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Bridging the Gaps

in the Kaong Subsector


Ivan Idrovo and Marian Boquiren
SDCAsia
October 2005
Implementation Grant Program
BDS Learning Network
Case Study #6
Copyright 2005 The SEEP Network
Sections of this publication may be copied or adapted to meet local needs without permission from The SEEP
Network, provided the parts copied are distributed for free or at costnot for prot. Please credit the USAID
Microenterprise Development Division, Implementation Grant Program for Business Development Services (IGP-
BDS), IGP-BDS Learning Network, Case Study #6, and The SEEP Network for those sections excerpted. For
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Washington, DC 20009.
The Implementation Grant Program (IGP) for Business Development Services, IGP-BDS Learning Network,
Case Study #6, Bridging the Gaps in the Kaong Subsector.
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To access this publication on line, visit www.seepnetwork.org.
Implementation Grant Program BDS Learning Network
Case Study #6
Bridging the Gaps in the Kaong Subsector
Ivan Idrovo and Marian Boquiren
SDCAsia
October 2005
The Small Enterprise Education and Promotion (SEEP) Network
1825 Connecticut Avenue, NW, Washington, DC 20009-5721
Tel.: 202-884-8581 Fax: 202-884-8479
Email: seep@seepnetwork.org Web: www.seepnetwork.org
The Implementation Grant Program for Business Development Services (IGP-BDS) and the IGP-BDS Learn-
ing Network are funded by the Microenterprise Development Division of the United States Agency for
International Development (USAID). The opinions expressed herein are those of the authors and do not
necessarily represent the views of The SEEP Network, SDCAsia, or USAID.
IGP-BDS Learning Network . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
SDCAsia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
The Market Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Indigenous Kaong Semi-Processors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
The Kaong Market . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
SDCAsia Project . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Principal Market Relationships . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Facilitating More Equitable Market Relationships . . . . . . . . . . . . . . . . . 5
Drilling Down . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Strengthening Market Linkages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Strengthening Supply-chain Governance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Lessons Learned . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Annex 1: Moving Kaong from the Mountains to the Cities . . . . . . . . . 9
Annex 2: Key Features of the Kaong Fruit Market of Davao del Sur . . . . . 10
Annex 3: Baseline, Current, and Future Relationships in the Kaong Market . . 11
Table of Contents
Bridging the Gaps in the Kaong Subsector 3
The United States Agency for Developments
(USAID) Microenterprise Development Division has
been funding programs in micronance and business
development services (BDS) through the Implementation
Grant Program (IGP) since 1995. As of 30th Septem-
ber 2004, over 90 grants have been approved for a total
life-of-project funding greater than 100 million dollars.
The current IGP-BDS grantees are an impressive group
of organizations and projects that: cover almost every
geographic region, consist of numerous value chains,
use various approaches, and contain enormous potential
to make a positive impact. These programs present an
important learning opportunity on how to improve the
design, implementation, and impact of BDS programs.
The USAID Microenterprise Development Division,
in an effort to establish a participatory learning process,
initiated a learning network for the IGP-BDS grantees. The
SEEP Network, a non-prot organization in Washington,
DC, is the secretariat for the IGP-BDS Learning Network.
The SEEP Network provides resources for the IGP-BDS
grantees to conduct technical exchanges, hold virtual discus-
sions, organize an annual meeting, and learn about differ-
ent approaches and tools that are being used in the various
IGP-BDS grant programs. In addition, The SEEP Network
generates opportunities for: peer exchanges, collaborative
case studies, and conference participation for IGP-BDS
Learning Network participants.
The goal of the IGP-BDS Learning Network is to be an
excellent technical resource for the participants of the IGP-
BDS Learning Network, furthering their program and organi-
zation objectives. Through the IGP-BDS Learning Network,
lessons on sound practices will be captured and disseminated
to the wider microenterprise development industry.
The IGP-BDS Learning Network was ofcially
launched during a meeting organized by The SEEP Network
and held in New Delhi, India in December 2003. This
Learning Network identied the following three learning
themes, which frame the common challenges of the IGP-
BDS Learning Network participants, and are aligned with
the market development goals of the IGP-BDS grants.
1. How to effectively manage the market facilitation role
and tasks across a range of market settings and market
problems.
2. How to build win/win business relationships between
MSEs and other key market players.
3. How to effectively stimulate demand for business
services.
Each IGP-BDS grant operates on a performance
basis, tracking progress against targets established at the
outset of the grant. The semi annual reports also provide
qualitative narratives that link programmatic performance
to the overarching IGP-BDS Learning Networks agenda.
The agenda aims to understand how to harness the power
of increased MSE participation in growing markets to
achieve positive and lasting development outcomes.
Six IGP-BDS Learning Network case studies have
resulted from the rst two learning themes. These cases
were written against a set of guidelines adopted by the
IGP-BDS Learning Network. These six case studies have
initiated a process of learning linked to useful and practi-
cal outcomes. In the near future, the IGP-BDS Learning
Network plans to: develop diagnostic tools that manage
and track performance, document learning against cur-
rent and future learning themes, and distill lessons on the
links between better practice and performance.
