1. Extension Policy: Lessons from Recent
MEAS Experience
Paul E. McNamara
Associate Professor, Department of
Agricultural and Consumer
Economics, University of Illinois at
Urbana-Champaign; Director,
Modernizing Extension and
Advisory Services Project (MEAS
East Africa Extension Policy Meeting
Kampala, Uganda
AFAAS/GFRAS/GIZ/MEAS
June 16-18, 2015

2. What do you want to know about
extension policy?
1. How do we define extension policy?
2. What extension policy is needed for
Africa? Do we need a particular policy
or policy options? What is a right
policy?
3. How does RAS policy fit with
agricultural policy and capacity
development policy?
4. What are the existing policies in
EAS? Are there stand alone extension
policies in East and Southern Africa?

3. What else do you want to know about
extension policy?
5. How to make a good workable policy that
will improve people’s lives?
- policy formulation and ensuring its
sustainability in RAS
- an outline or guidelines for
extension policy, and policy development
- elements of a framework to improve
RAS
- what is the policy development
process?
- role of private sector and other
stakeholders in policy development
process, who designs policy?

4. What in addition do you want to know
about extension policy?
6. How should policy be articulated and
validated?
7. Who is policy designed to guide? (Private?
Public? Leaders? Actors?)
8. How are the private sector and other
stakeholders integrated into public extension
services via policy?
9. Implementation? How extension policy is
implemented at the field level?
10. Why is it difficult to put policy into
practice?
11. How can policy improve extension
effectiveness? Examples?

5. What in addition do you want to know
about extension policy?
12. Evaluating policy
- how to evaluate extension policy?
- how to measure impact and
effectiveness of extension policy?
- what evidence is there that connects
policy with outcomes?

6. Agricultural growth is effective in
reducing poverty
“Overall, growth
originating from
agriculture has
been two to four
times more
effective at
reducing poverty
than growth
originating from
other sectors.” (World
Bank, 2015)
A Sierra Leonean woman
farmer expanded this rice
field with a micro-loan

7. Reducing poverty linked to agricultural
productivity increases
From Ending Poverty and Hunger by 2030, World
Bank, 2015

8. Why invest in extension?
An irrigation innovation in
West Africa (photo Jim Stipe)
“Investing in
extension so that it
helps more farmers
in more places –
women as well as
men, smallholders
as well as
commercial farmers
– is the only way to
reap the full benefit
of innovation.”
(Gates Letter, 2015)

9. Consortium Partners
SAF
E

10. MEAS
Project Objectives:
to define and disseminate good
extension management
strategies that will help establish
efficient, effective and financially
sustainable extension and
advisory service systems in
selected developing countries.
Leader with an Associate (LWA)
Project over 5 years, funded by
Goal:
to help transform and
modernize extension and
advisory systems, so they can
play a key role in both
increasing farm incomes and
enhancing the livelihoods of
the rural poor, especially farm
women.

11. LEARN
APPLY
TEACH
C1 -
TEACH
Develop training
modules
Conduct training
Develop and
disseminate
technical notes
C2 -
LEARN
Best Fit Review
Case Studies
Evaluations
Pilot Action
Research
C3 –
APPLY
Country or regional
Extension System
Assessments
USAID Mission
field-buy in to
conduct country
specific
assignments
MEAS – 3 Key Components
TEACH - Disseminating Modern Approaches to Extension
LEARN - Documenting Lessons Learned and Good Practice
APPLY - Designing Extension and Advisory Service Programs

12. MEAS Associate Awards
Tajikistan: FAST
• Farmer Advisory Services Tajikistan
• About $5 million
• July 18, 2013 to December 31, 2015
• COP: Don Van Atta; Partner: PO RUYO
Rep. of Georgia: SEAS
• Strengthening Extension and Advisory Services activity
• $2.3 million
• October 15, 2013 to October 14, 2015
• COP: Roland Smith; Partner: Ministry of Agriculture
INGENAES: Integrating Gender and Nutrition into Agricultural Extension
Systems
• Targets eight Feed the Future (or aligned) countries
• $7 million
• October 2014 to September 2017

