by
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routinely identifying specific training needs for each employee in the departments and suitable
programmes to address those training needs. However, the performance of this department has
not been smooth on account of the following challenges.
Challenges
Low quality of human capital: Low quality of human capital is evidenced by increased
scarcity of skilled manpower at all levels, inadequate knowledge and skills amongst Camp
Extension Officers (CEOs), lack of and/or limited access to higher, tertiary, and In-Service
education and training.
Inadequate staffing levels: The MAL has a human resources establishment of 11,349
comprised of both technical and administrative staff. Out of those, only 6,114 positions are filled
as per the PMEC Payroll System. This indicates a need to recruit more staff. The need to recruit
more staff also arises from the creation of 15 new districts in addition to the 72 districts on which
the establishment of 11,349 was based. MAL has to review its strategic plan to take into
account the newly established districts to make them operational.
Low staff morale and lack of incentives: There are great disparities in the emoluments
offered to staff under MAL and those under programmes which are funded through MAL like the
Food Reserve Programme (FRP) administered by the FRA. For instance, the provincial
coordinators under the FRA who are funded through MAL get about three times more the
salaries of MAL Provincial Agricultural Coordinators (PACOs). This brings about de-motivation
of staff. In addition, there are no incentives that can encourage innovation and creativity. For
instance, researchers are not incentivized for them to venture into new research work which will
bring about new technologies to spearhead the envisaged growth in the sector.
Ineffective succession plan: MAL has had a generic challenge of not having a staff
succession plan. For instance, in 2008 it was found that there were 302 people who had
reached a retirement age (between 56 and 67 years) for whom plans to have them retired and
replaced were not in place. This and other challenges have resulted in the MAL having three
payrolls which are not harmonized and coordinated.
Staff confirmations lag behind: The Human Resources and Administration Department
(HR&AD) does not have an effective system for confirmation of staff such that MAL lags behind
where confirmations are concerned. In addition, the performance appraisal system which is in
place is not well understood by supervisors.
Inadequate communication strategy: MAL does not have a communication system in place.
In all departments, there is a weak system of communication from the headquarters to the lower
levels (provinces, districts and communities) and vice-versa. There is need to develop an
effective two-way communication system at all levels of the MAL structure if results are to be
achieved in the sector.
Agricultural training
Context
MAL has 10 agricultural institutions which provide training in various areas of agriculture,
namely: Natural Resource Development College (NRDC), Zambia College of Agriculture (ZCA) -
Mpika, Zambia College of Agriculture - Monze, Katete College of Agriculture, Palabana Dairy
Institute, Zambia Institute for Animal Health (ZIAH), Zambia Centre for Horticultural Training -
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Chapula, Popota Tobacco Institute, Kasaka Fisheries Institute, and Cooperative College. Their
purpose is to equip the agricultural sector with the needed human skills base for increased
sectoral production and productivity.
Challenges
Most of these institutions have never undergone infrastructure upgrading from the time they
were established yet they have been able to increase student in-take and expand on the
number of courses they offer over the years. In addition, they are also faced with low staffing
levels and some of their curricula will need to be re-visited in the context of the role they have to
play in spurring the envisaged growth of the sector. There is a disconnect between the skills of
the graduates of these institutions with what the agricultural labour market needs. All these
challenges exist in different magnitudes in each of the institutions, a situation which calls for a
detailed assessment of capacity needs for each institution so that each of them is supported
accordingly for their effective contribution to sector growth.
Farm Training Institutes and Farmer Training Centres
Context
The country has 9 Farm Training Institutes (FTIs), one in each of the old provinces (except the
new Muchinga Province), and 43 Farmers’ Training Centres (FTCs) located in different districts
with none in the new Province. Both categories of institutions were established to provide
training to farmers, with FTIs having a focus at provincial level while FTCs were an arm of the
FTIs at district level. These institutions were established by Government and they have been
dependent on government funding for their existence.
Challenges
Due to inadequate government funding, almost all of the Institutes and Centres have dilapidated
infrastructure in terms of offices, classrooms and staff houses. They also lack farm equipment
for them to effectively carry out the necessary trainings. Such infrastructural support will need to
be accompanied by the necessary capacity building of the resource persons to provide
management and training functions.
The Cooperative Movement
Context
A classical definition of a cooperative is "An autonomous association of persons united

voluntarily to meet their economic, social and cultural needs, through jointly owned, and
democratically controlled enterprises". This makes cooperatives to be unique in nature and their
activities can be at each and every level in the agricultural sub-sector value chains. Therefore,
their participation in the agricultural sector cannot be ignored. In fact lessons from other
countries like Kenya show that the cooperative movement has the ability to form the back-bone
of the agricultural sector if left to operate with the autonomy with which they are intended to
operate without political interference. There are about 27,000 Primary Cooperative Societies
(PCSs), each with a minimum of 100 members, who contribute shares towards capitalization.
The estimated total membership ranges from 2.7 to 3.5 million cooperators. Most PCSs have
remained active mainly as agents of the FISP to assist members to access subsidized inputs.
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PCSs have also helped to mobilize crop marketing through FRA depots and collection points.
Some PCSs have maintained economic activities in retailing, milling, out grower farming and
livestock rearing and dairy.
Challenges
The cooperative movement in Zambia has not been able to reach their autonomy in terms of
operations due to their history such that there is need to facilitate their revitalization in a
cautious manner that will not allow for dependence again. Other challenges include: Dominance
by a few members; Low level of commitment and morale Weak incentives for members; Sub-
optimal pricing for services and products; High cost of operations Lack of business
understanding by members, and; Weak financial base at all levels.
3 INVESTMENT PROGRAMMES
3.1 Overall Objective of the NAIP
The overall objective of the National Agricultural Investment Plan (NAIP) is “to facilitate and
support the development of a sustainable, dynamic, diversified and a competitive agricultural
sector that assures food security at household and national levels and maximizes the sector's
contribution to GDP” (NAP, 2012). NAIP will contribute towards the attainment of the impact
indicators in Table 2 below. Consequently, NAIP is one multi-faceted entity, with each individual
programme contributing towards the overall objective.
There are five main impact indicators, some of which are included in GRZ Development Policy
Documents, such as the Sixth National Development Plan (SNDP) and other Policy documents
of the Ministry of Agriculture (MAL) or the Ministry of Lands Natural Resources, and
Environment Protection. In addition, the CAADP Compact also makes reference to continental
targets of achieving 6 percent growth in the Agricultural sector, and allocating at least 10
percent of public expenditure to Agriculture.
Table 2: NAIP Impact Indicators
Impact indicator Baseline Target

(2011) (2018)
Rural poverty 77% 50%
Agricultural exports as % of non-traditional 41% 55%
exports
Chronic malnutrition children < 5 years 45% 30%
Soil erosion rate (ton/ha/year) 20 10
Cereals production (million tons) 3.26 6.0
Source: SNDP (2011), MAL and MLNREP
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3.2 Proposed Structure of NAIP
NAIP will have a total of four (4) main investment programmes: (i) Sustainable Natural
resources management; (ii) Agricultural production and productivity improvement; (iii) Market
access, and; (iv) Food and nutrition security and Disaster Risk Management. The identification
of the four programmes has been strategic in ensuring a focus on those areas deemed most
critical to driving the country’s agricultural development agenda. These priority Investment
Programmes (IPs) seek to address issues related to the natural resource base; the actual
production and productivity; input and output marketing, storage and value addition and the
impact of all these on food and nutrition security (see Table 3).
In addition, NAIP has identified two categories of support services; those related to knowledge
support systems such as research, seed and extension systems as well as those related with
institutional strengthening. Crosscutting issues are embedded in all the four programmes and
key support services.
Table 3: Overview of the NAIP Structure

Program Title Component
#1 Sustainable Natural Resources (i) Land-use Planning, Administration and
Management Management; (ii) Ensure efficient water-use and
irrigation; (iii) Forestry Management; (iv) Energy
Efficiency Promotion, and; (v) Capture fisheries
management
#2 Agricultural Production and A (i) Improved crops productivity; (ii) Access to
Productivity Improvement inputs; (iii) Good Agricultural Practices; (iv)
A Crops Mechanization
B Livestock B (i) Increased livestock production and productivity
C Aquaculture (ii) Animal Health and Disease Control, (iii) Applied
Livestock Research
C (i) Aquaculture Production and productivity;
Enabling environment for Aquaculture development
#3 Market Access and Services (i) Institutional market arrangements and
Development performance; (ii) Increasing access to rural and
market infrastructure; (iii) Increasing access to rural
finance; (iv) Promote value chain integration
#4 Food and Nutrition Security and (i) Food security; (ii) Nutrition security; (iii) Disaster
Disaster Risk Management risk management and mitigation
Key Knowledge support systems (i) Research; (ii) Seed; (iii) Extension; (iv)
Support Agricultural education and training institutions
Services
Key Institutional Strengthening (i) Policy dialogue; (ii) Planning, M&E; (iii) Financial
Support Management (and Procurement); (iv) Human
Services resources management
Cross- (i) Gender; (ii) Environment; (iii) Other These are not stand-alone hence have no budgets
cutting sector policies & on-going plans; (iv) of their own. They are fully integrated into the 4
issues decentralization; programmes and Key Support Services
For each of the above programs, the main strategic objectives have been identified, along with
their outcome indicators, including targets to be achieved by 2018.
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Outcome indicators, and their respective baseline and target values are presented in a
summary table. For each program, the various interventions contributing to these outcomes are
then presented by component and sub-components.
Key interventions, with their associated outputs, and the targets that are expected to be
achieved by the end of the NAIP are then described for each component, under each program.
Table 4 below shows the Investment Programmes (IPs) of NAIP and how they link to the
CAADP Pillars, the Sixth National Development Plan (SNDP 2011-2015) and the PF Manifesto.
This NAIP is based on the Zambia CAADP Compact and is thus designed to operationalize it. In
this regard, the CAADP Compact is an integral part of the SNDP and hence should not be
treated separately.
Table 4: Structure of the NAIP, link with CAADP pillars, Compact profiles and SNDP
Investment Link to CAADP Compact Investment Link to the revised SNDP
Programmes CAADP profiles (2011 - 2015)
1 Sustainable Pillar 1  Sustainable Land Management  Part 5: Natural Resources;
natural Program  Part 3: Water and Sanitation
resources  Land development
management  Water resources development
2 Agricultural Pillar 4  Agricultural Productivity  Part 4: Agriculture, Livestock and Fisheries
production and Pillar 3 Improvement Program  Crop diversification
productivity Pillar 2  Agriculture Investment
improvement Promotion Program
3 Market access Pillar 2  Agricultural Marketing Program  Part 1: Financing
and services Pillar 3  Agriculture Investment  Part 2: Infrastructure
development Promotion Program (part)  Part 4: Agriculture, Livestock and Fisheries;
Manufacturing; Commerce and Trade.
4 Food and Pillar 3  Food and Nutrition Security  Part 1: Cross-cutting issues; Financing
nutrition Pillar 2 Program  Part 2: Infrastructure
security and  Part 4: Agriculture, Livestock and Fisheries
disaster risk
management
5 Key support Pillar  Research and Extension  Part 1: Macroeconomic Policies and Structural
services 1,2,3,4 Enhancement Program Reforms
 Part 3: Education and Skills Development
 Part 5: Science, Technology and Innovation;
Information and Communications Technology
 Agricultural Research
6 Cross-cutting Pillar   Part 1: Cross-cutting issues;
issues 1,2,3,4  Part 5: Social Protection
 Part 6: Regional Development
The section that follows discusses in more detail each of the Investment Programmes as well as
the Key Support Services. The first program is about Sustainable Natural Resources
Management, considering that it the foundation for the development and growth of the
Agriculture, Livestock and Fisheries sectors.
A summary overview is presented for each programme, followed by a table with main outcome
indicators, with baseline and targets if available, and divided by components. A more detailed
presentation of each component follows, including mention of the main outputs where available,
and quantified wherever possible. A summary budget table provides funding required for each
programme, by component, and identifies the possible source of financing.
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3.3 Sustainable Natural Resources Management Programme
Overview
There are two major policy objectives relating to the Sustainable Natural Resources
Management Programme:6 (i) To sustain increased agricultural production, productivity and
value addition of major crops, livestock, forest and fisheries by comparative advantage in
different agro-ecological regions in the country, and; (ii) To create and enhance the sustainable
use and maintenance of the existing agricultural resource base to be able to efficiently support
vibrant and resilient agricultural production systems. The two objectives will be realized through
the implementation of the following five (5) components: (i) Land-use Planning, Administration
and Management; (ii) Water-use and irrigation; (iii) Forestry Management; (iv) Energy
Efficiency Promotion, and; (v) Capture fisheries management. The total cost of the Sustainable
Natural Resources Management Programme over the next five years is US $ 280.80 million. An
overview of each of the components is provided below. Table 5 presents an overview of
selected components, highlighting their strategic objectives, outcome indicators and respective
indicator targets at baseline and after 5 years of NAIP implementation.
Table 5: Selected Strategic Objectives and Indicators by Component

Component Strategic Objective Outcome Indicators Outcome Indicator Values
Unit B/line Target
Land-use Improve Land Use Area targeted under detailed land use Ha 0 10,000
Planning, Planning planning
Administratio Reduce land degradation Improved land quality (% of soil organic % 1 2
n and in priority catchments matter)
Management
% of small-scale farmers that have % 10 25
adopted conservation agriculture
Ensure Increase availability of % of farmers with access to irrigation for % 10 20
efficient water for multi-purpose high value crops
water-use & use Area brought under irrigation Ha 170,000 188,000
irrigation
Forestry Reduce deforestation due Area lost to deforestation (ha/year) Ha 250,000
Management to shifting cultivation and
agriculture extensification
Capture To promote sustainable % of established fisheries management % 20 70
fisheries management of capture committees that enforce fisheries
management fisheries resources regulations
Number of established Village # 200 600

