1. INTRODUCTION
It is generally accepted that high quality seed is the cheapest and most effective input for improving productivity. Improving access to good quality seed of improved and adapted cultivars is a critical requirement for sustainable agricultural growth and food security. Despite this, the majority of the farmers in the Near East and North Africa region continue to rely largely on their own traditional seed supply systems and hence remain trapped in low productivity.
Available information from the seed sectors in the different countries of the region show that countries have established seed production programs aiming at self-sufficiency from improved seed of their respective major food crops. However, most of these seed development programs remain weak, and unsustainable in several cases, and also poorly linked to the world seed industry. The quantity of seed supplied by the formal public and private sectors is markedly less than the amount of seed required in most of the countries of the region.
Despite many ecological and farming systems similarities and hence similar crops, varieties and seeds, regional cooperation and exchange of information and consultations relating to the seed sector remained meager or non-existent. This paper outlines the present state of the seed sector in Near East and North Africa countries and defines policy programs and regulations aiming at elaborating a regional framework for the improvement of the seed sector.
2. REGIONAL COOPERATION IN THE SEED SECTOR
2.1 Need for Regional Cooperation
The seed supply systems in most of the countries of the Region did not receive the level of attention given to other sectors of agriculture such as research, higher agricultural education and extension. As a result, most of the national seed supply systems remain less inefficient and are often cited as a major constraint to the utilization of new improved crop varieties by farmers. Regional cooperation strengthening national seed systems and effective cooperation will promote seed production and movement across borders.
2.2 Current Seed Supply and Testing Systems
The national seed supply systems in the countries of the Region are at different levels of development in terms of organizational structures, policy, regulations, technology, trained man-power, germplasm management through variety development to seed production, processing and distribution. The national agricultural research and extension systems also vary in their strength and support to the seed supply systems. Some countries in the Region lack the basic elements for an effective seed system such as seed development strategies and national seed policies, legislation, quality control and certification processes. Breeding and testing activities vary from rudimentary to strong systems and are often restricted to introduce varieties.
Farmers’ participation in seed development programs, which is essential for successful adoption of the improved varieties produced by the growers, is almost non-existent in the majority of the countries.
A few countries in the region including Egypt, Turkey, Pakistan, Morocco, Algeria and Sudan have progressed in breeding and testing programs, public seed production, and processing and have enacted seed laws which promote privatization of the seed sector.
The current status of regional and international cooperation and coordination in the seed sector is also generally weak. Sustainable seed linkages between the countries of the region are almost non-existent. The only current operational seed link is the ICARDA, WANA Seed Network. The rationale for regional cooperation derives from the need to develop strong national seed supply systems capable of satisfying their respective seed needs from both the formal and informal national seed systems, which should be articulated within a regional framework.
2.3 Common Features of Seed Systems in the Region:
Large numbers of the small resource-poor farmers rely on their own produced seed of traditional varieties despite the availability of seed of improved varieties.
The availability of good quality seed cannot meet the need in most of the countries.
The focus is on grain food crops such as sorghum, wheat, and maize.
Less attention is given to grain legumes and horticultural crops.
The public sector or parastatal schemes and agencies still play a dominant role in seed systems, particularly breeding research and extension and often marketing and distribution.
With the recent adoption of free market policies by most of the countries in the Region, seed policies have changed in several countries to encourage private initiatives in the seed sectors. Private seed companies have recently been established in several countries. Arab-Sudanese Seed Company in the Sudan is one example. It is a company organized by the Sudan government, AAAID and other shareholders and based on the privatization of the Public Seed Administration of the Ministry of Agriculture.
Despite these common features, similarities in the ecological and farming systems, and the potential for the development of several shared crops, regional cooperation, exchange of personnel, information and material has not taken place. In 1992, this situation drove ICARDA to initiate the establishment of a WANA Seed Network where ICARDA takes a catalytic lead role to initiate cooperation and to create regional fora to strengthen the national seed systems. The Network composed of experts, focuses on technical, regulatory and policy issues aimed to integrate seed systems, tackles shared problems, and achieves common goals in addition to supporting other operational activities, including publishing and the distribution of INFO. However, WANA Seed Network, encounters problems relating to the diverse needs of national seed programs, differences in country priorities, and the failure of lead countries in the different categories of activities of the Network to fulfill their responsibilities.
2.4 Constraint Analysis
The major constraints and limitations mitigating progress in the seed sectors of the countries of the Region include the following:
Development of new varieties is generally weak, mainly due to a lack of qualified breeders.
Due to weak extension services, the adoption level of the new improved varieties is low.
Farmers continue to rely on their traditional methods of producing seed and often fail to purchase good seed of improved varieties.
Lack of proper institutional links.
A focus on a narrow band of crops, which include mainly grains.