13. INGENAES
• At the country level improve
access to extension services
and technologies and
finance for women farmers
• Integrate gender-sensitive
and nutrition-sensitive
approaches into extension
programs
• Use networks, partnerships,
mentoring, action-research
and training in the approachA Liberian farmer explains her
needs for extension services at
the Margibi County Agricultural
Office

14. FAST (Farmer Advisory
Services in Tajikistan)
Real time design and implementation of an extension program aimed at household
farms. Policy support in the areas of agricultural policy, land policy and water
policy. Special issues of post-Soviet, post-conflict, and post-colonial status. FAST
has two UIUC staff on the ground in Tajikistan: Dr. Don van Atta, COP, and Dr.
Patrick Ludgate, DCOP. FAST works with the Tajikistan NGO PO Ruyo to deliver
the extension program.

15. SEAS (Strengthening Extension and
Advisory Services – Rep. of Georgia)
Extension system strengthening through design and policy level technical
assistance and a training program for newly hired agricultural consultants
(extension agents). Texas A&M is a key partner on this project and Dr. Roland
Smith is the COP. Winrock International assists as the local business entity for the
project. Emphases in year 2 include ICTs and additional training and a high-level
conference on extension in Georgia.

16. Country Date Team Notes
Bangladesh February
2011
B. Swanson Assessment of Bangladesh’s Pluralistic
Extension System: A MEAS Rapid Scoping
Rapid Mission
Bihar, India Novemb
er 2013
B. Simpson,
K.M. Singh, A.
Singh, M.
Sinha
Strengthening the Pluralistic Extension
System in Bihar
Nepal March
2012
M. Suvedi, P.
McNamara
Strengthening the Pluralistic Extension
System in Nepal
Tajikistan October
2011
B. Swanson,
E. Meyer, W.
van Weperen
Strengthening the Pluralistic Agricultural
Extension System in Tajikistan
Egypt August
2011
S.
Christiansen,
A. Swelam, J.
Hill, S.
Gasteyer, B.
Swanson
Scoping Mission: Assessment of
Agricultural Advisory Services in Upper
Egypt

17. Country Date Team Notes
Mali January
2011
B. Simpson, K
Dembele
Rapid scoping mission to assess Mali’s
agricultural extension and advisory
services
Liberia August
2011
P. McNamara,
B. Swanson,
B. Simpson
Rapid scoping mission – Rebuilding and
strengthening the pluralistic extension
system in Liberia
Rwanda September
2011
B. Swanson,
J. Mutimba et
al.
Comprehensive assessment of extension
services in Rwanda, team of five in country
for about 3 weeks
Malawi April 2012 B. Simpson,
G. Heinrich,
G. Malindi
Strengthening pluralistic agricultural
extension in Malawi
Sierra
Leone
September
2013
P. McNamara,
S. Deen
(for World Bank WAAPP) an assessment
of extension services and an analysis of
policy strengthening measures
Ghana January
2014
P. McNamara
et al.
Strengthening pluralistic agricultural
extension in Ghana
Malawi July 2014 V. Sigman et
al.
Assessment of agricultural extension,
nutrition education, and integrated
agricultural-nutrition extension services in
FtF Zone in Malawi

18. How do we conduct a MEAS country
assessment?
• Purpose
– To document the state of the extension system (pluralistic)
• to identify strengths and extension assets, point out weak spots
• to specify measures that would strengthen the system
– Formative more than summative – not a quantitative
impact evaluation
– In specific countries we tailor the analysis to topics and
geographic zones identified by USAID and partners
• Team composition
– Usually a mix of team members, familiarity with
international agricultural extension systems and programs
as well as with “best fit” practices important
– Local resource person(s) extremely important to interpret
context, arrange meetings and facilitate interviews