- Marshall Bear, IGP-BDS Learning Network Facilitator
- Jimmy Harris, Deputy Director, The SEEP Network
- Jennifer Hansel, Program Associate, The SEEP Network
IGP-BDS Learning Network
SDCAsia
SDCAsia (formerly Swiss Contact Philippines) is
working to help small-scale processors of fruit and veg-
etable products in Mindanao enter higher value markets
by establishing commercial linkages with established pro-
cessors and vendors. SDC is working with processor and
wholesalers to stimulate demand for Mindanao-processed
products through trade fairs and market information in
the metro Manila area and is working to differentiate the
newer products with innovative marketing approaches
(e.g., using clean and hygienic processing practices as a
marketing tool). SDC is facilitating sustainable mar-
ket access and upgrading services by embedding these
services within commercial transactions between small
scale farmers and processors. SDC is also strengthening
horticulture cluster in Mindanao utilizing mentoring and
networking tools.
IGP-BDS Learning Network Case Study #6 4
Introduction
The Market Context
The Arenga Pinnata, a wild variety of sugar palm
tree, abounds in the forests of Davao del Sur, Mindanao,
as well as in other parts of the Philippines. Known as ka-
ong to Tagalogs and ediok to the Bagobo indigenous
people, the sugar palm is used for a variety of purposes,
such as edible starch, sweet sap (fermented to vinegar),
roof , and construction materials.
The most popular commercial by-product of the
sugar palm is its sweetened fruit, which is used as an in-
gredient in fruit salads and desserts. Philippine exports of
processed kaong fruit grew annually by an average of 5.3
percent over the last ve years. Bottled kaong preserves
are also very popular on the domestic market, particu-
larly during graduation months, esta months, and the
Christmas season.
Kaong industry players in Davao del Sur generally
operate outside of national and export markets (see An-
nex 1). The semi-processing communities, for example,
are not connected to city-based processors. Processors
are unable to signicantly expand their business mainly
due to supply constraints, while semi-processors have not
evolved from household-based production because they
lack access to bigger, more lucrative markets.
This case study describes the strategies implemented
by SDCAsia to improve relationships in the processed
kaong value chain in Davao del Sur. Its goals were to
enhance MSE growth and subsector competitiveness.
Specically, the study focuses on ongoing efforts to build
mutually benecial, longer-term business relationships
between semi-processors (mainly Bagobo indigenous
peoples), traders, and processors.
Indigenous Kaong Semi-Processors
The indigenous communities of Davao del Sur are
made up of various tribes, the majority of which are
Bagobos. The Bagobos are a proud people with a strong
social structure that has enabled them to blend well with
the main political body of the Philippines while retaining
many indigenous customs, beliefs, and values.
Many Bagobos have suffered dislocation due to the
loss of ancestral lands and the effects of communist and
Muslim insurgencies which are more pronounced in Min-
danao than in other parts of the country. These semi-pro-
cessors are generally located in uplands, accessible only by
trail. Non-farm income, such as kaong semi-processing,
is crucial to Bagobo households because it helps smooth
the ow of income over the crop production cycle and
spreads income risk. Ownership of trees such as the sugar
palm, usually through group property rights, represents
a high share of Bagobo capital assets. Harvesting and
selling of another persons kaong is considered stealing
and proper nes must be paid. When households are in
dire need of money trees can be used as collateral or even
pawned.
Harvesting of kaong is usually done by male mem-
bers of the household, which entails climbing up the
palm and cutting off bunches of fruit. In the past, women
primarily performed the semi-processing, which involves
cleaning, boiling of the nut, pitting, and soaking of pitted
seeds in water. (please see attached value chain). At pres-
ent, male household members have also become active
in semi-processing. When the SDCAsia program started,
there were only about 40 households in the business of
kaong processing. At present (September 2004) there are
250 households, which derive, on average, 40 percent of
their monthly income from kaong processing.
The Kaong Market
The main features of the kaong fruit market, as seen
from the perspective of the upland communities of Davao
del Sur, are summarized in Annex 2.
SDCAsia Project
The goal of the SDCAsia program is to increase the
income-earning capacity of resource-poor entrepreneurs
in Davao del Sur by facilitating their access to bigger,
more lucrative markets for semi-processed kaong fruit.
Given the characteristics of the Bagobo communities and
the environment in which they operate, the project team,
in consultation with various community-based stakehold-
ers, adopted a strategy to:
Bridging the Gaps in the Kaong Subsector 5
strengthen the semi-processing activities of Bagobo
communities rather than immediately move up the
value chain and produce endproducts,
1
and
build on the traditional trading system, meaning that
semi-processors do not deal directly with Manila- and
Davao-based processors, but rather, with community-
based market intermediaries.
The team assessed that it would require more time to
fully develop the capacity of semi-processors to produce
end-products than semi-processed fruit. The investments
required for end-products were, moreover, beyond the
capacity of both the semi-processors and the commu-
nity-based traders. The focus on semi-processed products
served to increase the income levels or, at least, sustain
the economic activity of the indigenous communities.