Management Committees
Fish capture data (MT) MT 70,000 90,000
Key components
Promote Land-use Planning, Administration and Management: This component will have
three sub-components: Land-use planning; Land administration and Land management. This
component will address two of the above four key identified challenges: climate change, and;
inadequate land resources management.
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Land-use planning: it has two main strategic objectives, to improve land-use planning and
enhance community participation in integrated land-use systems. One of the key interventions
will include updating inventory of land and water resources at all levels. Among the outputs will
be; 20 districts with detailed land and soil resource maps, updated agricultural suitability maps,
and detailed water resources maps. One detailed land and soil database and another one
targeting water resources will be developed. The sub-component will also focus on initiating and
strengthening Community Based Sustainable Land Management (CBSLM) initiatives. A total of
300 communities will be targeted for this purpose.
Land administration: has two main strategic objectives: to improve land administration, and; to
increase access to land. This sub-component will be strongly linked to the second Investment
Programme (i.e. Production and Productivity Improvement - PPI). According to the contextual
analysis for PPI, it is crucially important to increase minimum land owned by Small Scale
Farmers to at least 5 ha if they are to significantly contribute to poverty reduction. One of the
key interventions will be to improve the ease and speed of land titling where a total of 1,200 title
deeds are expected to be issued during the implementation period. Women will be encouraged
to request for land titles. Other interventions will include carrying out a study to streamline
procedures to ease access to land and water as well as strengthen capacity in land
administration, which is expected to train a total of 200 land administration staff. The sub-
component will also promote enactment of policies that prevent land grabbing from small scale
farmers while satisfying external demands of farmland by other investors.
Land management: will be concerned with reducing degradation in priority areas which in turn
will be expected to result in improved land quality and a reduction in sediment load from
selected catchments. Many SLM practices can also generate climate change adaptation and
mitigation benefits. Interventions will include undertaking assessments of economic value of
land resources which will target a total of 95 evaluations; promote land and water improvement
technologies and techniques in upper catchments aimed at bringing a total of 3,600 ha under
soil and water management techniques, and; carry out prevention of river banks degradation
which will involve bringing a total of 7,500 km of stream/river banks under sustainable land
management practices. The sub-component will also promote adoption of conservation
agriculture (including; minimum soil disturbance, cover crops, crop rotations) and use of organic
fertilizers (compost, animal and green manure) all targeting a total of 29,500 ha. This
component will be strongly linked to the crop production and productivity component.
Land-use Planning, Administration and Management Component will cost US$ 37.23 million
over the next five years.
Ensure Efficient Water use and Irrigation. This component will, among others, be concerned
with increasing irrigated hectarage. The challenges this component will address will include:
climate change and inadequate irrigation. This will be through strengthening a total of 750 Water
Users Associations and rehabilitating and constructing new irrigation schemes that would result
in bringing a total of 18,000 ha under various forms of irrigation (furrow, drip, sprinkler). Under
the component, multi-purpose dams (45 small and 2 large) as well as 50 weirs will be
constructed during the NAIP implementation period. Area under flood control will also be
increased by promoting drainage (in-situ), use of pedal pumps for ground water and use of
renewable energy pumps (solar, ram and wind mills). The respective targets for the five years
are 5,000 ha, 5,000 pumps and another 1,900 renewable energy pumps. The investments
relating to efficient water use and irrigation as well as aquaculture (see Section 3.4.3) require
the development of national strategies and plans for Agricultural Water Management (AWM)
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which NAIP will promote. The capacity building efforts of various stakeholders contained in the
NAIP will include aspects of AWM. The total investment for the Water Use and Irrigation
component is US $ 169.25 million.
Promote afforestation, community woodlots and agro-forestry This component will address
the challenge of poor forestry management. It will have three main sub-components: (i) reduce
deforestation due to shifting cultivation and agriculture encroachment whose key focus
interventions will include: enforcing forestry management laws and; afforestation/reforestation of
upper catchments. At least 22,000 ha will be afforested/reforested. (ii) Increase number of trees
on agriculture land through developing and promoting adoption of agro-forestry systems (trees
with crops); and creating community woodlots. Not less than 50,000 ha will be brought under
agro-forestry; and 8,000 ha under community woodlots. (iii) Improve availability of non-timber
forestry products by procuring and distributing 8,000 starter-up equipment kits for beekeepers,
and; building capacity of 700 targeted beekeeping groups in management, processing and
marketing at community level. Interventions under this Component could be linked with land-use
planning for areas where agricultural and forest areas are contiguous. The total investment in
the next 5 years for the Forestry management component is US$ 31.97 million.
Promote Efficient Energy Use from Natural Resources This component will in part deal with
the climate change challenges by targeting the use of energy efficiency stoves by 4,000
households and developing and piloting use of renewable (bio-energy) options for smallholders
such as mini biogas plants using manure targeting 150 households. Interventions under this
Component could be linked with avoidance of deforestation driven by fuel-wood/charcoal use.
Residues and manure required for biogas may already be employed elsewhere on farm
(residues for animals and manure for soils, so these interventions will be piloted in the
appropriate environment. The total cost for the Energy Efficiency Promotion component over the
5-year period is US $ 1.23 million.
Ensure Sustainable Capture fisheries management: The policy objective for the Fisheries
Component is “to increase fish production, productivity and value-addition through sustainable
and efficient management of capture fisheries and aquaculture”.7 Given the nature of
challenges faced by aquaculture, which are similar to those of crop and livestock production,
aquaculture has been dealt with under the Production and Productivity Improvement
programme. In order to realize the above stated policy objective, capture fisheries management
component will focus on four (4) sub-components: (i) Fish conservation and surveillance; (ii)
Capture fisheries research and information management; (iii) Capture fisheries production
enhancement, and; (iv) Climate change and climate variability mitigation strategies for capture
fisheries. These are discussed below in succession.
Fish conservation and surveillance: The strategic objective of this sub-component is to promote
sustainable exploitation of capture fisheries resources. A number of interventions will be carried
out to bring about the cited result, including conducting of 300 patrols per year for the next five
years to collect fish production and market statistics. Another 300 patrols per year will be
undertaken to enforce fisheries regulations (including fish ban). One of the key challenges that
negatively impact fish conservation is the use of inappropriate fishing gear by fishers. To deal
with this challenge, a total of 10 appropriate fishing gears will be devised during the next five
years. Capacity building efforts under this sub-programme will include stock assessment and
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Draft NAIP 2012
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fisheries management. This will be coordinated with the subcomponent below, dealing with
capture fisheries research and information management.
Capture fisheries research and information management: The strategic objective of this sub-
component is to conduct research in order to generate information on which sustainable
methods and policies of exploiting fisheries resources can be based. One of the results will be
the employment of appropriate strategies to increase the catch per unit of effort (CPUE) from
the current 1.7 – 13.8 kg per boat per night to 10 - 80 kg, in five years’ time. Key interventions
will focus on conducting various vital studies: biodiversity (10 studies for the whole period);
limnological (10 studies); frame surveys in all the fisheries (5); catch assessment surveys (10),
and disease surveillance (5).
Capture fisheries production enhancement: The strategic objective for this will be to apply
regulations and management strategies that will enhance fish recruitment and increased
production of fish from a fishery on a sustainable basis. The key result to be achieved is the
increase in annual fish capture from the current 70,000 to 90,000 MT. Among the interventions
to bring this about will include: demarcating 20 fishery management areas as well as 50 fish
breeding grounds, and; carrying out a total of 180 awareness campaign meetings, including
culture-based Capture fisheries through restocking of 250 natural water bodies using fingerlings.
Climate change and climate variability mitigation strategies for capture fisheries: The strategic
objective is to generate information on climate parameters that can be utilized to advise on
preparedness for mitigating the effects of climate change or climate variability in relation to the
exploitation of fishery resources. To realize this objective, a number of interventions will be
carried out, the key ones being: establishing 60 climate change early warning data collection
points as well as 100 water level monitoring points in each fishery. In addition, a total of 15
climate change awareness workshops will be conducted. Given the complex nature of climate
change issues, a strategy to develop human and infrastructure predictive and modelling
capacity will be part of the key activities under this subcomponent.
The total cost for the capture fisheries management component over the next five years is US$
41.13 million. The annual and total budget for implementing the Sustainable Nature Resources
Management Programme is presented in Table 6 below.
Table 6: Budget – Sustainable Natural Resource Management Programme (US$ million)

Component Implementation Period (years) Total Source of Funding
2014 2015 2016 2017 2018 GRZ/CP Farmers Priv
Sect
Promote Land-use 4.89 8.57 10.69 6.48 6.59 37.23 32.20 4.12 0.90
Planning, Admin &
Management
Ensure efficient water- 19.81 38.27 40.18 40.69 30.30 169.25 156.98 12.28 0.00
use & irrigation
Promote afforestation, 5.72 6.60 7.02 7.13 5.50 31.97 28.90 2.67 0.40
community woodlots
and agro-forestry
Ensure sustainable 8.63 8.73 8.56 7.59 7.63 41.13 40.88 0.25 0.00
capture fisheries
Promote efficient 0.10 0.26 0.32 0.35 0.20 1.23 0.83 0.35 0.05
energy use from
natural resources
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Total 39.15 62.43 66.77 62.24 50.22 280.80 259.79 19.66 1.35
3.4 Agricultural Production and Productivity Improvement
This Program has three components: livestock, crops and aquaculture. Each of these is
presented separately. All components and subcomponents will be designed in such a way that
at least 30% of beneficiaries will be women. A deliberate effort will also be made to ensure that
youth benefit from all interventions that will be designed and implemented.
3.4.1 Livestock Component
The overall policy objective of the livestock component is “to improve the sustainable and
efficient production, productivity and value-addition of diversified livestock sub-sector”.8 This will
be achieved through the implementation of the following five (5) main sub-components: (i)
Regulations and policy reforms; (ii) Livestock production; (iii) Promotion of livestock health; (iv)
Livestock research, and; (v) Construction of appropriate livestock infrastructure. Each of these is
briefly dealt with below. The total budget for the Livestock component including infrastructure
and capacity building is US $ 354.25 million. Main outcome indicators are provided in Table 7.

Unit B/line Target
Ensure Animal Increase Livestock Cattle population Million 3.5 -
Health and population Goat population Million 1.1 -
Disease Control Pig population Million 0.7 -
Improve vaccination Animals vaccinated for FMD ‘000 animals 500 -
coverage Animals vaccinated for CBPP ‘000 animals 400 -
Animals vaccinated for ECF ‘000 animals 33 -
Promote Increase quantity of Quantity of beef produced ‘000 MT 60 -
increased livestock products Quantity of milk produced ‘000 litres 90 -
Livestock Quantity of village chicken produced Million 50 -
productivity and Quantity of broiler chicken produced Million - -
Production Quantity of eggs produced ‘ 000 MT 225
Ensure Increase Livestock Percent of livestock herders that % - -
adequate Productivity have access to functioning dip tanks
Livestock Percent livestock producers that % - -
Infrastructure have access to LPCs
Percent livestock producers that % TBD -
have access to veterinary services,
by type (public, private)
Support Applied Conserve important Number of strains characterized, # 10 40
Livestock local livestock strains and conserved
Research Develop appropriate Number of technologies developed # 5 30
livestock production
technologies
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Key components
Promote regulations and policy reforms the strategic objective will be to review, formulate
and enforce livestock regulations and policy, leading to a well-coordinated livestock industry. A
Draft Livestock Development Policy has already been formulated. However, there will be need
to engage an estimated 780 stakeholders in 14 consultative meetings countrywide at various
levels (the majority being at lower level, i.e. sub-district). Half of the 780 stakeholders will be
engaged to finalize the Draft Livestock Development Policy and the other half will finalize the
Draft Livestock Development Act. Once in place, the regulations and policy reforms will provide
a basis for dealing with all the five challenges identified above (under-funding; high disease
prevalence; Poor grassland management; high cost of feed, and; lack of breeding stock). The
Regulations and policy reforms sub-component will cost US$ 860,000 over the next 5 years.
Promote Increased Livestock Productivity and Production will deal with the challenge of
lack of breeding stock among others, and will focus on increasing the number and quality of
various livestock for improved meat production and livestock productivity. Interventions will
deliberately target not less than 30% women beneficiaries and will promote value chains that
offer immense opportunities to increasing household income levels. The interventions will
include: facilitating purchase by small-scale farmers of various genetically superior breeds,
namely: 4,000 beef cattle; 4,000 dairy cattle; 8,900 sheep and goats; 4,700 pigs, and 150 million
chickens. This component will seek to establish Livestock Service Centres (all 3 levels:
L1=200; L2=50; L3=10). Communities will be expected to contribute 15% towards the
construction of the centres, which will be community and private sector run once completed. At
community level, committees responsible for running the will include at least 30% female
representation. Other critical infrastructure to be constructed will include: 10 Livestock
Production Centres; 20 Milk Collection Centres (again run by the private sector and
communities); and; 16 Artificial Insemination centres. The total budget for Livestock production
sub-component over the 5 years of NAIP implementation is US$ 72.88 million.
Ensure Animal health and Disease Control will aim at reducing the incidence of livestock
diseases by targeting a number of appropriate interventions including: strengthening the
zoonotic and contagious animal disease surveillance resulting in development of surveillance
plans and Standard Operating Procedures; registering farms for traceability leading to the
development of a farm register, and; providing support to emergency animal disease control
fund. There will also be support provided towards the procurement of various vaccines during
the NAIP implementation period including: 6 million FMD; 2.5 million CBPP; 350,000 ECF;
100,000 PPR; and 75 million Newcastle vaccines. There will be a deliberate targeting of at least
30% women beneficiaries from all these. Livestock health sub-component will cost 276.23
million over the next five years.
Support Applied Livestock: Research will focus on two major areas, first conserve and
maintain livestock biodiversity, which will be concerned with supporting the characterization of
indigenous breeds. It is expected that 6 suitable breeds each for cattle, goats and pigs and 11
indigenous poultry strains will be characterized. The following germ plasma will also be
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supported: 10 cattle; 6 goat, and; 14 chicken. Second, livestock research sub-component will
focus on developing suitable technologies that are gender sensitive for increased and
sustainable livestock productivity. Among others, the development of suitable and appropriate
technologies in animal nutrition, breeding, pastures and rangeland management will be
undertaken targeting a total of 19 technologies during the NAIP implementation period. This
component will include 3 Livestock Breeding Centres and 1 Livestock Gene-bank. The total
budget for the Livestock research for the next 5 years is US $ 4.28 million.
The annual and total budget for implementing the Livestock Component is presented in Table 8
below.
Table 8: Budget – Livestock Component (US$ million)