19. Outline of our approach to conducting a
MEAS country assessment
• A thorough document and literature review (all key members of the
team) – policy documents, previous project reports, extension
reports and white papers on the country or extension programs
• Before they start the field work so the work is well-informed
• In-depth key informant interviews, focus groups and group
discussions
• Public sector extension staff, leaders, researchers
• NGOs active in extension, private sector extension, input
dealers, etc.
• Farmers, growers, farm association leaders and members, farm
group leaders
• Human capacity side – universities, colleges, training programs,
pre-service and in-service training
• Discuss and debate amongst the team and write
• Present in-country the preliminary findings and write
• Write, edit and incorporate feedback -- finalize

20. Partial listing of question topics in an extension
system assessment at the country level
• Organization and structure of
extension system
• Staffing – Min of Ag at various
levels by training and sex and
age; other extension
organizations
• Extension and research
linkages
• Who is doing what? Where?
How?
• Models, approaches used by
Min of Ag and by other
extension organizations
• Roles, coordination,
communication and links across
extension programs and
organizations
• Financing of extension services
• Training, pre-service training, in-
service training
• Supplies, transportation,
communication, recurrent costs in
extension
• Linkages with farmer groups and
associations – farmer voice
• Monitoring and evaluation system –
induces performance? Used?
• Gender imbalances in staffing and
programming, access to services
• Production focus? Market orientation?
NRM? Agriculture as a business?
How are topics determined?
• ICTs
• Performance issues in public sector
• Public/Private partnerships

21. Extension Policy
• MEAS engagements in Liberia, Cambodia, Ghana, and inputs
into many others – policy reviews, support of national
extension policy development processes, background work
• Importance of enabling environment for extension
– Government role in rural education, health, and infrastructure
– Investment climate, business climate, land institutions
– Overall macro policy, agricultural policy
– Ag research, funding and quality of ag training/education institutions,
regulation
• Extension policy domains
– Extension approach
– Coordination, Terms and conditions of service for extension workers
– Financing
– Targeting – small-holders or larger commercial farmer
– Service delivery, human resources development
– Gender, vulnerable groups

22. MEAS Symposium 2015
June 4
“Public Sector Service
Provision, Policy Making,
and Enabling
Environment”
Along the Policy Path:
Reviewing Ghana’s Agricultural Extension
Policy
Vickie Sigman
Sr. Agricultural Extension Policy
Specialist
MEAS, University of Illinois

23. What & Why
Participants: Ghana Agricultural Extension Policy
Forum

24. HOW
• Background and input
• Forum itself: highly participatory
– Small Groups, Themes, and Exercises
Review
Summarize
Report Out
Analyze
Progress,
Constraint
s,Gaps, &
Changes
Report Out
Develop
prioritized
recom-
mendation
s
Report Out
Group Exercises by Policy Theme

25. Outcomes
• Highest Priority Recommendations
– Target resources to women providers &
beneficiaries
– Fund public extension services adequately
– Clarify extension capacity development funding
– Update extension policy on emerging issues
– Update Farmer-Based Organizations Policy and
Strategy
• Groups to support the policy process forward
– Extension Policy Standing Committee and
Champions
• Next Step
– Revise the agricultural extension policy to reflect
recommendations

26. What was learned along the path?
Review is but one step:
ALSO NEED
• Companion costed & timed plan for
carrying-out revisions
• Finance and political will for
implementation & monitoring of
revised policy
• Greater involvement in and
awareness of process by farmers

27. 1. Implementation
• Pressman and Wildavsky –
implementation actually establishes
policy
• Key point -- without implementation
the policy is simply a hollow
statement
• Simplicity and directness is a great
virtue for implementation

28. 2. Process
• Does the policy development process
reflect the policy?
• If we say that farmer-led extension is
the objective, are farmers engaged
significantly in the policy
development process?
• Market oriented? Are any private
sector dealers and firms involved in
the process?
• Pluralistic? Are a mix of providers
involved?