Limited breeder seed and limited testing of value for cultivation use (VCU).
Inadequate infrastructure (roads, storage).
Poor linkages at national, regional and international levels.
Limited trained manpower in seed science and technology.
Non-coherent seed sector policies, regulation and variety replacement policies.
Taking these constraints and limitations into consideration, the challenge lies in devising appropriate national and regional strategies for seed production, processing, distribution, quality control and marketing at national and regional levels and in a regional framework.
3. IMPROVING REGIONAL COOPERATION
3.1 Streamlining Methods of Seed Production
The major components of the seed industry include (a) variety development comprising breeding, testing and evaluation, (b) seed multiplication, (c) seed processing and storage and (d) marketing and dissemination. Promotion of the seed industry entails improvement in all of these components. Streamlining and the harmonization of methods will facilitate seed production and seed movement in the region. A logical start in this direction requires the utilization of existing opportunities made available by the international centers and fora concerned with one or more of the major seed-development components.
3.2 Variety testing
In countries where the seed public sector prevails, variety testing is generally restricted to public sector agencies. With the spread of multi-national companies, testing systems should be transparent and involve organizations other than public institutions in variety testing.
3.3 Seed multiplication
In countries with a formal seed-sector, seed production should be expected to follow similar methods and procedures strictly following the recommended steps in seed production. The system aims at ensuring genetic purity through an optional or compulsory program of inspection and certification. Inspections will involve analytical, physiological and sanitary aspects of seed quality.
3.4 Seed marketing and trade
Seed marketing regulations are generally governed by national seed laws and are variable across the region according to the level of government involvement in marketing. The present trend is for privatization, which requires the formation of national seed associations to facilitate regional and international cooperation. FIS is the international organization concerned with developing and facilitating inter-country movement of high quality seed. Its membership includes national seed trade association, which represent seed enterprises in their countries. Important standing committees in FIS include trade and arbitration, and a phytosanitary committee.
3.5 Harmonization of Seed Legislation at the Regional Level
In order for farmers to obtain ongoing access to good quality seed and other seed technologies at competitive prices, seeds from national, regional and international and competitive seed industries that are well linked to world seed industry must be available. National seed laws often restrict seed production and trade and impose control on this process.
Seed legislation usually provides the legal framework for seed development including regulations of variety release, and seed certification, processing and distribution. The main features of a seed law include the policy objectives, definitions and the institutional framework. The purpose is to facilitate and regulate seed production and trade and may include phytosanitary aspects. The law should also ensure involvement of all concerned sectors and deter actions harmful to the seed industry. While seed laws should be flexible and accommodating, they should not too relaxed to harm the consumer, nor should they be rigid so that they block seed movement in and outside the country. Seed laws should protect the rights of breeders and of the seed industry while encouraging seed growers and traders to insure fair competition.
It has often been suggested that the harmonization of seed laws would encourage production and seed trade across the region. This approach is emphasized in the World Bank Sub-Saharan Africa Seed Initiative (SSASI). However, harmonization of seed legislation will require a thorough analysis of the existing seed rules in different countries to identify those rules, which have contributed to an enabling or constraining seed trade within and across borders.
Although harmonization may help seed production and trade across countries, it is expected that regulations encouraging broader seed trade and competition may have a greater impact. It is also possible that correct labeling, packaging, and seed registration systems may have a larger impact on improving seed trade than the enforcement of common phytosanitary standards.
3.6 Harmonization of Seed Policies
Seed supply systems are generally influenced by general economic policies governing trade and investment and by regulatory polices specific to the seed sector. Access to quality seed of improved varieties by the small resource poor farmers has often been limited due to national policies that hinder seed development programs. These policies can affect variety introduction and seed imports and inhibit other activities in the public and private seed sector. Other policies affecting components of seed development are related to research, extension and other interventions concerning subsidies and monopolies.
Over the last three to four decades, public sector institutions have played a prominent role in seed development programs. National public research institutions have selected and bred varieties for local conditions while the International Agricultural Research Centers (IARCs) bred high yielding lines and varieties. Parastatal agencies have been responsible for multiplying and distributing seeds to farmers. This system has allowed the public seed sector to monopolize variety introduction thus limiting the activities of the private sector. Top-down government research decisions often over-looked the real seed needs of the growers and thus diminished farmers access to quality seed of improved varieties.
A good seed policy should be country-specific and must address inter-relations and links between seed systems and the cropping system, the legal framework, research, extension and education, infra-structure (roads storage) and economic policies.
The seed industry is becoming increasingly international and private. Worldwide trends affecting the seed industry include the globalization of agricultural research and higher agricultural education, investment in biotechnology research and development (R & D). In addition, a shift in crop improvement from the public to the private sector, the emergence of successful seed companies, greater attention to the informal seed sector and the impact of legislation and trade on property rights can greatly affect seed industry development.