Sect
Promote regulations 0.79 0.06 0.01 0.00 0.00 0.86 0.86 0.00 0.00
and policy reform
Promote increased 11.31 21.76 26.58 10.81 2.43 72.88 52.19 18.69 2.00
Livestock productivity
and Production
Support Applied 2.88 0.68 0.32 0.34 0.04 4.28 4.28 0.00 0.00
Livestock Research
Ensure Animal Health 53.53 52.66 54.54 58.81 56.69 276.23 274.73 1.50 0.00
and Disease Control
Total 68.51 75.17 81.45 69.96 59.16 354.25 332.06 20.19 2.00
3.4.2 Crops
The policy objective for the Crops component is “to increase sustainable crop production,
productivity and value addition for a diversified range of competitive crops apart from maize” 9.
This will be achieved through implementing the following four major sub-components; (i)
Promote improved productivity; (ii) Promote access to inputs through better targeting of FISP;
(iii) Promote good agricultural practices, and; (iv) Promote mechanization of crop production
systems. The total cost of the Crops component over the next five years is US$ 852.68 million of
which 37% will be from farmer contribution and 18% from cooperate private sector contribution.
The sub-components are briefly discussed below in Table 9.

Unit B/line Target
Promote Increase crop production Legume production ‘000 MT 230 900
6
improved and productivity, in order to Area under crop production by 10 Ha 1.8 -
productivity meet national needs, & smallholders
promote exports
Average cereals yield increased MT/ha 1 2.5
Percentage farmers adopting new % - -
9
Draft NAP 2012
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varieties
Promote access Improve access to inputs Percentage of farmers, by type % - -
to and efficient (seed and fertilizer) through (according to land holding size),
use of inputs better targeting of FISP using fertilizer
Percentage of farmers using % - -
improved seed
Quantity of fertilizer being applied Kg/ha 2 -
by smallholders in crops other than
maize
Promote good Promote GAP such as pest Percentage of farmers that practice % - -
agricultural control, fertilizer application, GAP
practices weed management
Promote Promote mechanization of Area under mechanized agriculture ‘000 Ha 375 3000
mechanization crop production systems
of crop systems (animal draught, etc)
Key components
Promote improved productivity

Embedded in the promotion of improved productivity is diversification of crops focusing on
legumes, oil seed crops, other cereal crops, root and tuber crops and horticultural crops.
Interventions under all these will include development of new crop varieties suitable to the
country’s different agricultural ecological zones, and its changing climate, and their subsequent
multiplication and dissemination. In this regard, a total of 28 varieties of different crops
mentioned above will be developed. Approximately 20,000 farmers will be trained in seed and
tuber multiplication, while Other interventions under diversification will involve extension
activities, such as the promotion of 9000 farmer field schools as well as 9000 demonstration
plots, and 3200 field days. Total cost of this component is expected to be US$ 6.43 million.
Promote access to inputs through better targeting of FISP: At the core of this components
will be the restructuring and improved targeting of FISP, so that it favours the decentralisation
agenda. The restructuring will involve supporting 300,000 small-scale farmers under the e-
voucher arrangement out of the 700,000 ear-marked for FISP in 2014. In the next two years
(2015 and 2016) all the 700,000 farmers will be under the e-voucher, which will be scaled up
nation-wide. The last two years (2017 and 2018) will see a decline in those supported under the
e-voucher system to 600,000 per year, as some recipients will graduate from the program. The
total expenditures allocated to FISP will decrease over the five years and can be re-allocated to
other priority areas.. The e-voucher will be value-based rather than input based. Consequently
from the facility provided, farmers will have flexibility and make the final choice whether to buy
inputs for other crops (rather than maize; leguminous; and; oil crops, etc.); inputs for fish
farming (fingerlings, feed), or; livestock (veterinary drugs, feed). That way, the restructured FISP
will promote crop, livestock and fish diversification and reduce distortion in input use since a
broader set of inputs will be supported under the program, with the potential for improved
efficiency. Other expected benefits will include greater private sector participation in input and
output marketing, by working with a greater number of local agro-dealers, more efficient
payment systems which can reduce costs, particularly if e-vouchers can use mobile money
technologies, thereby resulting in increased transparency in the process, and a contribution
towards the realization of Food and Nutrition Security objectives.
Farmers and Government are expected to contribute 40% each, of the total cost of the inputs
while the private sector will contribute 20% through transportation and other logistical related
issues. Notwithstanding the expected diversification, the current levels of maize production by
smallholder farmers are likely to be maintained and even increased in the short to medium term
66 | P a g e
as farmers will be expected to buy their own inputs, having realized the value of fertilizer
application. In addition, greater private sector participation in input and output marketing is
expected to further motivate farmers to buy own inputs for maize production arising from lower
input prices as a result of increased efficiency levels and competition. Total cost for this
component will be US$ 825 million.
The promotion of Good Agricultural Practices (GAP) will be an integral part of land
management. This will address a number of challenges highlighted above, including: low levels
of improved input adoption; poor response to fertilizer due to high soil acidity, and; low adoption
rates of Conservation Agriculture (CA) as these are all embedded in Good Agricultural
Practices. This sub-component will be closely linked to the Sustainable Natural Resources
Management Programme, particularly with respect to Conservation Agriculture under Land
management sub-component. In this regard, a total of 150,000 smallholder farmers will be
trained in GAP including; Conservation Agriculture, correct spacing, fertilizer application, liming,
early planting and crop rotation, among others. One of the key aspects of GAP is the use of
improved seed. For this to be adequately realized among smallholder farmers, there will be
need to develop, multiply and distribute improved seed materials, particularly of those crops that
are already prominent in the country’s farming systems (including maize, groundnuts, cassava,
sweet-potatoes, cotton). This will help address the challenge of limited funding to agricultural
research highlighted above. During the next five years, new planting seed materials will be
developed including: 11 new cereal crop varieties; 6 new legume seed varieties; 7 new oil seed
varieties; 8 new tuber varieties, and; 5 new horticultural varieties. A total of 10,000 smallholder
farmers will be trained in seed multiplication of various crops in a bid to enhance farmer
adoption of improved seed.
Seed multiplication and distribution will be facilitated by Government, Non-Governmental

Organizations (NGOs) and the private sector with the first two expected to share 40% of the
total cost each and the private sector 20%. Two appropriate technologies that are gender and
HIV/AIDS sensitive will also be promoted. Total for this component is foreseen to be US$ 20.73
million.
Mechanization of crop production systems, including the use of animal draught power ,
another good agriculture practice, will primarily address the challenge of low levels of improved
input adoption caused by limited cultivated land due to labour constraint. Increasing land under
cultivation will invariably increase the demand and adoption of improved inputs. Additionally,
mechanization is also expected to address the challenge of poor returns to fertilizer application
through timely undertaking of crop husbandry practices following increased efficiency of
undertaking such practices. This sub-component will focus on a number of activities including:
training of 500 extension staff and 5,000 farmers in farm mechanization (including animal
draught power) and promoting of at least two (2) technologies that are gender and HIV/AIDS
sensitive during the next five years. Mechanization sub-component will cost US$ 0.52 million
over the next 5 years.
The challenge of poor price incentives to increase pricing is dealt with under the Market Access
and Services Development Programme.
The annual and total budget for implementing the Crops Component is presented in Table 10
below.
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Table 10: Budget – Crops Component (US$ million)

2014 2015 2016 2017 2018 GRZ/CP Farmer Priv

Sect
Promote improved 1.16 1.22 1.39 1.28 1.39 6.43 6.43 0.00 0.00
productivity
Promote access to inputs 175.00 175.00 175.00 150.00 150.00 825 356.25 318.75 150.00
through better targeting of
FISP
Promote good agricultural 4.05 4.05 4.05 4.05 4.53 20.73 15.93 0.50 4.30
practices
Promote mechanization of 0.10 0.12 0.10 0.12 0.10 0.52 0.52 0.00 0.00
crop production systems
Total 180.30 180.39 180.54 155.44 156.01 852.68 379.12 319.25 154.30
3.4.3 Aquaculture
The policy objective for the Aquaculture Component is “to increase fish production, productivity
and value-addition through sustainable and efficient management of aquaculture”, thereby
contributing to an increase in Fresh water aquaculture production and of per-capita fish
consumption as key results.10 This will be achieved through the implementation of the following
two sub-components: (i) improved aquaculture production and productivity, and (ii) Ensure
enabling environment for aquaculture development. The first sub-component will have a number
of interventions: Fish seed Development; Fish feed Development; Pen and cage culture
promotion; Pond and Dam Aquaculture promotion; Enhancement of Capture fisheries
production through sustainable fish recruitment using Aquaculture; Improvement of Aquaculture
inputs and products marketing and access to services. The second sub-component will include
interventions such as Application of Aquaculture regulations to enhance sustainable
development, and Climate change and climate variability preparedness for enhancing
Aquaculture development. The total budget for the next five years is US$ 51.57 million.
Table 11 presents selected strategic objectives and their respective targets at baseline and
after 5 years.

Unit B/line Target
Improve To increase fish production and Fresh-water aquaculture MT/ yr 20,000 60,000
Aquaculture consumption in Zambia production
Production
and The per-capita fish Kg/pp/ 6.2 12
Productivity consumption year
To produce quality fingerlings of Increased quantity of # 20 90

right species in sufficient improved quality fingerlings million
quantities
Produce higher quality feed, Feed conversion ratio (kg of # 2 1.3
with higher protein content feed to Kg of fish)
% of fish farmers adopting % 30 75
improved seed and feed
10
Draft NAP 2012
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To establish pond and cage Increased pond and cage fish MT 8 (pond)
Aqua-parks in appropriate areas farming productivity /ha/yr 2 (pond) 20
10 (cage) (cage)
Ensure To ensure that Aquaculture Percentage of farmers % 30 70
Enabling licensing, certification is carried adopting Aquaculture
Environment out according to Aquaculture regulations
for regulations
Aquaculture To establish an early warning Adoption rate of climate % 0 75
Development and planning system. change or variability
mitigation strategies
Key Components
Improved aquaculture production and productivity

Fish seed Development: The major outcome of increasing quantity of improved quality and
accessible fingerlings of specific fish seed required for different catchment areas of fish famers
will require a number of interventions for it to be realized. The interventions will include
engaging in pure line breeding for local breeds that have had proven performance. A total of 17
such pure line local breeds have been earmarked for breeding during the NAIP implementation
period. The benefits of this intervention will be heightened through the construction of 13
hatcheries in all high potential aquaculture zones. Additionally, a total of 69 nurseries will be
constructed in all high potential aquaculture zones aimed at increasing access to fingerlings.
Fish feed Development: The outcome related to improved fish yield from quality, accessible
fingerlings of specific fish feed required for different catchment areas and levels of fish famers
will be realized through a number of interventions, the key ones being: Conduct 10 research
studies in improved live feed production as well as 17 in local fish feed production. These efforts
will be supplemented by the construction of appropriate infrastructure including in all high
potential aquaculture zones, namely: 50 pilot demonstration feed plants; 50 feed storage sheds;
and 10 fish feed certification laboratories, one per province.
Pen and cage culture promotion: Increased production and productivity through pen and cage
operators will be realized through a number of interventions. Key ones will include: acquisition
and demarcation of at least 10 aqua-parks and construction of basic support infrastructure to
cage/pen sites. Needless to mention that Environmental Impact Assessments will be conducted
for each of the 10 sites selected for Aqua-parks aimed at taking on board environmental
concerns.
Pond and Dam Aquaculture promotion: Increasing the production and productivity of particularly
those areas without capture fisheries by increasing pond and dam farmers will benefit from the
interventions highlighted above on pen and cage culture promotion. In addition, 50 community
dams will be constructed and stocked. All areas concerned will need basic infrastructure such
as access roads (300 km); electricity and water articulation systems.
Enhancement of Capture fisheries production through sustainable fish recruitment using

