1. Agricultural input
subsidies – conceptual
review
Hiroyuki Takeshima
Hak Lim Lee
International Food Policy research Institute
Presented at the workshop in Maputo
October 18, 2012
INTERNATIONAL FOOD POLICY RESEARCH INSTITUTE 1
2. Policy issues
Economics of subsidy and conventional
wisdoms
Justification for subsidy & potential
alternatives
Targeting
Monitoring & Evaluations
Exit strategy
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3. Subsidy
a payment reducing the buyer's price below
the seller's price (Pindyck & Rubinfeld 2005)
A subsidy can be analyzed as a negative tax
Agricultural input subsidies are paid with the
intention of lowering the prices of agricultural
inputs (such as fertilizer, seeds, equipments)
below their market prices
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4. Intended goals of agricultural input
subsidy
Affordability of agricultural inputs for
smallholder farmers
Accessibility to inputs
Develop the input-supply distribution system
Sensitize farmers to the use of inputs
Social protection for vulnerable groups
Soil fertility
Reduce social costs (rural-urban income
disparities etc) with broader goals of raising
agricultural production and food security.
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5. Conventional wisdoms
Deadweight Loss Input
price Deadweight
= loss of economic Loss Supply curve
efficiency (no subsidy)
• misallocations of Supply curve
resources (Subsidy)
• supplied at higher Demand curve
cost than the value Input use and supply
they create
Deadweight Loss, benefits
• bought by those who
extract less value to suppliers and farmers
from the goods than depend on
their costs (non- Elasticity of input supply,
subsidized prices) demand
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6. Deadweight loss, benefit
distributions
Benefits to
suppliers
Farmer benefits
Inelastic demand, elastic Elastic demand, inelastic
supply supply
- Reducing input cost - Reducing input cost
=> small DWL => large DWL
- Increasing inputs use - Increasing inputs use
=> larger DWL => small DWL
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7. Example of deadweight loss
Initial condition (Non-subsidized):
Fertilizer supply (demand): 167,060 tons
Farmgate price: $ 525 / ton
Price elasticity
• Supply: 4 (Quizón & Binswanger 1986)
• Demand: - 0.46
(estimated from Ricker-Gilbert et al. 2011)
=> With 25% subsidy
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8. Example of deadweight loss
Farmgate Deadweight Loss =
fertilizer price USD 1.2 million
(US$ / ton)
Supply
curve
Supplier price = 538
Supplier price (no subsidy) = 525
Subsidized price = 404 Demand
curve
Government 167 185
subsidized
(= no (= actual
fertilizer
Source: Authors. subsidy) demand)
(1000 ton)
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9. Example of deadweight loss
Benefits for
• Farmers: $21.4 million (from lower price)
• Suppliers: $ 2.3 million (from increased supply, higher price)
• Total benefits => $23.7 million
Total subsidy cost: $24.9 million
Deadweight Loss = $1.2 million
If subsidy budget of $24.9 million were allocated among
farmers and fertilizer suppliers, they could have benefited
more
Also, examples of inelastic demand, elastic supply case
Reducing fertilizer cost is more efficient goal, than increasing
fertilizer use
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10. When may subsidy still make sense ?