Obstacles created by policies that may hinder seed development and movement include compulsory variety registration as opposed to voluntary registration, compulsory seed certification and other quality controls, a lack of access to public germplasm and breeder seeds, unreasonable phytosanitary rules, and excessively nationalistic seed systems.
The results of the external review of the Seed Improvement Development Program (SIDP) carried out by FAO in 1986 showed the lack of sustainability of the national seed activities in several FAO member countries including some from the NENA region. This situation has recently prompted FAO to initiate the development of a relevant seed policy that will facilitate a sustainable seed industry and create fora for dialogue and consultations amongst various stakeholders. This initiative by FAO should be encouraged and perhaps coordinated with the ICARDA – WANA Seed Network, which has already started such an initiative as part of its policy initiative. However, this initiative is still in a rudimentary phase.
3. Seed Association
The need for seed associations has lately received increasing attention. The objective of seed associations is to help organize and regulate the national seed sector and to establish effective partnership with regional and sub-regional seed associations. Moreover, these seed associations can influence governmental decisions regarding the formation of seed laws and accompanying bylaws pertinent to seed business and work closely with concerned players to establish specifications for those interested in getting involved in seed business.
Seed associations in the region are almost non-existent with the exception of a few such as the Egyptian Seed Association (ESAS), which was established in 1998 as a non-governmental non-profit organization. The members of ESAS include breeders, seed exporters, seed importers, and seed growers. The ESAS seeks to tackle constraints in the seed sector, improve seed quality and transfer seed technology to producers. The Association also addresses various seed problems faced by its members, represents the private sector in the governmental institutions and encourages technology use in seed production, trade and quality control.
National and regional seed associations can be formed to deal with many issues related to seed business including intellectual property rights. These associations constitute an appropriate base to deal with the new trend in globalization.
Regional and sub-regional seed growers associations and individual crop associations do not exist in most of the countries of the region. Due to the large area of the NENA region and the similarities in the major crops, it is advisable to look into the establishment of seed associations.
4. MECHANISMS FOR STREAMLINING AND HARMONIZATIONMechanisms for streamlining and harmonizing should include the following:
Seed legislation.
Membership of association with international fora.
Harmonization of economic and seed sector policies.
Regional cooperation through formation of networks for:
Variety testing for a range of environment.
Screening for biotic and abiotic stresses in appropriate environments.
Accelerated seed multiplication and generation advance in off-season nurseries.
The establishment of more regional centers for seed testing and training. These centers may be associated with selected universities or research institutions.
4.1 International Organizations Involved in the Seed Sector in the Region:
International organizations involved in seed sector activities in the region include:
(i) International Agricultural Research Centers (IARCs), particularly ICARDA, which is located in the region. These centers are directly involved in the first phase of variety development, producing finished varieties, some of which have already been released in some countries, and providing germplasm for breeding purposes.
International Union for the Protection of New Varieties of Plant (UPOV), which aims at protecting new varieties largely through property rights.
IARC, UPOV and the International Plant Genetic Resources Institute provide detailed descriptions of varieties for a number of basic field crops. The International Seed Testing Association provides standard testing procedures and specific standards for laboratories conducting seed testing. Creation of such laboratories in some selected countries will facilitate seed movement and provide for seed sector disputes. The establishment of standard seed conditioning procedures and the use of standard equipment will ensure seed quality and facilitate seed movement across borders.
ASSINSEL - International Association of Plant Breeders for the Protection of Plant Varieties.
WANA Seed Network, located in the ICARDA Seed Unit, aims to integrate national seed systems through the harmonization of seed policies and regulations. Most countries of the region are members of the WANA network. The major objectives of the network make it well suited to lead harmonized efforts aiming at improving national seed industries in the WANA countries and other non-member countries.
5. INSTITUTIONAL ARRANGEMENTS FOR COOPERATION
Successful regional cooperation in the seed sector requires strong national seed systems capable of providing good seeds of improved varieties in a competitive market. Strong national seed systems will be more effective in dealing with regional partners in establishing institutional arrangements. Such arrangements should be well-funded and electronically linked to the regional and international seed industry.
With the increasing trends of globalization and privatization, and other changes related to the seed industry, it is advisable that the countries in the Region establish a regional consultative forum and sub-regional fora. This may start by reorganizing and restructuring the WANA Seed Network (ICARDA) so that it is capable of harnessing and sensitizing the seed sectors in the region and establishing effective communication with international organizations. Sub-regional groups may also be created within the region to improve communication and cooperation. The formation of strong linkages in the region will allow countries to contribute collectively to the building of a stronger and more effective regional forum for the development of the seed sector