Aquaculture: Sustainable recruitment of juvenile fish in the depleting lakes and provision of
aquaculture as alternative livelihoods to the fishers will be realized by establishing/constructing
a number of strategic infrastructure as well as its operationalization, including: 8 lake based
hatcheries and another 8 based nurseries. It will be critical to facilitate the establishment of 15
co-management committees to take care of the infrastructure that will be put up. Each co-
management committee will also run a revolving fund that will have been established.
69 | P a g e
Improvement of aquaculture inputs and products marketing and access to services: Increase in
services and incomes from aquaculture enterprises among aquaculture stakeholders will be
realized through a number of interventions most of which will be capacity building related for
both fish farmers and extension staff. These will include 50 awareness creation workshops
across the targeted areas and another 50 workshops to create linkages with service providers.
Another key intervention area will be the establishment and operationalization of the e-voucher
input system that will target a total of 13,000 beneficiaries.
Total budget for this component is US$ 31.79 million.
Ensure an enabling environment for aquaculture development

Application of Aquaculture regulations to enhance sustainable development: The main result
focus of this sub-component will be increased adoption rate of best and sustainable Aquaculture
practices. A number of interventions have been planned to bring this about such as conducting
of 200 patrols per year for enforcement of aquaculture licensing and another 200 for facility
certification. There will also be another 200 field visits aimed at compiling best aquaculture
practices whose use will be promoted and disseminated through extension services.
Climate change and climate variability preparedness for enhancing Aquaculture development:
The result related to adoption rate of climate change for variability mitigation strategies will be
achieved through the procurement of 50 survey and water quality assessment sets of
equipment and setting up 650 water monitoring stations or points. Total budget is USD 14.94
million.
The budget for implementing the aquaculture component is presented in Table 12 below.
Table 12: Budget – Aquaculture Component (US$ million)

2014 2015 2016 2017 2018 GRZ/C Farmers Priv
P Sect
Improve Aquaculture 9.51 6.78 6.70 6.27 2.49 31.76 27.73 0.63 3.41
Production and
Productivity
Ensure Enabling 3.38 4.79 4.09 3.94 3.60 19.81 17.86 1.30 0.65
Environment for
Aquaculture Development
Total 12.89 11.57 10.79 10.21 6.09 51.565 45.58 1.93 4.06
3.5 Market Access and Services Development
Two policy objectives are particularly relevant to the Market Access and Services Development
Programme: (i) To create an enabling environment that will facilitate an efficient supply of
agricultural inputs, increase private sector participation and improve the functioning of markets”,
and; (ii) “To improve the quality and enhance the competitiveness of potential agricultural
exports in order to fully utilize markets (regional and international) thereby increasing
agricultural contribution to foreign exchange earnings”11. These policy objectives will be
achieved through the implementation of the following four (4) components: (i) Support
11
Draft NAP 2012
70 | P a g e
institutional market arrangements and performance; (ii) Increase access to rural and market
infrastructure; (iii) Increase access to rural finance, and; (iv) Promote value chain integration.
The total budget over the next five years is US$ 257.21 million.
The main outcomes of this program are described in Table 13 below.

Unit B/line Target
Support Strengthen and revitalize Percentage of Cooperatives that - -
Institutional are deemed sustainable %
cooperatives movement
Market - -
Establish agricultural marketing Percent of farmers and traders
Arrangement
Performance and trade information that have access to price and %
market information
Enhance quality of Percentage of commodities that - -
%
commodities marketed is rejected by buyer/trader
Volume of agricultural produce
traded on ZAMACE
Increase Enhance storage facilities for private sector storage capacity ‘000 MT 200 350
Access to surplus production for sale Value of agricultural exports Billion 1.8 -
Rural and USD/Yr
Market Enhance farmers access to local Percentage of farmers having - -
Infrastructure %
and national markets access to local, national markets
Increase Improve access to banking Percentage farmers having - -
Access to %
services and credit in rural access to agricultural finance
Rural
areas Number of beneficiaries of
#
0 -
Finance matching grants
Promote Improve value addition of Number of farmers involved in 28 32
Value Chain # (‘000)
commodities primary processing at farm level
Integration Farmers accessing agricultural - -
# (‘000)
commodity exchange
Improve warehouse systems Volume sold through a 60 -
‘000 MT
for high yields commodities warehouse receipt system
Key components
Support institutional market arrangements and performance: will have four sub-
components: (i) Support Cooperatives, Farmer organisations, agribusiness centres and Trade
associations; (ii) Support agricultural marketing and trade information and intelligence including
that related to regional markets; (iii) Develop Grades, Standards and Certification, and; (iv)
Support Private Sector Agro-Dealers Promotion. Each of these is briefly explained below.
Support to farmer cooperatives and organizations: is critical to increasing smallholder

production and productivity, as small-scale farmers constitute more than 70% of the farming
community. Input and output marketing arrangements for small scale farmer’s cause a great
constraint to smallholder agricultural production performance and require farmers to be
organized. Consequently cooperatives and farmer organizations are vital for integrating small-
scale farmers into the market. A major result area under NAIP will be a revitalized and
strengthened cooperative movement. In order to realize this result, new cooperatives will be
formed and strengthened as well as the old ones revived. The cooperative legislation will be
71 | P a g e
reviewed and 10,000 cooperatives trained in various business and organizational issues. Media
outreach for the enhancement of the Cooperative movement will be promoted targeting the
recapitalization fund. In this regard 1 million outreach materials will be produced during the
NAIP implementation period.
Agricultural marketing and trade information and intelligence: this sub-component will address a
number of the above identified challenges, the key ones being: crowding out private sector will
be minimized on account of availability of critical marketing, trade information and intelligence,
and; policy unpredictability related to marketing will also be minimized. The implementation of
the Agricultural marketing and trade information and intelligence will draw from market based
food reserve management lessons as well as those from farmer marketing training in part.
This sub-component will include crop, livestock and fisheries market centres development and
operationalization in strategic potential areas. This will include: 18 Agri-business centres; 180
crops community bulking and marketing centres; 185 livestock marketing and service centres;
20 milk bulking and processing centres; 7 fish landing sites complete with ice plants at provincial
level, and; 7 fish bulking and processing centres at the same level. Mechanisms will be
established to ensure continuous flow of market and trade information from regional economic
community bodies and other relevant regional institutions. For instance, links with the Regional
Agricultural and Food Security Investment Programme by COMESA and the Tripartite
Agreement between COMESA - SADC - EAC and other relevant regional institutions will be
established. This will enable Zambia to take advantage of these regional frameworks (including
compacts of the Regional Economic Communities) with regards to regional trade, policy and
market facilitation.
Develop grades, standards and certification: the major outcome of this will be enhancement of
the quality of products marketed. Interventions to bring about this outcome will include:
developing standard operating procedures for fisheries (18), livestock (3). The enforcement of
commodity standards will also be enhanced through training of 30 Health Inspectors and 500
farmer groups during the five (5) year implementation period.
Promote private sector agro-dealers: will address a number of the above identified challenges
including: crowding out private sector with lessons drawn from out grower schemes; e-vouchers
and warehouse receipt systems, among others. The key result area will be enhanced
participation of private sector in agro-dealership. A number of interventions will be undertaken to
bring about this result, including: establishment of 2,000 agro-dealers across all the country’s
districts and provision of appropriate entrepreneurship training to close to 3,900 local agro-
dealers country wide.
Total budget for this component is USD 25.25 million over five years.
Increase access to rural and market infrastructure: will have seven sub-components: (i)
Develop agricultural access roads; (ii) Support energy promotion; (iii) Support development of
storage infrastructure; (iv) Support development of crop output market centres; (v) Support
development of livestock markets; (vi) Support infrastructure development for fisheries quality,
and; (vii) Support development of fishery markets and acquisition of transport. Each of these is
briefly explained below.
Under the promotion of the agricultural access roads, 2,500 km of rural access roads will be
constructed in all the provinces and another 1,250 maintained. The percentage of farmers
72 | P a g e
accessing electricity through the Rural Electrification Programme for farming purposes will be
increased. In this regard, 10 sites will be established where farmers will be able to access hydro
electricity for farming and processing (42,000HH/site). Private sector storage capacity will also
be enhanced from the current 200,000 MT per annum to 350,000 MT.
Commercialization of crop marketing will also be emphasized through the establishment and
operationalization of 180 crop community bulking and marketing centres across the country’s
potential areas. Once established, the managers and other key players in all the 180 centres will
be trained in processing, standards and marketing issues. Similarly, value addition to the
livestock products will be realized through the procurement and establishment of 135 small
scale livestock products and by-products processing plants. Among others, this will entail
training 290 small-scale farmers in agri-business skills for Livestock.
Similarly, the fishery sub-component will be strengthened through a number of activities,

including: construction of 100 landing sites in appropriate locations complete with ice plants at
provincial level; Construction of 10 fish bulking and processing centres at provincial centres,
and; training of 40,000 fishers in processing and value addition.
Total budget for this component is expected to be US$ 91.16 million.
Increase access to rural finance: the key result for this sub-component will be increased
access to banking services and credit in rural areas. The realization of the result area will be
through a number of interventions including: training of 300 financial services providers in rural
finance, micro-credit etc. at district level; Promotion of village/rural banking services through
training and sensitization of 250,000 (of which at least 30% will be women) small scale farmers
in rural finance, micro credit, processing and diversification, etc. by trained financial institutions.
Those successfully trained will be facilitated to access a matching grant that will have been
established, amounting to US$ 2.5 million. The fund will be disbursed through appropriate
financing institutions. Total budget for this component is US$ 46.87 million.
Promote value chain integration: the first key result area will be the promotion of the
production of commercialized commodities through improved value addition of such
commodities that will target at least 30% of female beneficiaries. This result will be realized
through a number of interventions, the key ones being the establishment and operationalization
of 6 rural agro-processing industries for value addition as well as strengthening the various
categories of value chain actors/groups. At least 6 categories of value chain actors will be
identified and capacity built following a vigorous value chain analysis of targeted major
commodities. Training at least 600 (including women) functional district level staff as well as
sensitizing at least 4,000 (of which at least 30% will be women) various stakeholders will also
strengthen commodity exchange. The warehouse system will be improved for high value crops
through training of another 600 functional district level staff. Total budget here is US$ 93.92
million.
The annual and total budget for implementing the Market Access and Services Development
Programme is presented in Table 14 below.
Table 14: Budget – Market Access and Services Development (US$ million)
73 | P a g e

Sect
Support Institutional 4.62 5.67 6.05 4.47 4.44 25.25 21.40 2.85 1.00
Market Arrangements
and Performance
Increase Access to 12.83 25.14 28.13 13.36 11.71 91.16 74.68 2.59 13.89
Rural and Market
Infrastructure
Increase Access to 0.79 21.79 21.79 1.75 0.75 46.87 25.37 5.50 16.00
Rural Finance
Promote Value Chain 1.38 3.23 43.73 3.70 41.90 93.92 88.28 0.54 5.10
Integration
Total 19.62 55.82 99.70 23.28 58.80 257.21 209.73 11.48 35.99
3.6 Food and Nutrition Security and Disaster Risk Management
Food security policy is best understood as an amalgam of policies designed to stimulate

agricultural production and productivity, support rural livelihoods, reduce vulnerability through
safety nets, and stimulate broad based economic growth. Food reserves have been restricted to
the equivalent of three-month imports. FRA will contract private sector actors to procure, store
and maintain the food reserves on its behalf. The food stuffs to be bought will be at prevailing
market prices. The Food and Nutrition Security and Disaster Risk Management has three major
components (see Table 15): food security, nutrition, and disaster risk management and
mitigation with a total budget of US$ 659.86 million over the next five years. Of the total budget,
close to 3 percent is expected to be financed by farmers.
Table 15: Selected Strategic Objectives and Outcome Indicators by Component

Compon Strategic Objective Outcome Indicator Outcome Indicator Value
ent Unit B/line Target
Food Improve food security at national level Number of months food # 3.2 1.0
Security insecure HHs have
inadequate food
Number of months import in # 3 3
Food Reserve Agency
Reduce HH level post harvest losses % losses cereals per annum % 30 15
Nutrition Improve nutrition security for HH % of targeted households % - -
through education with nutrition knowledge and
methods improved
Promote adequate food utilization at HH Diet diversity score (in # ? -
level collaboration with Food
Nutrition Commission)
Risk Enhance farmers protection to disaster Number of smallholder # 0 100,000
manage farmers having access to a
ment and crop insurance scheme
Disaster Strengthen information systems % of smallholder farmers % 30%? 66%?
Mitigation having access to an early
capability warning system
Key components
Promote National and Household Food security component: has two strategic objectives:
(i) Ensure sufficient food reserves at household and national levels, and; (ii) Reduce post-
harvest losses at household level. Improving the management of the Strategic Grain Reserves
(SGRs) will allow attaining the first objective. In this regard, the national grain reserve storage
74 | P a g e
capacity will be more than doubled, from 1,200,000 MT in 2011 to 2,500,000 Mt in 2018. On the
other hand, the promotion of adequate food storage at household level will involve supporting
the construction of 800,000 traditional silos from local materials (mud and bricks). The 800,000
beneficiary farmers will also be trained in good storage practices. The Food Security component
will deal with a number of the above identified challenges including: low energy intake; serious
stunting levels; and poor food storage at household level. This component is expected to require
the lion’s share of the program, with US$ 592 million.
Promote Access to Nutritious Food strategic objective will be to improve household nutrition
through education. This will among others involve developing and disseminating 35 recipes as
well as training 100,000 farmers in the recipes developed. The selection of farmers for training
will be strategically done to optimise diffusion of knowledge and skills to a wider segment of the
smallholder rural community. In a bid to popularize the usage of local foods for recipes, 200,000
small-scale farmers will be trained in on-farm processing. One other major intervention will be
the promotion of school and home gardens and horticulture. A total of 2,500 extension staff will
be trained and will be expected to extend the knowledge and skills acquired to 100,000 farmers.
The Nutrition component will deal with the challenge of inadequate nutrition education.
Initiatives aiming at improved nutrition under the NAIP will be closely coordinated with other
social protection initiatives, such as the Food Security Pack, implemented by the Ministry of
Community Development, and other social safety nets. This component is expected to cost US$
50.46 million.
Ensure Risk management and Disaster mitigation capabilities: The key strategic objective
is to stabilize small-scale farmers’ food and nutrition security through enhanced farmers’
protection against disaster. The three-fold key interventions under this will be: establishment
and operationalization of crop insurance; Strengthen weather forecasting capability for
agriculture by establishing weather stations in at least 100 districts, and; consistently and timely
carry out Post Harvest and Crop Forecast Surveys. This component is expected to cost US$
17.40 million.
The annual and total budget for implementing the food and nutrition security and disaster risk
management programme is presented in Table 16.
Table 16: Budget – Food and Nutrition Security Component (US$ million)
2014 2015 2016 2017 2018 GRZ Farmers Priv
Sect
Promote National and 100.00 123.00 123.00 123.00 123.00 592.00 573.60 18.40 0.00
Household Food
Security
Promote Access to 6.59 10.63 11.16 10.95 11.13 50.46 49.71 0.75 0.00
Nutritious Food
Ensure Risk 3.54 3.64 3.64 3.54 3.04 17.40 17.40 0.00 0.00
Management and
Disaster Mitigation
Capability
Total 110.13 137.27 137.80 137.49 137.17 659.86 640.71 19.15 0.00
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3.7 Key Support Services – Knowledge Support Systems
In order to allow MAL and the agriculture sector to provide the products and services required
by farmers and practitioners, a number of knowledge support systems need to be further
strengthened and developed. These include the research and extension systems, as well as the
seed system, and the agricultural training and education system. Total budget for this Key
Support Service is US$ 254.48 million. The main outcomes are provided in table 17 below.

