AGRICULTURAL EXTENSION IN PAPUA NEW GUINEA

EMMANUEL KAVANAMUR

October 2025

Key Points

• Agricultural extension is vital to improving productivity, food security, and rural livelihoods across Papua New Guinea.
• Past extension systems were strong and well- coordinated but weakened after decentralization and limited provincial capacity.
• Current challenges include inadequate funding, poor coordination between the National Department of Agriculture and Livestock (DAL) and provincial DPIs, and weak research –farmer linkages.
• Revitalizing extension requires collaboration between government, private sector, and communities, supported by capacity-building and digital innovation.
• Modern extension must be farmer-driven, technology-enabled, and inclusive – empowering women, youth, and rural communities.

INTRODUCTION

Agriculture remains the backbone of Papua New Guinea’s economy, sustaining the livelihoods of millions of rural households. Yet the country’s agricultural extension systems – the mechanisms that transfer practical knowledge, skills, and innovations to farmers – have weakened over time. Rebuilding an effective extension service is crucial to addressing food insecurity, unemployment, and rural poverty. This think piece revisits the evolution of PNG’s agricultural extension systems, assesses current challenges, and highlights practical ways forward

PAST SYSTEM AND THEIR SUCCESS & CHALLENGES HISTORICAL PERSPECTIVE

Prior to independence in  1975  the  Department of Agriculture, Stock and Fisheries (DASF) was responsible for all government activities in respect of agriculture, livestock and fisheries. This includes research, extension and regulatory functions. In the earliest days prior to the anticipated independence anddecentralizedadministration,acentralornational government with four regional administration units was envisaged. A comprehensive regional organization was established with appropriate localization programme to meet the needs of such organization.

Papua New Guinea became an independent nation on the 16th of September 1975. The Department of Agriculture, Stock and Fisheries was renamed Department of Primary Industry in 1976 and included forestry. At independence in 1975 a Provincial Rural Development Officer (the DPI- Officer In-Charge) was a member  of  the  provincial  team  under the chairmanship of a Provincial Commissioner. However, departmentally the officer was responsible to a Regional Controller, who in turn was responsible to the Director of DPI. There was a pool of “Subject Matter Specialists” (SMS) at a regional level with a further back-up at the research centres, together with policy and planning back-up at national headquarters. Most field and all managerial positions were localized by the time of independence in 1975. Plans had centred on national government with four regional administration units. Unexpectedly and suddenly, it was decided to have provincial governments as well, part VIA “Providing for Provincial

Governments and Local Level Government” was added by constitutional Amendment No. 1. In 1977 Organic Law on Provincial Governments was passed. It was decided to have 19 provincial  government and  this  accordingly   required   decentralization   to these 19 provincial governments. This added considerable stress to the decentralization exercise and the Department of Primary Industry’s regional organization established earlier was scrapped.

With the emergence of provincial governments, it became  necessary  to  define  the  responsibilities  of national DAL and the provincial DPIs. Provincial government powers, functions  etc.  are  provided  for under the 1977 Organic Law on Provincial Governments. On the other hand, national responsibilities are based on the constitution and national laws.

National and provincial government roles and responsibilities are outlined later. In order to fully understand and appreciate the allocation of responsibilities, it is necessary to note the national goals and directive principles that underlie the Constitution of Papua New Guinea and relevant  parts of the appropriate legislation.

REASONS FOR PAST SUCCESS

1. The Department of Agriculture, Stock and Fisheries (DASF) was responsible for all government activities in respect of agriculture, livestock and fisheries. This included research, extension and regulatory functions.
2. The national government decided to establish four regional administration units as envisaged. A comprehensive regional organization was established with appropriate localization programme to meet the needs of such organization.
3. All regional offices in the four regions were fully financed by the national government.
4. All four regions have  all  available  resources to implement all projects designed and development programs in their regions.
5. There was a pool of “Subject Matter Specialists” (SMS) at a regional level with a further back-up at the research centres, together with policy and planning back-up at national headquarters
6. All agricultural extension officers understood what were required of them in relation to the national goals and directive principles of the constitution and the national development strategies which drives the agricultural extension services to be effectively implemented.

CURRENT SYSTEMS AND THEIR CHALLENGES

The decentralisation of agricultural  functions from the National Department of Agriculture and Livestock to provincial governments was intended to bring services closer to the people. However, this transition created significant challenges. Many provincial governments lacked the financial and technical capacity to manage agricultural programs effectively. While the 1977 NEC decision envisioned shared or “concurrent”  responsibilities

–  where  the  national  DAL  would  guide  policy,

research, and technical oversight, and provincial Departments of Primary Industry (DPIs) would handle implementation – the practical reality has often been one of fragmentation. The national DAL is mandated to assist provinces to build agricultural capacity,  yet  this  coordination  has  not  always

occurred proactively or systematically. Successful agricultural extension requires cooperation, not competition, between the national and provincial levels. In practice, however, the relationship has too often been marked by separation of functions, duplication of projects, and weak alignment with national policy. Restoring a spirit of collaboration and shared accountability is therefore essential. Where disagreements persist, a formal review of the 1977 NEC framework and clear guidelines on respective roles could help to re-establish coordinated delivery of agricultural extension across the country.