When conditions in competitive market do not hold
Market failure (Information, Credit / insurance)
Externality
Public goods
Economies of scale
Example:
Farmers have imperfect knowledge, underestimate the benefits
of fertilizer
Farmers may become more efficient in applying fertilizer over time
Positive externality – better soil fertility for the future generation
Reduce per unit costs due to economies of scale from increased
demand
Subsidy may offset taxes for export crops (Kelly et al. 2003;
Holden 2003)
Subsidies on ag inputs important in earlier stage of Green
Revolution (Fan et al. 2004; Djurfeldt et al. 2005)
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11. Potential alternatives to subsidy
Public infrastructure, agricultural research &
extension
Capacity building of various agents along input
value chains
Fundamental cost reduction strategies without
subsidy
• Kenya
• fertilizer use ↑ (1990s ~ early 2000s)(Ariga & Jayne
2011)
• Eliminated import licensing quotas
• Fertilizer responsive crop varieties (=> higher demand
elasticity)
De-regulation of package size (often regulated to reduce
adulteration risk (Dorward et al. 2011))
• Reform in Kenya: repealing of law led to increase in
fertilizer purchase (Dorward et al. 2011)
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12. Potential alternatives to subsidy
Input-supply distribution networks:
• Training rural retailers
• Linking rural retailers, large input wholesalers,
• Loan guarantee (cover part of the risk of wholesales of the
retailer defaulting)
• Help input dealers organize, make bulk purchases with
joint collateral
Subsidy for supporting vulnerable groups
• Transportation to remote areas - input subsidy costly
• Social safety net, Food aid, Food for work, Conditional
cash transfer - if food market functions well
Soil fertility in marginal area (Shalit & Binswanger 1984)
• Fallow in land abundant areas
• Organic matter in more densely populated areas
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13. Targeting
Indicators of targeting performance
Undercoverage: the share of intended beneficiaries who
end up not benefiting from the subsidy
Leakage: the proportion of beneficiaries who are not
intended to benefit from the subsidy
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14. How to target ? -
Geographical targeting: provide subsidized
inputs to all farmers in a particularly
geographical area, exclude other areas
Community-based targeting:
Indicator-based targeting:
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15. Community-based targeting
Rely on local authorities / community
representatives to select beneficiaries
Pros
• Can use local information about the beneficiaries -
often unobservable (Alatas et al. 2012)
Cons
• Ineffective due to (Chinsinga 2005; Conning &
Kevanne 2002)
political favoritism
misunderstanding
• Elite capture of vouchers in remote areas with
unequal access to land within the community (Pan
& Christiaensen 2012)
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16. Indicator-based targeting
Based on household characteristics
more cost-efficient if it were implemented for input subsidy
in Malawi (Houssou & Zeller 2011)
• Household size
• Wireless radio ownership
• Floor of main dwelling is predominantly made of smoothed cement
• Bicycle ownership
• Lighting fuel is electricity
• Highest education
• Rubbish disposal facility is public heap
... Etc
=>
• Compared to community-based targeting systems,
73% of transfers, instead of 50% of transfers, will reach the poor /
smallholder farmers
Costs of leakage to the non-poor – more than 50% ↓
Administrative costs – twice, but offset by the reduction in the cost
of leakages
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17. Instruments
Voucher
• Pros
Added incentive, force farmers to buy the intended inputs -
unlike a cash transfer
• Cons
sufficient stock of inputs at the agro-dealers at the time that
farmers require the inputs at the start of the cropping season
must be redeemable without delay
• Electronic voucher - text messages to mobile phones, bank
cards, electronic “smart cards”
costs for voucher distributions ↓ by 90% (EuropeAid 2012)
Demonstration packs
• Starter Pack program - Malawi
• small quantity - discourage larger scale farmers who need not be
sensitized
• elite capture - still common, requires appropriate targeting method
(Morris et al. 2007)
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18. Instruments
Rationing subsidized inputs
• Reduce required budget
• Rent-seeking activity when ration < demand
Well-connected individuals divert inputs for their own benefits (Dorward 2009)
• Inelastic demand - may aggravate the problem
Passbook
• Enforced saving
• Cotton production in Tanzania (Poulton & Maro 2009)
• Cotton growers are given a savings passbook containing a credit equivalent to the
beneficiary subsidy at the harvesting season in exchange for the seed cotton that they
deliver. In the following planting season, they can use the funds in their passbook
savings account to obtain inputs such as seeds and agro-chemicals
• Differs from a voucher
=> Farmers decide to deliver the crop output in the first cropping season that entitles them
to receive a subsidy for the next season
Timing
• Well ahead of planting
• Input subsidy at harvesting season
Fertilizer subsidy in Kenya (Duflo et al. 2011) –
at harvesting time, farmers have more cash and are more forward-looking –
willing to invest into modern inputs for the next season, than consumption
=> similar idea holds for passbook
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19. Monitoring & Evaluation - Ex-ante
Elasticity
• Elasticity of demand for inputs:
Will subsidy increase the use of inputs ?