Unit B/line Target
Research system Enhance service delivery Percentage of funds from % 20 33
systems to ensure adequate other sources (non-GRZ)
funding of research and Percentage funds from GRZ % 5 10
extension through alternative Number of phytosanitary # 18 -
financing options certificates issued (‘000)
Number of nursery # 10 -
registration certificate (’000)
Extension system Enhance the extension service Percentage of farmers that % - -
delivery systems have access to extension
services, by gender
Ratio extension worker- # 1:1000 1:500
farmer/livestock herder/fisher
6
Seed system Enhance Seed extension, seed Quantity of maize seed 10 50 -
testing, and variety testing, certified for sale MT
6
registration, and protection Quantity of wheat seed 10 3 -
certified for sale MT
6
Quantity of cotton seed 10 4 -
certified for sale MT
Agricultural Develop and implement Percentage of students that % - -
Education and appropriate training programs are satisfied with their
Training system course/teacher
Key components
This targets four sub-components: (i) Strengthen Seed Systems; (ii) Strengthen Research
Systems; (iii) Strengthen Extension Systems, and; (iv) Strengthen Agricultural Training and
Education Systems. These are briefly addressed below.
Strengthen Seed Systems: will enhance production, seed and variety testing, registration,
protection and seed extension. Key intervention areas will include: decentralize seed services to
all provinces and border posts, and; monitor and backstop satellite and private seed testing
facilities. This component will also consider the informal seed system (e.g. non-certified seeds,
of either local or improved varieties that are saved/recycled/exchanged through local markets).
During the next 5 years, a total of 525 varieties and cultivars of different crops will be tested,
protected and released and DUS test undertaken. A total of US$ 26.44 million will be spent in
the next five years on improving the seed sector delivery services.
Strengthen Research Systems: the main strategic objective of Research will be to enhance
public service delivery systems to ensure adequate funding for research and extension through
alternative financing options. This will involve, among others, the establishment and
operationalization of a Competitive Grant Scheme (CGS) for research. This will involve a total of
US$ 1 million over the NAIP implementation period; Diversify sources of research funds through
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producer levies, contract research, and joint ventures with the private firms. A total of 2,000
requests are expected to be made to ZARI during the NAIP implementation period, and;
Contract out research and establish public-private partnerships (PPPs) involving a total of at
least 10 PPP contracts signed. There will be a deliberate focus on gender sensitive research.
As a matter of fact, the extent of gender sensitivity in the submitted research proposals will form
a major criterion in the assessment of such proposals submitted to the Competitive Grant
Scheme.
Another strategic objective for Research is to ensure effective research and development that
promotes the participation of other stakeholders including the private sector. This will be
concerned with the protection of 150 technologies during the period under consideration and the
commercialization of another 150 technologies. This component will have a budget of US$
37.06 million.
Strengthen Extension Systems: Extension services need to be strengthened in order to

address the challenge of limited number of smallholder farmers receiving extension services.
This sub-component will focus on facilitating the engagement of greater numbers of human
capacity as well as rehabilitation and construction of farmer training centres and institutes
(including those specialized for fishers) staff houses and procurement of motorbikes and other
equipment for enhanced extension performance. During the implementation of NAIP, 3,500
extension staff will be trained/retrained in good crop, animal and fisheries husbandry practices.
There will be a need to revisit the current extension system, which is divided between crops,
livestock and fisheries, in order to move towards an integrated and unified extension system
that caters for all thematic areas of the MAL. Furthermore, the private sector will be engaged to
accelerate their participation in the provision of extension services. A number of seed and cotton
private sector companies are already providing extension services to small scale farmers. This
will be further encouraged and strengthened through among other things enactment and
implementation of appropriate policy interventions such as tax rebates. A total of US$ 123.22
million will be spent in the next five years on improving the extension system delivery services
Strengthen Agricultural Training and Education Systems: In all the nine (9) training
institutions under MAL, carefully selected core strategic activities will be implemented aimed at
enhancing the institutions’ performance in line with contributing to NAIP sector objectives and
goal. The four core group of activities to be implemented across all the 9 training institutions will
be defined by the following four strategic objectives: (i) To develop and implement appropriate
training programmes; (ii) To develop and implement a rehabilitation, construction and preventive
maintenance programme; (iii) To develop and operate income generating ventures to
supplement income for institutions, and; (iv) To conduct collaborative research trials.
Interventions will include: review of curricular; undertake 25 farmer-school-community outreach

initiatives per institution per year; training of staff (ranging from 10 to 60 per school, depending
on the size of the training institution), and strengthen Income Generation Activities initiatives
through strengthening of production units. A total of US$ 67.75 million is foreseen for
strengthening the Agricultural Training and Education Systems over the next five years.
The annual and total budget for implementing the Knowledge Support Services sub-component
is presented in Table 18 below.
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Table 18: Budget – Knowledge Support Systems (US$ million)

2014 2015 2016 2017 2018 GRZ Farmers Priv
Sect
Strengthen Seed 5.71 5.41 5.17 5.22 4.93 26.44 26.44 0.00 0.00
Systems
Strengthen Research 6.06 7.76 8.05 5.61 9.58 37.06 37.06 0.00 0.00
Systems
Strengthen Extension 16.39 34.95 25.26 23.56 23.07 123.22 123.22 0.00 0.00
Systems
Strengthen Agricultural 21.76 20.87 11.91 7.40 5.81 67.75 67.75 0.00 0.00
Training and Education
Systems
Total 49.91 69.00 50.38 41.79 43.39 254.48 254.48 0.00 0.00
3.8 Key Support Services – Institutional Strengthening
Institutional strengthening will have four key components: (i) Awareness creation; (ii) Undertake
sector policy dialogue, analysis and planning systems; (iii) Strengthen public financial
management, procurement and audit systems, and; (iv) Improve human resources management
and ICT systems. It should be appreciated that by their nature, institutional strengthening
activities are cross-cutting and hence are dealt with in all the four NAIP programmes. This is
critical given the need to capacity build the private sector entities and other players that will lead
the NAIP implementation. Total budget for this Key Support Service is US$ 19.86 million. The
main results are highlighted in table 19, while each component is further described below.
Table 19 Selected Strategic Objectives and Indicators by Component

Component Strategic Objective Outcome Indicators Outcome Indicator
Values
Unit B/line Target
Policy Dialogue Build capacity in PPD in Number of Policy-related # 0 10
and Analysis policy analysis and studies undertaken per year
impact assessment
Alignment of partner % of donor funds that are % 0 100
and stakeholder efforts aligned visibly to NAIP
to common NAIP Number of joint Annual Sector # 0 4
implementation Reviews held
frameworks
Financial Improved budget Percentage of budget spent by % TBC 95%
Management delivery (efficiency) and type of financing (GRZ, CP)
effectiveness of public TBC 90%
spending Number of Public Expenditure # 0 2
Tracking System implemented
Human Improved planning % vacancy for established % ? 20
Resources management and posts
Management evaluation of Human % of staff that complete their % ? 100
Resources at all levels APAS
Planning, M&E Improved planning, Number of coordination # 100 400
monitoring and meetings held at District level
reporting of MAL (CAS/DAS and DDCC) 100
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Component Strategic Objective Outcome Indicators Outcome Indicator

Values
Unit B/line Target
activities and results, as Dist.
well as sector Number of quarterly reports at # 20 600
performance district, province and central
level produced on time
Number of consolidated # 0 5
Annual Report prepared by (cumul)
MAL
Strengthen Sector policy dialogue and policy analysis: this will be with respect to policy
and strategies being implemented by government including CAADP. PPD is well placed to
spear-head sector policy dialogue and analysis. However, it currently lacks capacity for such,
including skills as well as inadequate human resource. PPD needs to be strengthened to rise to
the challenge of: (i) developing of a monitorable roadmap that reduces levels of adhoc
interventions while the Market Based Instruments (MBIs) are being developed; (ii) facilitating the
coordination and implementation of a flexible legislation that allows a transition with changing
relative roles of the main players; (iii) monitoring both the incidence and impact of policy
interventions and levels of MBI development, and; (iv) facilitate dialogue and rational decisions
when constraints to adhering to the roadmap are identified. Among others, the realization of
these will require various wide ranging stakeholder engagements at various levels; national,
provincial, district and community. Another topic will be integrating climate change into
agricultural policies and planning activities under the NAIP
Improve financial management, procurement and audit systems: This is crucial for NAIP to
deliver on its objectives. This sub-component will carry out Public Expenditure Tracking Survey
(PETS) and a quantitative Service Delivery Survey. While PETS has been carried out in other
ministries including Education, the survey has not yet been carried out in the agricultural sector.
It is vital that PETS be undertaken and that it be a recurring event after every five (5) due to its
importance in highlighting the efficiency of financial resource use, among others.
Improve human resources management and ICT systems: the bulk of this activity will be
concerned with sharpening the skills base of MAL technical and support staff aimed at
sufficiently equipping them to undertake their facilitatory functions with regards to NAIP
implementation.
Strengthen Planning, Monitoring and Evaluation Systems: This initiative is already under
implementation through the European Union’s funding window. The activity is to be carried out
in nine months involving various levels of implementation (national, provincial, district). The
whole MAL will have an integrated Planning, Monitoring and Evaluation system. Draft Key
Performance Indicators (KPIs) have already been identified. The M&E system being developed
through the PEP funding will be an integral part of this NAIP.
The annual and total budget for implementing the Institutional strengthening Services sub-
component is presented in Table 20 below.
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Table 20: Budget – Institutional Strengthening (US$ million)

2014 2015 2016 2017 2018 GRZ Farmers Priv
Sect
Strengthen Sector policy 0.49 0.22 0.22 0.22 0.22 1.38 1.38 0.00 0.00
dialogue and policy
analysis
Strengthen Public 0.43 0.12 0.37 0.10 0.35 1.37 1.37 0.00 0.00
Financial Management,
Procurement, and Audit
Systems
Strengthen Human 1.45 1.00 0.95 0.96 0.96 5.33 5.33 0.00 0.00
Resources Management
and ICT Systems
Strengthen Planning, 5.49 3.75 1.06 0.75 0.75 11.79 11.79 0.00 0.00
Monitoring and
Evaluation Systems
Total 7.86 5.09 2.60 2.03 2.28 19.86 19.86 0.00 0.00
4 SUMMARY NAIP BUDGET
4.1 Costing Methodology
For each program under NAIP, a few strategic objectives have been identified, with their
associated outcomes. Priority interventions contributing to achieve these outcomes have been
described above, by program. These interventions have been characterized by output
indicators, along with their associated unit, unit cost, baseline value and target value by the end
of the NAIP (2018). The outputs have to the extent possible been quantified, with annual
targets, and resulting annual values.
Following an output based budgeting methodology, the budget for each intervention has been
calculated by multiplying an intervention’s annual target by its unit cost, for each year of
intervention. The sum of each annual value was then added over the total period of NAIP
implementation (2014-18). The result is a total for each intervention, and by aggregation, for
each sub-component, component and Programme.
4.2 Base Costs
The total NAIP budget, or requirements, over the next five years (2014-2018), is US$ 2,730.69
million, equivalent to 13.6 billion Zambian Kwacha (rebased, ZMW)12. Of this amount, 14.34%
will be the expected contribution from farmers/ beneficiaries/ communities and 7.24% from the
corporate private sector (see Figure 16 below). Given the dire need to create an enabling
environment for a private-sector led agricultural growth, the 78% share of government
contribution is justified as a number of basics need to be targeted for investment to stir growth
during the current phase (2014-2018). Priority investment areas deemed critical to stir growth
12
An average exchange rate of 1 US$ = 5 ZMW has been used for the preparation of the budget
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include; research and development; technology dissemination; market infrastructure and