RESULTS AND RECOMMENDATIONS OF CONSULTATIVE MEETINGS BETWEEN NATIONAL DAL AND PROVINCIAL DPIs

The National Department of Agriculture and Livestock retained a number of functions as “exclusive” functions. These include:

1. The national DAL is mandated to assist provincial governments in building agricultural capacity and to provide advisory and technical services when required.
2. Despite several consultative meetings, many provinces have resisted this guidance, often because they prefer full control over project financing
3. Under the NEC decision, provincial governments are still required to deliver agricultural extension services in line with approved national policy guidelines.
4. The expectation is clear: national DAL and provincial DPIs must work cooperatively in deliveringextensionandagriculturaldevelopment programs. However, this cooperation has often broken down. For instance, a successful sheep project in Simbu collapsed after three years due to corruption and the project leaders’ refusal to follow national DAL’s technical advice.
5. National DAL continues to participate in joint national-provincial projects, but its role in guiding provincial DPIs must be strengthened. The Yapai Seed Potato Project, jointly implemented by national DAL, the Enga Provincial Government, and the local community, similarly failed because advice from national DAL and FPDA was ignored.

WHAT IS AGRICULTURAL EXTENSION

Agriculture extension is a service or system that provides farmers and rural communities with practical information, skills and technologies related to agriculture of the aim of improvising their productivity, income and livelihood. It acts as a link between research institutions and farmers by transferring knowledge from researchers to farmers and bringing farmers problems back to researchers.

Furthermore, agricultural extension is a system of education service designed to provide farmers, rural families and communities with practical knowledge, information and skill that help them improve agricultural productivity, profitability and their overall livelihoods. It acts as a bridge between agricultural research institutions and farmers, ensuring that innovations and improved farming techniques reach those who need them. In short, agricultural extension can be simple defined as an educational process that helps farmers improve their farming practices by using new knowledge and technology.

OBJECTIVES OF AGRICULTURAL EXTENSION

The core objectives of agricultural extension are to:

• Increase production and productivity by helping farmers adopt improved crop, livestock, and land management practices.
• Enhance rural livelihoods through better farm management, marketing skills, and access to income-generating opportunities.
• Promote sustainable agriculture by encouraging practices that conserve soil, water, and biodiversity while adapting to changing climates.
• Strengthen research–farmer linkages to ensure that farmers’ challenges inform future research and innovation.
• Foster inclusion and participation by ensuring that women, youth, and marginalised groups are meaningfully involved in agricultural development.

Effective extension systems are guided by key principles participation, practicality, flexibility, and credibility – ensuring programs are locally relevant, farmer-driven, and built on mutual trust. They must also prioritise equal access, coordination among government, NGOs, and the private sector, and a commitment to sustainability so that development benefits endure for generations.

HOW AGRICULTURAL EXTENSION SYSTEMS FUNCTION

Agricultural extension operates through a range  of interlinked components, service models, and communication methods that ensure knowledge reaches farmers effectively. It involves educating farmers through demonstrations, workshops, and field visits on improved crop and livestock practices, pest control, and soil and water management. Extension services are delivered by a variety of actors, including government agencies, agribusinesses, non-government organisations, and experienced farmers. Each contributing to knowledge sharing and capacity building. Extension workers are the backbone of this system. They educate farmers, identify and help solve field problems, organise farmer groups and cooperatives, and provide critical information on markets, weather, and government schemes. They also promote sustainable and eco- friendly farming practices while supporting broader community development efforts such as women’s empowerment, nutrition, and income generation. Increasingly, digital and ICT-based approaches, such as mobile messaging, radio programs, and social media are expanding the reach and impact of extension services. These efforts combine individual support (farm and home visits), group learning (training sessions and farmer field schools), and mass communication (broadcasts, publications, and agricultural fairs) to create a dynamic system that links research, extension, and farmers. Translating innovation into practice and empowering rural communities to improve productivity, resilience, and livelihoods.

CHALLENGES FACING AGRICULTURAL EXTENSIONS

Agricultural extension in Papua New Guinea faces several interrelated challenges that hinder its reach and impact. Funding and infrastructure remain limited, particularly in rural areas, making it difficult for officers to access and support farming communities effectively. The shortage of trained extension staff further weakens service delivery, while low literacy levels among farmers slow the uptake of new technologies and practices. Coordination between research institutions, extension workers, and farmers is often weak, reducing the flow of useful knowledge to the field. Cultural and gender barriers continue to limit participation, especially for women

and youth, who are key contributors to agricultural production. In addition, the slow adoption of ICT tools and the growing effects of climate change (such as erratic weather patterns and pest outbreaks) pose new pressures on farming systems. Together, these challenges underline the urgent need to strengthen PNG’s agricultural extension system through better resourcing, training, and innovation.

