In Africa, seed systems face multiple challenges, including low adoption of certified planting material, a shortage of quality assurance laboratories and weak regulatory frameworks. Together, these factors have constrained the performance of the seed industry. Despite these hurdles, many countries are stepping up efforts to strengthen the seed value chain so it can better support the growth of the agri-food sector.

In Nigeria, attention has turned to reform, driven by a new roadmap for the seed industry. In this interview with Ecofin Agency, Francis Mwatuni, a lead officer at AGRA’s Centre of Excellence for Seed Systems in Africa (CESSA), discusses the unit’s role in shaping the strategy, how its work fits into broader regional efforts, and the wider push to strengthen seed systems across the continent.

Ecofin Agency (EA): The Centre of Excellence for Seed Systems in Africa (CESSA) is one of AGRA’s bodies focused on seed systems across the continent. Could you tell us more about its work?

Francis Mwatuni (FM): We are based at AGRA’s headquarters in Nairobi. Within AGRA, I lead one of the units under the Seed Systems Business Line, housed within CESSA. Our work focuses on supporting countries in conducting in-depth analyses of their national seed systems.

To do this, we use a diagnostic tool known as the Seed Systems Assessment Tool, or SeedSAT. This tool helps identify the key constraints affecting how seed systems function, and it is the approach we applied in Nigeria. Based on the findings, we then develop recommendations to address the weaknesses identified.

Implementing these recommendations at the national level can be challenging, particularly given the need to coordinate multiple stakeholders. This is why we support countries in developing a National Seed Sector Investment Plan. The plan sets out priority areas, concrete actions and clear implementation pathways, with the overall objective of strengthening the effectiveness of the seed system.

EA: You’ve just mentioned the SeedSAT tool, which was used in developing the NSSSIP and shows that Nigeria’s seed system is operating at about 45% of its potential. How was this diagnostic carried out?

FM: First, we examine breeding, variety release and maintenance. We assess whether a country has strong and well-supported breeding programmes, qualified breeders and the infrastructure needed to maintain and improve varieties over time.

The Seed Systems Assessment Tool, or SeedSAT […] helps identify the key constraints affecting how seed systems function, and it is the approach we applied in Nigeria. Based on the findings, we then develop recommendations to address the weaknesses identified

Second, we look at the production of early-generation seed, or EGS, which is typically handled by national research institutes or, in some cases, private entities. EGS is critical because it serves as the foundation for certified seed production. We therefore assess whether a country has the capacity, institutional arrangements and certification mechanisms required to produce and manage high-quality EGS.

Third, we focus on commercial seed production. We evaluate whether seed companies are well established, functioning effectively and able to meet farmers’ needs. We also assess farmer awareness and participation, including the performance of the extension system and whether it is active, adequately resourced and capable of supporting the adoption of improved seed.

Another component we examine is seed distribution and marketing. We analyse how seed moves from producers to farmers, whether distribution networks are efficient, and whether appropriate institutions exist to support or regulate the process. Quality assurance is also a critical area. This includes a review of the policy, legal and regulatory framework, covering the laws, policies and regulations that govern the seed sector, as well as national planning and coordination mechanisms.

This is the methodology we used in Nigeria to arrive at the performance level you mentioned. It is important to note, however, that the assessment was conducted around 2019, five or six years ago. Since then, Nigeria’s seed system has evolved significantly, and a new assessment would likely reflect a higher score.

EA: How does Nigeria compare with other West African countries and with peers elsewhere in Africa where AGRA has carried out similar assessments?

FM:  That is a very good question. If we look at Ghana, another West African country, Nigeria performs relatively well on policy and regulatory issues. Nigeria has the necessary policies and legal frameworks in place, and its regulatory environment is relatively advanced in supporting the functioning of the seed system. The country also performs better in early-generation seed production and in commercial seed production. Seed companies are established, operate effectively, and are supported by an active quality assurance system that ensures seed reaching the market is properly certified and meets national and international standards.

A strong regulatory authority is essential because weak regulation creates space for counterfeit seed and unscrupulous traders. When this happens, fake seed enters the market, ultimately undermining farmer productivity.

Ghana also performs strongly. Its policy and regulatory environment scores slightly higher, at around 68%, compared with Nigeria’s 65%. The difference is therefore relatively small. However, where Nigeria lags behind is in seed markets and distribution. Nigeria scores around 28% in this area, compared with about 52% for Ghana. This suggests stronger distribution networks in Ghana, as well as more effective advocacy and engagement with government to improve farmers’ access to seed.

When we compare Nigeria with countries in East Africa, such as Kenya, the picture is different. Kenya has a stronger quality assurance system, with inspections carried out on time, clear certification procedures, and more effective enforcement of regulations.

Overall, each country has its strengths and weaknesses. Nigeria’s performance can be described as average, which is precisely why the new seed strategy and investment plan are so important. If the recommendations under the Seed Sector Investment Plan are implemented effectively, Nigeria’s seed system could move from its current level to a significantly stronger performance over the next five years.

EA: Looking beyond the overall score, what key structural weaknesses did SeedSAT reveal in Nigeria’s seed system?

FM: When we looked at Nigeria’s situation, one of the most critical areas that emerged was national planning and coordination. There are multiple institutions within the ministry responsible for different seed-related functions, but their efforts remain fragmented and insufficiently coordinated. These activities need to be better organised and structured.

A second major weakness is quality assurance. As I mentioned earlier, this component scored around 38%, which is low. A strong regulatory authority is essential because weak regulation creates space for counterfeit seed and unscrupulous traders. When this happens, fake seed enters the market, ultimately undermining farmer productivity.