services development, among others.
NAIP summary costs are presented in Table 21 and 22 below. All costs are expressed in base
costs, i.e. without taking into consideration inflation.
Table 21: NAIP Budget (US $ Million) by Program, year & financier 2014 - 2018
Program Implementation Period (years) Total Source of Funding
2014 2015 2016 2017 2018 GRZ/CP Farmers Priv Sect
Crops Production and 180.30 180.39 180.54 155.44 156.01 852.68 379.12 319.25 154.30
Productivity
Livestock Production and 68.51 75.17 81.45 69.96 59.16 354.25 332.06 20.19 2.00
Productivity
Aquaculture Production and 12.89 11.57 10.79 10.21 6.09 51.57 45.58 1.93 4.06
Productivity
Market Access and Services 19.62 55.82 99.70 23.28 58.80 257.21 209.73 11.48 35.99
Development
Food and Nutrition Security and 110.13 137.27 137.80 137.49 137.17 659.86 640.71 19.15 0.00
Disaster Management
Sustainable Natural Resources 39.15 62.43 66.77 62.24 50.22 280.80 259.79 19.66 1.35
Management
Knowledge Support Systems 49.91 69.00 50.38 41.79 43.39 254.48 254.48 0.00 0.00
Institutional Strengthening 7.86 5.09 2.60 2.03 2.28 19.86 19.86 0.00 0.00
Total 488.37 596.74 630.02 502.44 513.13 2730.69 2141.33 391.67 197.70
Table 22: NAIP Budget (ZMW Million) by Program, year and financier 2014 - 2018
Program Implementation Period (years) Total Source of Funding
2014 2015 2016 2017 2018 GRZ/CP Farmers Priv Sect
Crops Production and 901.50 901.94 902.68 777.21 780.05 4,263.38 1,895.60 1,596.26 771.51
Productivity
Livestock Production and 342.55 375.83 407.26 349.81 295.81 1,771.26 1,660.28 100.97 10.00
Productivity
Aquaculture Production and 64.45 57.87 53.97 51.07 30.47 257.83 227.91 9.63 20.29
Productivity
Market Access and Services 98.10 279.09 498.49 116.38 293.98 1,286.03 1,048.67 57.41 179.95
Development
Food and Nutrition Security and 550.64 686.36 689.01 687.43 685.87 3,299.29 3,203.54 95.75 -
Disaster Management
Sustainable Natural Resources 195.73 312.17 333.83 311.18 251.11 1,404.01 1,298.95 98.31 6.75
Management
Knowledge Support Systems 249.56 344.98 251.90 208.97 216.97 1,272.38 1,272.38 - -
Institutional Strengthening 39.31 25.45 12.99 10.13 11.40 99.29 99.29 - -
Total 2,441.83 2,983.68 3,150.12 2,512.18 2,565.64 13,653.46 10,706.63 1,958.34 988.50
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Figure 16: NAIP Budget by Source of Funding
The next figure illustrates NAIP’s budget broken down by Program. Approximately 46% of total
budget is allocated to the Production and Productivity Improvement programme, divided by
commodity, Crops (31 percent), Livestock (13 percent), Aquaculture (2 percent). This is
expected on account of the Government crop production input (FISP) supported initiative. The
second largest Program is the Food and Nutrition Security Program (24 percent), which includes
the Government Maize Marketing initiative (FRA), whereas the Market Access Program and the
Sustainable Natural Resources Management Programs are both at 10 percent. The remaining
Key Support Services of Knowledge Support Systems and Institutional Strengthening represent
9 and 0.7 percent respectively. (see Figure 17).
Figure 17: NAIP Budget by Investment Portfolio
Total allocation by Program, in %
0.7%
Increase Production and
9.3% Productivity - Crops
Increase Production and
Productivity - Livestock
10.3% 31.2% Increase Production and
Productivity - Aquaculture
Market Access and Services
Development
Food and Nutrition Security
and Disaster Management
24.2% Sustainable Natural Resources
Management
13.0% Knowledge Support Systems
9.4% Institutional Strengthening

1.9%
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4.3 Available funds
The above budget does not take into account private investment at farm level, nor does it take
into account private sector corporate investments that are taking place in Zambia at the
moment. Efforts to collect this data would involve a detailed survey at farm level, and within the
private commercial sector (corporate). An attempt to collect this data will be made in preparation
for the Business Meeting.
The NAIP seeks to identify priority investments that are required to develop the agricultural
sector in Zambia. These are to a large extent investments of a public nature, but they do also
include private sector investments. For each intervention, an effort was made to estimate the
share of financing that should come from the private commercial sector, as well as from
farmers, their cooperatives, and communities, depending on the type of investment considered.
Sector Cooperating Partners (CP) have been put together with government. However, they
funding could also be channeled through the private commercial sector operators, or farmers,
their cooperatives and communities.
Regarding available funds to finance the NAIP, GRZ funding allocated to the sector has been
taken from the Medium Term Expenditure Framework (2013-15), and the same growth rate was
extrapolated to 2016, 2017 and 2018. MTEF figures exclude on-budget CP funds.
A database of on-going and planned interventions was compiled by Agriculture Cooperating

Partners and shared with MAL. On the basis of this data, each individual commitment was
realistically broken down annually and a determination was made as to the nature of this
funding, whether on or off budget. On-budget signifies that the donor funding will appear in the
Government annual budget (yellow book). These commitments are in the process of being
broken down by NAIP Program, which should allow to have a more refined financing gap
analysis, by Program.
On-going and planned interventions sum 503 million USD, of which approximately 308 million
are deemed to be on-budget, and included in GRZ annual budget figures, but not in the MTEF
figures. Approximately 195 million USD is considered to be off-budget, and these normally
support private sector, and communities directly or through NGO contracts.
Climate finance, comprising public and private funds to support adaptation as well as mitigation
could contribute to finance the NAIP. Building the necessary evidence base and financing
channels to link climate finance with investments in agriculture, is a major focus of Climate
Smart Agriculture (CSA) approaches. Financial resources that catalyze low-carbon and climate-
resilient development represent a source of funds that could potentially be used to reward the
positive externalities of NAIP. The costs associated to specific CSA activities have been
identified and are included in the total requirements.
4.4 Preliminary financing gap
In order to prepare a preliminary financing gap, the following assumptions have been made: a)
100 percent of MAL’s budget (excluding Personal Emoluments- PE) goes to finance the NAIP. It
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is also assumed that approximately 5 percent of MLNREP’s non-PE budget goes to finance
outputs and outcomes defined under the NAIP.
It is also assumed that 100 percent of sector Cooperating Partners funding is considered
available to finance NAIP priorities. These amounts are not included in GRZ projections, which
are based on the MTEF, and have been included in full. Finally it is further assumed that
approximately ten percent of farmers and private commercial sector’s expected contribution is
readily available.
The resulting financing gap is approximately equivalent to US$ 605.23 million, or 2.978 billion
ZMW. This represents approximately 22 percent of the total requirements for the NAIP.
The preliminary financing gap calculations are shown in Tables 23 and 24
Table 23 Preliminary financing gap – million USD

Source of funding Implementation Period (years) Total
(million USD)
2014 2015 2016 2017 2018
TOTAL NAIP requirement 488.37 596.74 630.02 502.44 513.13 2730.69
MAL (non PE) 237.13 263.43 287.42 316.16 347.78 1451.93
MLNREP (non PE, 5%) 15.79 18.46 23.15 25.47 28.01 110.89
CP commitments (on-going 148.21 133.38 95.81 79.07 47.26 503.72
and planned)
Private Sector (10% assumed 3.95 3.95 3.95 3.95 3.95 19.77
available)
Beneficiaries (10% assumed 7.83 7.83 7.83 7.83 7.83 39.17
available)
Total available funds 412.92 427.06 418.17 432.48 434.84 2125.47
Gap 75.45 169.68 211.85 69.95 78.29 605.23
Table 24 Preliminary financing gap – million ZMW

Source of funding Implementation Period (years) Total
(million
USD) 2014 2015 2016 2017 2018
TOTAL NAIP requirement 2402.78 2935.96 3099.70 2472.00 2524.60 13434.99
MAL (non PE) 1166.68 1296.08 1414.11 1555.51 1711.08 7143.50
MLNREP (non PE, 5%) 77.69 90.82 113.90 125.31 137.81 545.58
CP commitments (on-going 729.19 656.23 471.39 389.02 232.52 2478.30
and planned)
Private Sector (10% 19.43 19.43 19.43 19.43 19.43 97.27
assumed available)
Beneficiaries (10% 38.52 38.52 38.52 38.52 38.52 192.72
assumed available)
Total available funds 2031.57 2101.14 2057.40 2127.80 2139.41 10457.31
Gap 371.21 834.83 1042.30 344.15 385.19 2977.73
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5 IMPLEMENTATION ARRANGEMENTS
The issues of concern are five-fold under the implementation arrangements: (i) Policy and Legal
framework; (ii) institutional arrangements and roles; (iii) Financing Modalities; (iv) Monitoring
and evaluation, and; (v) Risk analysis management. These are briefly discussed below
sequentially.
5.1 Policy and Legal framework
The agricultural sector is guided by the National Agricultural Policy (NAP – See Section 3.1
above) which undergoes periodic reviews to ensure its relevance to prevailing climatic, social
and economic conditions of the country. In addition, the sector has a number of pieces of
legislation some of which are outdated. A process has been initiated in the recent past to repeal,
review, amend and enact new legislation aimed at providing a legal framework that will
maximize sector development and growth.
The following policy statements (Table 25) were arrived at by consensus of all the key
stakeholder categories in the sector and are contained in both the SNDP (Agricultural Chapter)
as well as the Zambia CAADP Compact of January 2011. Consequently, these policies will be
the basis for the implementation of NAIP.
Table 25 Key NAIP Policies

NAIP Structure Zambia CAADP CAADP Compact Policy Statements
Compact
Programmes
Natural  Sustainable Land  Government will facilitate equitable access to land for agricultural
Resources Management purposes
Management Programme
Agricultural  Agricultural  Government will develop and implement policies and programmes
Production and Productivity that support crop diversification, livestock and fisheries production,
Productivity Improvement increased productivity in crops and livestock, sustainable land and
Improvement Programme water management, including forestry, agro-forestry, climate change
adaptation and mitigation and other environmentally friendly
agricultural systems;
Market Access  Agricultural  Government and the private sector will implement and adhere to
and Services Marketing predictable, rule-based market and trade policies and strengthen
Development Development public-private coordination and dialogue
Programme  Government in consultation with stakeholders will identify investment
 Agricultural priorities in infrastructure development that support the sector
Investment  Government will facilitate private sector to scale-up investments in
Promotion production, input and output markets, processing and value addition
Programme in crops, livestock and fisheries
Food and  Food and Nutrition  Government will explore social protection instruments in partnership
Nutrition Security Security Programme with private sector and civil society
and Disaster Risk
Management
Key Support  Research and  Government in conjunction with private sector will promote
Services Extension diversified extension messages for all categories of farmers (crops,
(Knowledge Enhancement livestock and fisheries) with emphasis on the small-scale farmers
Support Systems) Programme  Government in collaboration with private sector and Cooperating
Partners will mobilize resources in order to develop cost effective,
demand-driven research and extension linkages focusing on Public
Private Partnerships
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NAIP Structure Zambia CAADP CAADP Compact Policy Statements

Compact
Programmes
Key Support  Cross-cutting  The sector will also collaborate with relevant stakeholders to speed
Services up the implementation of the National Decentralization Policy in
(Institutional order to facilitate improved service delivery
Strengthening)  Government in collaboration with private sector and Cooperating
Partners will promote and strengthen cooperatives and other farmer
organizations as a vehicle for agricultural development
It has been realized by Government, the private sector as well as the Cooperating Partners that
the existing policies and pieces of legislation are not adequate to create the enabling
environment necessary for the private sector to drive the growth envisaged in the sector.
Therefore, there will be need to review existing policies and a number of legislations so as to
align them to the current social and economic environment, and where possible develop new
ones to ensure that the policy and legal framework is conducive for the attainment of the desired
growth and reduction in poverty levels.
The National Agricultural Policy is already under review. The other ones which are critical which
will need immediate attention are the following: the development of an Agricultural Marketing
Act that will regulate market players in agricultural marketing; the review of the Agricultural
Credit Act to provide for use of warehousing receipt system as collateral in obtaining loans;
legislations regarding animal health, livestock development, dairy development, animal
identification and traceability and veterinary and para-veterinary professional which are
necessary to guide the sector on the control and prevention of livestock diseases as well as
regulate dairy and livestock production; and the Fisheries Policy and Fisheries Act.
5.2 Institutional Arrangements and Roles
5.2.1 Institutional Arrangements
The overall implementation responsibility of the NAIP will fall under the Ministry of Agriculture
and Livestock whose major focus will be the creation of an enabling environment for a private-
sector led agricultural development and economic growth.
MAL will ensure linkages and synergies with other relevant government ministries and
institutions (covering all the relevent sectors) for effective implementation of its mandate. MAL
will use the Agricultural Sector Advisory Group (Ag SAG) to engage other stakeholders on key
issues affecting the sector as well as report progress on the implementation of its mandate. At
sub-national level, existing structures, namely; the Provincial Agriculture and Environment
Subcommittee (PAES) of the Provincial Development and Coordination Committee (PDCC); the
District Agriculture and Environment Subcommittee (DAES) of the District Development and
Coordination Committee (DDCC) and the Community Agriculture Committee (CAC), will be
strengthened under the policy dialogue sub-component of the Key Support Systems
(Institutional Strengthening). This will be aimed at promoting stakeholder participation,
coordination and decentralization at these levels, which in turn is expected to enhance effective
implementation performance of the NAIP (see Appendix 2 for NAIP Implementation and
Coordination Organogram). The membership of Ag SAG, PAES, DAES and CAC will be
reviewed to ensure strong representation from appropriate private sector institutions. These
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structures will be supported through regular meetings and heightened dialogue on programme
design and implementation to ensure improved performance.
In line with the liberalization policy, the private sector will drive the development and growth of
the agricultural sector along with the civil society and farmer organizations (including small
scale, medium and large scale farmers). Other partnerships that are critical to the
implementation of this NAIP will include Cooparating Partners (CPs), financial institutions, input
suppliers, agro-industry, traders and regional economic communities such as the Common
Market for Eastern and Southern Africa (COMESA) and the Southern African Development
Community (SADC).
5.2.2 Roles
The Private Sector will take a dominating role in driving the development agenda of the
Agricultural Sector. In this regard, government and the other stakeholders see a major role for
the private sector in all the Investment Programmes. However, it needs to be recognized that
the country is coming from a background where government dominated the running of the
economy. This implicitly left a weakened private sector that needs considerable capacity
building for it to effectively undertake its rightful role as an engine to propel the sector’s growth.
The Central Government’s facilitatory functions through MAL will include: strategic planning;
oversight; policy formulation; capacity building of private sector and civil society organizations;
enforcement of legislation; regulation and inspection; provision of basic agricultural and rural
infrastructure; financing of the control of pests and diseases of national economic importance;
sector coordination and overall monitoring and evaluation.
The Local Governments (at provincial and district levels) will offer investors in all the
Investment Programmes incentives for identified ventures that are socially and environmentally
sustainable. They will offer the necessary incentives for a heightened private sector driven
agricultural development agenda within their respective boundaries within jurisdiction that
present a “win” for communities, LGs and the investor. Local governments will negotiate terms
and conditions for concessions or contracts for management of infrastructures including Built,
Own Operate and Transfer (BOOT) investments. They will ensure the availability of the socially
and environmentally feasible sites for resource development and use within their districts or
provinces.
The Central Government (CG) will provide advice to districts and communities on PPP
arrangements/modalities. Government will identify and support aspects of proposed local
infrastructure development plans that may encourage private investment. CG will establish
systems for the routine dissemination of advice to local institutions from inter-district to
community level and to individual and community enterprises on sources of public investment
funding; and it will promote investments in commercial intensive ventures that also benefit
communities.
The communities, community groups or community-based institutions will participate in