WAY FORWARD FOR AGRICULTURAL EXTENSION

Papua New Guinea’s agricultural extension system must evolve into a  dynamic,  farmer-focused,  and well-coordinated mechanism that drives productivity, sustainability, and rural transformation. The following key directions outline the general way forward:

1. Improving Agricultural Productivity

Enhance crop yields, quality, and profitability through the adoption of improved farming techniques, better inputs, and efficient land and livestock management. Strengthening value chains and market linkages will ensure that productivity gains translate into higher incomes for farmers.

• Strengthening Food and Nutrition Security  Support diversified and resilient farming systems that provide stable access to safe and  nutritious food for local communities. This includes promoting household food gardens, crop diversification, and

improved post-harvest storage and processing.

3. Promoting Sustainable and Climate-Smart Agriculture

Encourage environmentally responsible practices that conserve soil and water, reduce emissions, and build resilience to climate change. Extension programs should promote agroforestry, integrated pest management, and sustainable resource use across all regions.

4. Empowering Rural Communities

Build  the  capacity  of  farmers—especially women and youth—to make informed decisions about production, marketing, and community development. Strengthen farmer groups, cooperatives, and leadership networks to improve participation, coordination, and local accountability.

5. Reforming and Strengthening Extension Delivery Systems

Shift towards demand-driven and farmer-led models that respond to local priorities and promote accountability. Clearly define roles and improve coordination between the National DAL, provincial DPIs, NGOs, and private sector actors to avoid duplication and improve service reach.

6. Building Capacity and Skills

Invest in continuous training and professional development for extension officers and lead farmers. Strengthened human resources will improve technical advice, community engagement,  and  the adoption of new technologies and sustainable practices.

7. Leveraging Research, Technology, and Innovation

Enhance linkages between research institutions and farmers to ensure that innovations are practical and accessible. Expand the use of digital tools and ICT platforms—such as mobile advisory services, radio programs, and online training—to improve information flow and support farmers in remote areas.

• Strengthening Partnerships and Collaboration Foster partnerships across government agencies, research organisations, universities, NGOs, and the

private sector. Public–private collaboration can mobilise additional resources, share expertise, and improve extension coverage along the agricultural value chain.

CONCLUSION

Agricultural extension in Papua New Guinea must continue to evolve to meet the changing needs   of farmers and rural communities. Strengthening the system will require collaboration, innovation, and a renewed focus on inclusive and sustainable development. The following key solutions provide a practical roadmap for the way forward:

1. Strengthening public/private partnership
2. Training and capacity building of agricultural extension staff
3. Promote use of digital tools and mobile-base advisory services
4. Promoting integrating women and youth in extension programs
5. Promoting climate – smart agricultural practices
6. Ensuring farmers feedback influences research

and policy-making

Agricultural extension remains a vital link between science and  practice—helping  farmers  apply  new knowledge, adopt sustainable methods, and improve their livelihoods. As technologies advance and markets evolve, PNG’s extension system must adapt to remain relevant and effective.

By strengthening partnerships, building local capacity, and embracing innovation, Papua New Guinea can create a modern and resilient extension system that empowers farmers, enhances food security, and drives sustainable rural development for generations to come.

About the Christian Professionals Network

PNG Christian Professionals  Network  Inc.  formerly known as TSCF Graduates  Network,  is an interdenominational Christian professionals’ network. We are driven by purpose and passion to see a new PNG. We connect, inspire and empower our members to positively influence the seven spheres of influence (family, church, education, business, arts and entertainment, media and government). The vision of the Network is to produce Christlike leaders to positively influence PNG and beyond through an effective Christian professional network. We actively network with like-minded Papua New Guineans to share knowledge and experience through Minds-Meet, Emerging Leaders Summitt, CPN Connect, and Peace Ambassadors to influence sound biblical and ethical decision-making process and peace building. Our objective is to see Christ- like people Centered servant leaders raised in every sphere of influence. Leaders who love the Lord and strive to see this nation transform.

Mr. Emmanuel Kavanamur is a respected Highlands Regional Crop Advisor with over 30 years of experience, currently affiliated with the Highlands Agriculture College. He is a key figure in promoting sustainable farming in Papua New Guinea’s Highlands, specializing in crops like potatoes, carrots, broccoli, and cauliflower. Mr. Kavanamur has been instrumental in helping communities adopt cash crops, such as potatoes in the Southern Highlands, by providing technical guidance on disciplined farming, seed management, and the proper use of agricultural chemicals.

This think piece was prepared with support through the PNG-Australia Partnership Building Community Engagement in PNG (BCEP) program.