29. 3. Broaden the Base of Support
• Does extension have support beyond
the people who are paid to deliver
the programs (Min Ag staff, iNGOs,
NGOs, paid advisors, etc.)?
• Do other government ministries care
whether or not the program exists?
• Do farmers/clients value the
services?
• Example of nutrition coalitions (eg
Thailand and others)
• Key role of national level forums

30. 4. Financing, Budget and Performance
1. Need to mobilize more finance into extension –
public/donor funds, NGO, farmer funds, private
sector
2. Projectization
3. Broken link between budgeting and performance
– Often farmers and farmer groups have very
little input into extension programming
– Often hires and placements are made centrally
or by District level leaders
– Farmers report not seeing an extension agent
after the project has ended
– Little transparency on flow of funds
– Lack of link discourages active field staff

31. 5. Quality and Resources
• “The quality of spending to
agriculture is more important than
the overall level of spending.”
Akroyd and Smith, 2007
• Feedback loops
– Quality promotes support --
advocacy strategy
– Quality promotes demand for
services from farmers
• Is program quality emphasized in
policy? Delivery? Farmer feedback?
• Implications for monitoring and
evaluation
• Institutional innovations to boost
quality – public/private partnerships
– Kenya, Ghana
Training on soil testing and analysis
for Ministry of Agriculture consultants
(field staff) in Georgia by USAID-
funded SEAS project

32. • Agricultural growth averaged 2.9% through the
1990s, and 6.2% in the 2000s
• Factors producing growth include
– Roads and improved electricity generation
– Political will
– Productive Safety Net Program – rural employment
using cash and food for building local infrastructure –
roads, water retention structures
– Macroeconomic stability – but a period of high
inflation in 2007/08 and a foreign exchange shortage
in 2009/10
– Increased extension contributed to lowering of
poverty and increased rural consumption
Ethiopia – sustained agricultural growth
has led to poverty reductions

33. • Ravallion – Are there Lessons for Africa from
China’s Success against Poverty? 2008
• In 1981 two out of three mainland Chinese lived
below $1 a day compared to 40% of people in SSA
at the same time
• Trend for poverty reduction was 1.9% (1981-2004)
versus 0.1% in SSA
• Despite obvious differences – population density,
birth rates, income inequality, strength of
governance – two lessons
– Productivity growth in smallholder agriculture
– “strong leadership and a capable public administration at
all levels of government”
China – Broad Agricultural Growth

34. Bright spots in international extension
• Devolution and decentralization offers an environment for new
approaches and more local voice into extension
– Kenya, Ghana
– District-level strengthening program with NGO/MinAg
• Innovative ICT approaches and programs – potential is huge
• Public/Private Partnerships and private sector extension
models
– Social entrepreneurship models like One Acre Fund and others
– ICT approaches from private companies – Esoko, Monsanto, etc.
– Bottom of the pyramid private sector farm advisors – working on shares
and small payments
– Successes of large scale farmer based organizations in India, some in
Africa, and in Latin America
• In some countries a renewed commitment by government for
rural development and extension
– Latin America examples
• Increased recognition of the importance of extension for
poverty reduction and agricultural productivity

35. Conclusions
• Starting with the end in mind helps
shape the policy development
process and the policy
• Implementation
• Groups engaged in the process
• Developing the policy takes real
resources of time, effort, and funds
• What is hoped to be gained?

36. Disclaimer
This presentation was made possible by the generous support of the
American people through the United States Agency for International
Development, USAID. The contents are the responsibility of the author(s)
and do not necessarily reflect the views of USAID or the United States
Government.

37. Group work – discuss together
1. What is a goal or objective of your engagement in the
policy process around agricultural extension in your
country?
2. If you and others engage seriously in policy work over the
five to ten years, what is a reasonable good outcome to
expect from the process?
3. Knowing what you know now, (e.g. the status quo,
challenges, opportunities, lessons from elsewhere etc.);
what can you commit to do in your own capacity to
(champion) influence the AEAS policy processes in your
country?
(Drawing experience from other sectors and other
countries)