negotiating terms, conditions and concessions for investments to ensure community concerns
are addressed including, participating in recurrent monitoring and oversight of investments to
ensure it is in consonance with community interests. The Participatory Monitoring and
Evaluation (PME), which has been tested and proven during the implementation of the Zambia
Social Investment Fund (ZAMSIF), will be used by communities for tracking implementation
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progress and impact of various interventions within community boundaries. Communities will
provide services and labour forces required by local investments and generally take advantage
to acquire new skills introduced by investors.
5.3 Financing Modalities
The financing of NAIP will follow a mixture of mordalities that allows participating Cooperating
Partners (CPs) and other actors to meet their reporting obligations to their respective
governments and tax payers. Nonetheless, the prefered modality of financing is the Direct
Budget Support (DBS). Notwithstanding a particular mode of financing, all financing activities
will come under the Integrated Financial Management Information System (IFMIS) whose roll
out at national level began in 2012.
5.4 Monitoring and Evaluation
The NAIP will have a results-based M&E system. While not ignoring the lower level indicators
(input and output) as these are critical to monitoring the implementation performance which
ultimately leads to the achievement of the overall objectives (through the objective hierarchy),
NAIP’s M&E system will have a deliberate focus on higher level indicators (outcomes and
impacts). These are critical to tracking the intended change and benefits accruing to the primary
and other beneficiaries targeted by NAIP interventions.
For optimum performance of the NAIP taking into account its relevance, effectiveness, efficiency
and sustainability, there is need for an M&E system that is robust and cost-effective. In this
regard, the NAIP M&E system will incorporate the following 7 major components if it is to realize
its mandate: (i) Clearly defined objectives; (ii) Clearly defined Key Performance Indicators
(KPIs) that meet SMART criteria; (iii) Clearly defined data collection methods for the indicators
(including frequency for data collection); (iv) Institutional framework for data collection (including
a definition of roles for all those involved); (v) Frequency of data collection and responsibility;
(vi) Data analysis frequency and responsibility; and, (vii) Information dissemination plan,
including the audience.
An M&E system as described above needs a minimum number of dedicated staff at all levels for
it to be effective. It is, therefore, proposed that there be dedicated staff to deal with M&E at
national, provincial and district level through established M&E units. The proposed minimum
number of such staff at the various levels are as follows: National level, at least 5; provincial
level, not less than 2 and district level, at least 3. It is thus envisaged that an M&E directorate
will be established to ensure the monitoring and evaluation of the NAIP implementation
performance is given the attention it deserves. A number of variables will be assessed to
establish their impact including: impact of government policies on various farmer categories;
impact of climate change on production and productivity, and; impact of technologies and
farming practices. All data will be desegregated by gender to ensure detailed in-depth analysis
of these variables on male and female farmers. This will facilitate gender-sensitive programming
and technological development. Analysis will also be undertaken by agro-ecological zones, rural
versus urban as well as farmer categories.
Three evaluations will be undertaken aimed at tracking the performance of the KPIs in the next
5 years namely; baseline, mid-line and endline. Among others, the baseline evaluation will serve
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the purpose of confirming and updating the baseline values as well as fill the gaps where such
values do not exist as is currently the case for many KPIs. There will be need to incorporate
new questions in the Post Harvest Survey to facilitate the collection of data for any important
additional Key Performance Indicators (KPIs) in the NAIP, including per capita consumption of
highly nutritive foods produced in the country.13 The mid-line is critical to reviewing the extent to
which NAIP will be on course in pursuing its overall goals and objectives halfway through its life.
Consequently, a window of opportunity will be provided to make any necessary adjustments, if
need be including adjustments of KPI values either upwards or downwards. The endline will
provide lessons during overall implementation period of the Plan as well as provide a basis for
informed decisions with regards to a possible phase II of NAIP and what the key focus areas of
such a phase would be.
It is highly recommended that Annual Sector Performance Analysis (ASPA) be undertaken that
would culminate in Annual Review meetings involving all key stakeholders. This will provide a
forum for sector review as well as prioritize investment areas in the coming year. Consequently,
the Annual Work Plan and Budget (AWPB) for the coming year will be informed by findings from
the ASPA. IAPRI and the Department of Policy and Planning (PPD) of MAL are well placed to
undertake these analyses.
5.5 Risk Analysis Management
Table 26 below identifies key risks that may be faced in the achievement of NAIP overall goal
and objectives and provides a basis for determining how implementers of NAIP should address
these risks.
Table 26: Summary of Risk Analysis and Mitigation

Risk Risk Risk mitigation measures Conditiona Risk after
Rating incorporated into NAIP design lity (Y/N) mitigation
H – High; S – Substantial; M – Moderate; L – Low
Ownership challenge: Inadequate NAIP has identified and specified
country ownership of NAIP by MAL and implementation roles and
other stakeholders may negatively affect S responsibilities of various actors N M
implementation performance and stakeholders
Low capacity: MAL that will play a A considerable portion of the
critical role in coordination and NAIP is concerned with capacity
monitoring of NAIP has had capacity enhancement of various
assessment undertaken and found low. stakeholders and systems. This
PEP is currently under implementation to S includes training and N L
strengthen MAL’s capacity. However, procurement of appropriate
capacity building by PEP should have equipment. Key Support
been finalized before implementation of Services have been particularly
NAIP. targeted for strengthening.
Donor/implementation fatigue: A The emphasis of NAIP is that this
number of interventions have been is not an initiative that is a
designed in the past to boost agricultural M “stand-alone” entity, rather NAIP N L
sector growth. There is a danger of under CAADP is there to animate
“donor fatigue” and “implementation already existing strategies and
fatigue” policies
Funds flow: there may be a failure to The computation of the total
13
At the time the NAIP was being formulated, the review of MAL’s M&E system through a separate
consultancy was on-going. This comprehensive review included an elaborate assessment of KPIs with a
special focus on those at outcome and impact levels. It will be crucial that once finalized, this becomes an
integral part of NAIP’s M&E system. As alluded to above, it will be vital at that stage to review the Post
Harvest Survey questionnaire to ensure it captures data for all the new KPIs that will have been finalized.
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mobilize adequate resources. M NAIP budget has been done N L

Additionally, the committed funds may cautiously, based on prevailing
not be disbursed timely. planned expenditure figures by
Ministry of Finance. The current
actual budget (which is higher
due to supplementary funding)
has been avoided.
Overall risk assessment M L
Based on the above risk assessment, the overall risk of NAIP implementation is low. GRZ is
currently implementing other supportive measures that will positively impact NAIP
implementation performance such as the Integrated Financial Management Information System
(IFMIS). The design of MAL’s integrated Monitoring and Evaluation (M&E) system has reached
an advanced stage. Once operational, the M&E system is expected to add value to the
realization of NAIP objectives.
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Appendices
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Appendix 1: Approach and Methodology
Introduction
The development of the NAIP under the CAADP framework was based on all the major
strategies of the country, including: (a) The Fifth National Development Plan (FNDP 2006-
2010); (b) The Sixth National Development Plan (SNDP 2011-2015) and; (c) the Vision 2030
among others. Consequently, implicitly the formulation process drew from the rich and wide
stakeholder consultations that preceded the implementation of these strategies. In addition, the
lengthy (nearly two years) stakeholder consultation that preceded the formulation of the Zambia
CAADP Compact signed in January 2011 proved valuable.
Stakeholder consultation was undertaken at four levels: national, provincial, district and
community. At national level, separate meetings were conducted firstly with Cooperating
Partners, then the Private sector, Agro-NGOs, International NGOs, Senior Government officials
(including the Permanent Secretary). At provincial level, the Provincial Development
Coordinating Committee (PDCC) was engaged as well as key stakeholders at district level,
pl6including private sector and farmer organizations such as District Farmers Unions. Both male
and female farmers were consulted at community level via Focused Groups Discussions.
The formulation of NAIP under the CAADP agenda was undertaken in the context of
accelerating the successful implementation of the country’s Vision 2030, the National
Agricultural Policy (NAP) and Sections 3 and 14 of the PF manifesto relating to Agriculture and
Land governance, through the National Development Plans (NDPs). The two most recent NDPs
are the Fifth National Development Plan (FNDP 2006-2010) and the Sixth National
Development Plan (SNDP 2011-2015).14 The NAIP formulation lasted for nearly six months (i.e.
end of June to end of December 2012).
Institutional Housing
With respect to the institutional housing of the NAIP formulation process, the Policy and
Planning Department of MAL interacted with the Formulation Team (FT) almost on a daily basis.
Indaba for Agricultural Policy Research Institute (IAPRI) housed the FT during the whole
formulation process. The Institute also provided the team with useful literature from its rich
archives in addition to availing the team with specific professional inputs from time to time.
IAPRI provided useful write-ups on the situation analysis, given its strength, work and
experience in policy analysis and agricultural research in general. The NAIP formulation process
also benefited from the input of the Ag SAG and the Agricultural Cooperating Partners through
their quarterly and monthly meetings respectively.
General Approach and Methodology
The methodology and approach involved four major stages illustrated in Figure 1 below,
namely; (i) situation analysis/mapping of gaps, challenges and issues; (ii) synthesis of mapped
gaps, challenges and issues; (iii) development of strategic focus (vision, mission, objectives)
and strategies formulation/updating, and; (iv) development of implementation framework,
including review of policy, legal, institutional and Monitoring and Evaluation (M&E) frameworks,
as well as costing of programme strategies and activities. Each of these stages is briefly
explained below.
14
Zambia CAADP Compact, January 2011.
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Figure 1: Key Elements of the Approach
Situation Synthesis
Analysis/ Strategic Implementat
Mapping focus/Direc ion
(of mapped tions Framework
gaps,
(of gaps, challenges, /Programm
challenges, issues) es (Legal,
issues) institutional &
(Development of
M&E F/works,
Strategies,
resource
Formulation),
mobilization)
updating)
Situation analysis/Mapping involved a critical review of the agriculture sector over the past 20
or so years. This included: an identification of factors that positively contributed to the
achievement of the positive results recorded; an analysis of the strengths, weaknesses,
opportunities and threats relating to the sector; identification of the key challenges as well as
gaps. Literature review and stakeholder consultations were the key methods used for the
situation analysis.
Synthesis was concerned with a detailed analysis of the identified successes, challenges,
gaps and issues, among others. This included an identification of root causes of both the
successes and challenges, as well as, an appreciation of whether factors that gave rise to these
were still obtaining.
Strategic focus/direction/programmes were proposed based on the synthesized successes,

gaps, challenges and issues. Every effort was made to ensure the existing
initiatives/programmes/interventions were the starting point for the identification of
programming, in line with CAADP ethos of adding value to what is already obtaining. Where
existing initiatives were relevant, focus was on their re-orientation with the view to maximizing
benefits accruing from such. Appropriate strategies and specific interventions were developed
based on five components/Focal Areas, i.e.: Sustainable natural resources management;
Agricultural production and productivity improvement; Market access and services development;
Food and nutrition security and disaster risk management, and; Key support services (including
Technology generation and dissemination and Public financial management system).
Implementation framework ensured that the necessary environment critical for effective
implementation performance of the Plan existed. This included a consideration of the policy,
legal, institutional, resource mobilization, and monitoring and evaluation frameworks. A
monitoring and evaluation framework was developed to facilitate the measurement of
performance against the major objectives of the NAIP as well as to facilitate the computation of
results based costings.
Specific Steps/Processes
Qualitative approaches and tools were primarily utilized to gather data and information. Key
Informant Interviews (KIIs), Semi-Structured Interviews (SSIs), Stakeholder Workshops and
Special Meetings, as well as Focus Group Discussions (FGDs) in selected communities were
93 | P a g e
undertaken. As already alluded to above, at national level there were a series of meetings with
all key stakeholder categories including: MAL senior officials; Cooperating Partners; the private
sector; International NGOs; Agro – NGOs, and; Farmer Representatives (see Appendix 5). The
approach used was to meet various stakeholder categories in a single meeting, then follow up
individuals for specific details.
Initial Meetings
Several meetings took place between the consultants and the client at the start of the
assignment aimed at clarifying the Terms of Reference; resolving logistical issues, and; defining
key milestones/deliverables as well as dealing with organization and coordination issues.
Literature Review
An extensive literature review was undertaken, targeted at key documents (see Appendix 3).
Table 1 below presents a summary of the type of key documents reviewed. The documents
were obtained from different sources including the client and CPs.
Table 1: Selected Key Documents Reviewed