Will subsidy actually lower the input price?
• Choice experiment, conjoint analysis
Willingness to pay (Holden & Lunduka
2010)
• Randomized control trials
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20. Monitoring & Evaluation - Ex-post
Various indicators
• Inputs use levels of target beneficiaries
• Crop yields
• Costs of input supply
• Farmer incomes, welfare (nutritional intake etc)
• Improved soil nutrient levels – nitrogen levels / soil
organic carbon
Short-term & Long-term
Distributional effects
• Regressive vs Pro-poor
• Efficiency vs Equity
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21. Monitoring & Evaluation - Ex-post
Private input sector development
Reduced transaction costs per unit
Increased volumes of economic activity by input
suppliers
Crowding in / out of private input suppliers
Crowding out - fertilizer subsidies in Malawi, Zambia
Tanzania - better in not displacing private dealers
• Seed subsidies - crowding out of local informal seed
sector (emergency assistance through vouchers)
Long-term growth potential
• Increased savings
Providing beneficiaries with saving accounts –
impact evaluation in Mozambique
• Long-term investments made
=> Important for exit strategy
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22. Monitoring & Evaluation -
Randomized control trials
Randomly distribute or withhold subsidy benefits
Why randomize ?
• Without randomization, difficult to measure the
impacts accurately
Example:
• Village head disproportionately selects
beneficiaries among farmers with declining soil
fertility - usually known to the village residents but
not to outsiders
• Greater impacts among those beneficiaries
• False impression - similar subsidy could also work
elsewhere with the similar characteristics with
more fertile soil
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23. Monitoring & Evaluation -
Randomized control trials
Randomized experiment for evaluating subsidy
• Short-term, direct, localized impact
• Inappropriate for measuring indirect effect
Food price
Rural employment
Historically, greater indirect benefits rather than direct effects
Randomized experiment for ex-ante assessment
• With RCT, obtain certain information that is difficult to be obtained
from actual input market
Choice experiment - random discount – use information of
their uptake to assess how demand will change depending on
the price
Difficult without RCT – in real world, prices often don’t change
sufficiently within a short period of time
Level of subsidy maximizing the uptake, minimizing the costs
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24. Exit strategy
Clear and feasible exit strategy needed from the beginning
Removing subsidies - historically challenging
• Irrigation (Dinar 2007), Seed (Sperling et al. 2004),
Fertilizer (Smale et al. 2011)
Long-lasting subsidy - problems
• Politically entrenched
• Encourage fraud / diversion of subsidies to other purposes
(Dorward 2009)
Some options
• Seasonal credit provision (relates to passbook) (Poulton &
Dorward 2008)
Gradually phase out subsidy while introducing a
seasonal credit structure (Poulton & Maro 2009)
• Saving programs – ongoing evaluation (Carter et al. 2010)
• Fertilizer subsidy to agro-forestry investments (de Schutter
& Vanloqueren 2011)
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25. Key questions
What are the strategic development objectives ?
• inputs use to food production
• poverty among smallholders
• private input supply network
• improve soil nutrients
• Altogether?
What are the economic characteristics of the
agricultural inputs to be subsidized
• Will demand for inputs increase with subsidy ?
• Is there sufficient supply capacity?
What are the intended outcomes - will they be
monitored and their impacts evaluated ?
Is there ex-ante evidence ?
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26. Key questions
Who should be the beneficiaries?
• Large-scale commercial farmers ?
• Poorer smallholder farmers?
How can they be targeted?
What instruments can minimize leakage or
undercoverage of the subsidy program benefits?
What is the plan for an exit strategy for subsidy ?
How can subsidy help beneficiaries make long-
term investments ?
What may be the alternative policies?
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