These weaknesses are clearly highlighted in the assessment and have been taken into account in the Seed Sector Investment Plan. Beyond these priority areas, other components also require attention, including breeding, early-generation seed production, seed markets and distribution, as well as farmer awareness and participation.

All of these areas need targeted support to ensure they perform at an optimal level. Only then can Nigeria’s seed system fully play its role in strengthening the country’s broader food system.

EA: In practical terms, how can SeedTracker and SeedCodex reduce farmers’ exposure to counterfeit or substandard seeds and help build trust in the formal seed system?

FM: Following the assessment, significant efforts have been made to strengthen quality assurance in Nigeria’s seed sector. This is why tools such as Seed Tracker and Seed Codex have been introduced. These systems make seeds fully traceable, from the farm where they are produced, through inspection and certification, to their entry into the market.

AGRA has played an active role in supporting their rollout, underscoring its commitment to strengthening quality control and integrity within Nigeria’s national seed system.

Traceability is a central element of our collaboration with the Nigerian government. Ideally, every country should have a digital certification system that allows users to verify whether a seed has been inspected and certified, trace it back to the relevant authority, and confirm that it is not counterfeit. Seed Tracker and Seed Codex are both critical digital tools in achieving this.

AGRA has played an active role in supporting their rollout, underscoring its commitment to strengthening quality control and integrity within Nigeria’s national seed system.

EA: How will these tools be deployed in rural areas with limited connectivity and access to information?

FM: These tools are primarily used by the National Agricultural Seeds Council (NASC). They support the certification process by ensuring that only certified seeds reach the market and that those seeds can be traced. Our focus is particularly on smallholder farmers, who make up the majority of farmers in many African countries and form the backbone of the agricultural sector. Through extension services, we help ensure that they have access to certified, high-quality seed. In addition, if concerns arise about seed quality in the market, Seed Tracker allows individual seed packets to be traced. Each packet carries a unique label that makes it possible to verify whether the seed has gone through the official certification process.

EA: Nearly 65 percent of the Strategy’s total investment is allocated to breeding and quality assurance. From a technical and operational standpoint, why do these two components represent the highest-return investments? And what productivity gains can realistically be expected over the next few years if they are fully implemented?

FM: As mentioned earlier, the investment plan identifies several priority areas for funding. However, this does not mean that other components of the seed system should be left without support. While the level of investment may differ across areas, mitigation measures are required across all eight thematic pillars.

Breeding, for example, is particularly critical, as it is the starting point of any seed system. If a country has a weak breeding programme, it cannot develop high-quality varieties that respond to farmers’ needs. Poor breeding capacity also increases reliance on imported seed, which, if not properly regulated, can create openings for counterfeit seed to enter the market.

Facilitating cross-border seed trade requires harmonised seed laws and regulations. For example, a variety released in Ghana can be recognised in Nigeria without the need to repeat the full set of trials.

Investing in breeding programmes is therefore essential. Quality assurance is another key priority. Government plays a central role in ensuring that certified, high-quality seed reaches farmers and that counterfeit products are kept out of the market. In Nigeria, this responsibility rests with the National Agricultural Seeds Council (NASC), which has made notable progress in strengthening infrastructure and building human resource capacity.

While breeding and quality assurance receive particular attention in budget allocations, other components of the seed system are not being neglected.

EA: As a leading agricultural producer in West Africa, how does Nigeria plan to align its new seed strategy with ECOWAS harmonised regulations on variety release and certification, and how could this affect cross-border seed movement?

FM: The strategy provides clear direction for moving Nigeria’s seed sector from its current state to a more advanced level over the next five years, while the implementation plan is designed to support that transition.

As a member of ECOWAS, Nigeria benefits from regional frameworks and regulations that facilitate not only seed movement but also variety release processes across West Africa. The strategy does not hinder or complicate these regional efforts. On the contrary, it complements them by strengthening Nigeria’s national seed system while promoting regional harmonisation. Seed systems cannot operate in isolation, and regional coordination is essential.

Facilitating cross-border seed trade requires harmonised seed laws and regulations. For example, a variety released in Ghana can be recognised in Nigeria without the need to repeat the full set of trials. Instead, the national authority may conduct limited performance evaluations, which reduces both the time and resources required for variety release.

In this way, the strategy and its implementation plan support alignment at both the national and regional levels. The overarching objective is to enable efficient and transparent seed trade, while preventing counterfeit or substandard seed from entering markets across the region.

EA: Beyond Nigeria and West Africa, what is AGRA doing at the continental level to strengthen seed systems, particularly in quality assurance, climate resilience and other seed-related challenges?

FM: AGRA is currently focused on leading efforts to strengthen seed systems across multiple countries. Our work is not based on ad hoc interviews with a handful of individuals or limited consultations with government officials. Instead, our approach is anchored in comprehensive, evidence-based assessments, from which we generate clear and actionable recommendations.

In Nigeria, these recommendations have been shared with all stakeholders across the seed sector, and each one has been assigned to a specific implementing partner responsible for driving execution. This structure helps ensure accountability and effective implementation, and the entire process has been consolidated within Nigeria’s Seed Sector Investment Plan.

One of AGRA’s key interventions is the use of catalytic grants to help countries jump-start priority processes. In Nigeria, for example, catalytic funding has been used to accelerate the release of nutrient-dense varieties across key value chains. We support researchers and breeders in fast-tracking the release of these varieties, as well as in promoting their uptake among farmers.

AGRA’s focus goes beyond increasing food production alone. Nutrition is a central pillar of our work, ensuring that food systems deliver not just sufficient quantities, but also nutritious outcomes. Resilience is another priority. We support the development and release of climate-smart varieties that are tolerant to heat, drought and salinity. By identifying these varieties and supporting regulatory processes, we help countries accelerate their release and encourage adoption at scale.

Interview by Espoir Olodo