Level Document type/category Justification
International  CAADP Review, 2010  These were important documents as they provided
 Post Compact Review: Guidelines, 2010 the overall CAADP context, focus and status at the
(AU/NEPAD)  All the Four Pillar documents (Pillar 1: Land time.
and water management; Pillar 2: Market  The documents presented the minimum elements a
access; Pillar 3: Food security; Pillar 4: country’s National Agriculture Investment Plan
Research and technology) should contain.
 National Agriculture Investment Plans from  This allowed lesson learning from what others have
other countries on the continent, already done.
particularly those whose NAIPs have
already adequately attracted funding.
 Donor Programmes/ Project Appraisal
Documents (esp. WB; AfDB; EU and others
specific to the agric. Sector)
Regional  COMESA documents on CAADP and its  This ensured that the NAIP formulation was aligned
(COMESA) agricultural policy to the regional development agenda
National and  Policy related documents for all relevant  It was critical to anchor NAIP in the existing policy
Sector sectors [(e.g. The National Agricultural framework. The formulation of NAIP under CAADP
Levels Policy (NAP); the Vision 2030; the Irrigation framework was about accelerating the
Policy; Land Policy; the PF Manifesto, etc] implementation of the existing National Agricultural
and related policies and strategies
 Existing national development strategies as  The NAIP under CAADP framework supports the
well as those specific to MAL’s implementation of the Agriculture Chapter of the
departments (e.g. FNDP, SNDP, SNDP which in many ways is a continuation of the
departmental strategies, Annual Work FNDP, as well as that of the individual departmental
Plans and Budgets, etc) strategies.
 IFPRI’s Stocktaking Report and Modeling  The Stocktaking report presents an analysis of the
Report past agricultural sector programmes, their
performance, achievements as well as key
challenges. Though a passage of time had elapsed
since the document was written, it nonetheless
offered very useful data on the sector’s past
performance.
 The modeling document presented investment
options that would yield maximum returns to
investment. Though the document needed to be
updated, it nonetheless presented an indication of
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Level Document type/category Justification

what the potential investment areas were at the time.
 Recent Sector Evaluation, Impact  These provided the current status of the agricultural
Assessment, and Review Reports, as well sector in terms of its performance, successes,
as Departmental and Ministry progress challenges and gaps.
reports
Documents relating to cross-cutting issues  This ensured an adequate consideration of key cross-
e.g. policy documents/legislation and cutting issues in the NAIP.
appraisal documents on Gender, climate
change and HIV/AIDS.
Issues Identification and Formulation Workshop
This workshop was critical to providing a forum for the identification of key issues that would
guide NAIP formulation process. The objectives of the workshop were:
 To identify issues that must be addressed in the NAIP
 Propose higher level programmes and strategies for the NAIP
 Propose higher level objectives for the proposed programmes and strategies
Field Work
Six provinces (including Lusaka as a base) were visited by the Formulation Team, namely;
Western, Northern, Central, Eastern, Southern and Lusaka provinces. Table 2 below presents
justifications for the choice of each province visited.
Table 2: Provinces Visited and their Justification

Province Justification for Inclusion
Western  The province is the poorest in the country, hence provided an opportunity to appreciate issues
that faced the country’s poorest farmers;
 Provided the needed diversity contained in the sector including: fisheries, livestock, and
emerging issues on climatic change.
Northern  Has issues relating to environmental management for sometime (Chitemene)
 Had potential to becoming the country’s future bread basket, hence it provided an opportunity to
give attention to mitigation measures that would deal with the challenges Southern province has
faced.
Central  It provided an opportunity to deal with issues faced by emerging and commercial farmers, and;
challenges surrounding the adoption of new technologies and new farming practices.
 Issues to do with crop production, including high value crops, were dealt with
 Issues to do with irrigated agriculture were dealt with
 A deepened understanding of agricultural financing came to the fore.
 Challenges relating to farm-block development and investment were highlighted.
 It faced emerging issues on climatic change.
Eastern  Has the greatest potential for smallholder-led agricultural growth;
 Has the highest population density of all the rural provinces which has implications on land
degradation and other environmental hazards;
 The cooperative movement is still fairly active;
 Has a number of commercial enterprises involving smallholder farmers (e.g. cotton out-grower
schemes, etc).
Southern  Historically used to be the country’s bread basket but not any more
province  Has issues with respect to change in climatic conditions resulting in recurrent droughts
 Prone to land degradation due to large concentration of animals
 Has serious water management issues
 Has food security issues
Lusaka  Houses more than 95% of national headquarters of various institutions (government, private
sector, NGOs – both local and international), etc.
 Linked to above, has the highest concentration of primary stakeholders.
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Field visits were intended to gather information on successful programs implemented,

challenges faced at the program implementation level and solicit input from program
implementers on strategic areas of focus during the formulation of the NAIP. There were five
teams with each team visiting a province (except Lusaka where all were involved in data
collection at their own time).
At district level, all the key stakeholders (including DACO’s office; Government officials;
farmers’/representatives, NGOs, traditional leaders, farmer groups, cooperatives, and project
representatives operating in the district) were engaged. Carefully formulated templates were
used for data collection. Reports generated from data collected based on these templates were
submitted during the meetings. The reports contained current district status regarding socio-
economic variables. One community per district was selected for consultations. About 5 Key
Informant Interviews (KIIs) and 2 Focus Group Discussions (FGDs – one with men and the
other with women) were conducted, to solicit grassroots stakeholder input into the NAIP.
Synthesis of Emerging Issues
Following the field visit, the FT met the Client for a debriefing session. This served the purpose
of bringing to the fore key issues that had arisen from all the provinces that were visited by the
Team. A synthesis of key emerging issues was undertaken to provide a basis for writing the
draft NAIP.
Results Framework and Costing
A Results Framework was formulated side by side with the narrative NAIP. This involved
heightened consultations with key MAL technical staff as well as other stakeholders, through
one-on-one meetings and workshops.
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Appendix 2: NAIP Implementation and Coordination Organogram
Ag-SAG-National Level
 Overall guidance
 Overall coordination
 Overall supervision
 S/holder consultation
PPD-National Level  Information flow NAIP Implementers-
 Provide policy direction &
National Level
interpretation
 The private Sector
 Promote synergies with
 Farmer organizations
other govt. ministries
 Civil Society
Organizations (NGOs,
FBOs),
PAES-Provincial Level
 Overall coordination
 Monitoring & Evaluation
PACO-Provincial Level  Engage PDCC NAIP Implementers-
 Provide policy direction Provincial Level
& interpretation  The private Sector
 Promote synergies with  Farmer organizations
other govt. ministries  Civil Society
 Secretariat to PAES Organizations (NGOs,
mem bers
FBOs),
DAES-District Level
 Overall coordination NAIP Implementers-
 Monitoring & Evaluation District Level
 Engage DDCC members  The private Sector
DACO-District Level
 Provide policy direction &  Farmer organizations
interpretation  Civil Society Organizations
(NGOs, FBOs),
 Promote synergies with
other govt. ministries
 Secretariat to DAES
CAC-Community Level NAIP Implementers-

 Overall guidance Community Level
 Overall coordination  The private Sector
 Monitoring & Evaluation  Farmer organizations
 Civil Society Organizations
 Engage community
(NGOs, FBOs, CBOs),
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2007: Promoting Gender Equality and Women’s empowerment.
Global Monitoring Report, Washington D.C.: The World Bank
2001: Engendering development: through gender equality in rights, resources, and
voice. World Bank policy research report, Washington D.C.: The World Bank
101 | P a g e
Appendix…3: List of Legislation under the Ministry of Agriculture and Livestock

Sn Title Chapter Year
1. Coffee Act Cap. 228 No.13 of 1994
2. Co-operatives Societies Act Cap.397 No.20 of 1998
3. Cotton Act Cap.227 No.21 of 2005
4. Food Reserve Act Cap.225 No. ….of 2005
5. Plant Pests and Diseases Act Cap.233 No. 13 of 1994
6. Plant Variety and Seeds Act Cap. 236 No. 21 of 1995
7. Tobacco Act Cap. 237 No. 13 of 1994
8. Tobacco Levy Act Cap. 238 No. 13 of 1994
9. Plant Breeders' Rights Act No. 18 of 2007
10. Fertilizer and Feeds Act Cap. 226 No. 51 of 1966 and No. 13 of
1994
11. Noxious Weeds Act Cap. 231 No. 13 of 1994
12. Agricultural Credits Act Cap. 224 No. 23 of 1995
13. Agricultural Marketing Bill
14. Agricultural Lands Act
15. Agricultural Statistics Act Cap 229 No. 13 of 1994
16. Agricultural Products Levy Act Cap 232 No. 13 of 1994
17. Control of Goods Act (Agriculture) Cap421
5.5.1
18. The Financial Services Act
19 The Fisheries Act Cap 379 No. 22 of 2011
20 The Animal Health Act Cap 27 No. 27 of 2010
21 Prevention of Cruelty to Animals Act Cap. 245
5.5.2
22 Veterinary and Veterinary Para- Cap. 45 No. 45 of 2010
professionals Act
23 Public Health Act Cap. 295 No. 22 of 1995
24 Tsetse Control Act, Cap. 249 No. 13 of 1994
25 Dairy Industry Development Act Cap.22 No. 22 of 2010
26 The Animal Identification Act Cap. 28 No. 28 of 2010
27 Pig Industry Act, Cap. 251
5.5.3
28 Standards Act Cap.416
5.5.4
29 PPP Act No. 10 of 2009
102 | P a g e

NAIP For Zambia 2014 - 2018

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Government of the Republic of Zambia

Ministry of Agriculture and Livestock

Ministry of Agriculture and Livestock

5.5 RISK ANALYSIS MANAGEMENT ..................................................................................89

APPENDIX 1: APPROACH AND METHODOLOGY ........................................................................92

The key areas of support include;

(I) Sustainable use of the natural resource base;

Environment Sub-committee (PAES) of the Provincial Development and Coordination

Robert K.K. Sichinga, MP

Abbreviations and Acronyms

NAP National Agricultural Policy

Agricultural sector context

A poverty reduction agricultural-led growth requires an appropriate supportive policy

Sustainable Natural Resources Management Programme

Agricultural Production and Productivity Improvement Programme

Market Access and Services Development

Food and Nutrition Security and Disaster Risk Management

Key Support Services – Knowledge Systems

Key Support Services – Institutional Strengthening

Summary NAIP Budget

A combination of financing arrangements will be permissible that promote alignment to

1.2 Approach and Methodology

2.1 Zambia’s Economic Development Context: Successes and Challenges

Figure 1: Annual GDP Growth (%) 1965 to 2011

Source: Central Statistics Office (various years)

Figure 2: Percentage Trends in Incidences of Poverty Levels (1991 - 2010)1

Source: Living Conditions Monitoring Surveys, various years.

Causes and Consequences of Broad-Based Rural Poverty Reduction: Lessons

The process of agricultural transformation involves a shift from low-productivity, subsistence

2) Those that improve farmer incentives. These depend on:

Achieving these objectives of structural transformation requires a well-targeted combination of

improving the predictability of government action in agricultural markets is critical (Jayne et

2.2 Agricultural Sector Context

Source: CSO, various years

2.2.1 Agriculture spending trend analysis

Figure 4: Percent of National Budget Spent on Agriculture 2007-2012: Allocated and

Source: Kuteya 2012

Figure 5: 2013 Budget Allocations to Agriculture

Source: Kuteya, 2012

Figure 6: Distribution of Poverty Reduction Programme Spending 2013

Source: Kuteya 2012

2.2.2 Agriculture growth and poverty reduction options

Figure 7: Average yields of key commodities compared to global average

2.2.3 The agriculture policy environment prior to CAADP

Sixth National Development Programme (SNDP)

National Agricultural Policy (NAP)

2.2.4 Zambian CAADP Compact

The Comprehensive Africa Agriculture Development Programme (CAADP) is an initiative by

 Pillar I: Sustainable land and water management

The Government of Zambia embarked on preparing a CAADP Compact with a National

• National Food and Nutrition Policy

1. Prioritizing investment in agricultural research, aimed particularly at identifying crop

2.3 Sub-sectoral Analysis

2.3.1 Food Security and Nutrition

Figure 8: The Seasonality of Food Security in Rural Zambia (2011-2012)

Dominance of mono cropping: In terms of cropping characteristics, small-scale farming

Inadequate nutrition education: this includes education/information on preparation of locally

2.3.1.3 Lessons Learnt

Women need to be appropriately facilitated to enhance household food and nutrition