The decision to work via intermediaries was based on the
latters experience in dealing with relatively bigger enter-
prises and city people, basic minimum infrastructure,
and transaction costs that were either low and/or could be
spread among other cash crops carried by the intermedi-
aries.
Principal Market Relationships
The project team identied the following market
relationships to be most crucial in bringing resource-poor
enterprises to the mainstream market:
relationships between kaong semi-processors and
community-based intermediaries; and
relationships between community-based intermediar-
ies and the buying agents of processors.
The relationship between kaong semi-processors,
community intermediaries, and processors is based upon
arms-length negotiation. Traders, buying agents, and pro-
cessors maintain a shifting network of potential suppliers
to complement in-house production. The relationship be-
tween buyers and sellers was, therefore, inherently unstable
and short term, often extending only to a single or inter-
mittent purchase order. This arrangement allowed buyers
to switch suppliers easily if they could purchase at a better
price. By contrast, immediate cash for daily subsistence was
the bottom line for the semi-processors.
In general, market relationships did not permit close
cooperation between semi-processors and buyers and con-
tributed little to systemic upgrading of the supply chain in
Davao del Sur. A high degree of mistrust prevailed among
all parties and the ow of information at each link of the
chain was inefcient. Consequently, the system was not
well positioned to respond to market change meaning that
necessary changes were either slow or missed altogether.
The SDCAsia project envisions that future relation-
ships among these three links will be characterized by: (a)
a high degree of interdependence oriented towards end-
market demand, (b) effective, efcient management of
quality and performance along the value chain to induce
convergence of supply-side capabilities and demand-side
requirements, (c) systemic upgrading of the supply chain,
(d) non-adversarial, equitable returns and the sharing of
risk; (e) transparency, and (f ) long-term duration.
A picture of the baseline, current, and future relation-
ships among the three parties is presented in Annex 3.
Facilitating More Equitable Market Relationships
Drilling Down
Market research and gathering feedback play an
important role in facilitating the development of win-win
relationships in the kaong market. The analysis and use
of market data gains value as information feeds into the
development process, which increases condence and
decreases risk. The primary tools being used in market
research are (a) use of secondary market info; (b) key
informant interviews, and (c) informal group discussions.
Information gathering involves understanding:
the nature of the kaong market and value chain and
how semi-processors are currently served by them
market structure, players, and their dynamics vis--vis
the market position of the semi-processors
the indigenous culture and trading system, including
governance.
1
Recently, SDCAsia identied a good market for kaong vinegar, an end-product suitable to the capabilities of the Bagobo communities.
Product development is in progress and the product is being market tested locally. The building of trading/marketing networks is ongoing.
IGP-BDS Learning Network Case Study #6 6
Based on the information gathered, the project team
implemented the following steps:
Identied and selected market channels and links that
would provide opportunities for indigenous com-
munities to penetrate the mainstream market and get
larger share of the value within the chain
identied critical constraints and opportunities of se-
lected market channels/links, as well as requirements
or standards that should be met
assessed skills and know-how required by indigenous
communities to be able to meet requirements and
how these can be accessed by indigenous communities
Matched requirements to the resources, objectives,
and existing activities of the relevant market players
Selected entry points and championsan initial core
set of market players with whom the SDCAsia pro-
gram could work.
The team discussed the feedback of different market
players with the players themselves, seeking to identify
win-win solutions to problems. At this point in the proj-
ect, the various parties preferred that SDCAsia play the
role of mediator to resolve dissatisfaction, new issues, and
constraints in market relationships.
Strengthening Market Linkages
Support for market linkages is provided primarily
to (a) expand markets of the different links in the kaong
value chain, (b) ensure a continuous ow of orders to
the Bagobo communities, (c) provide the impetus for the
various players to work closely with each other, and (d)
encourage the upgrading and optimization of the value
chain by triggering market demand. Project interventions
are currently directed towards traders and processors.
The SDCAsia program actively brokered the rst
supplier agreement between the community enterprise
and the processor to show the viability of partnerships,
overcome historical distrust, and spark the rst signicant
orders (and thus motivate business development training,
which the majority of processors had never undergone).
The delivery of specic services such as production pro-
cesses training and quality control by the processor was
also included in the partnership agreement.
Making the rst marketing agreement work meant
that the project team had to accept responsibilities passed
on to it by both parties (e.g., ensuring delivery and pay-
ment), which included lling the skills gaps of relevant
parties. This phase of the project gave the team the op-
portunity to learn more about kaong trade, although it
felt that its role of lling up weaknesses of both parties
was unsuitable for sustainable operations.
Although the project successfully achieved its short-
term objective of improving semi-processing skills and
higher prices for semi-processed kaong, it became evident
that the capacity of kaong processors to deliver business
development services (BDS) to communities was insuf-
cient to improve the market position of the semi-proces-
sors. Linkage and close partnership with a mainstream
business can jumpstart the development process, reduce
the costs of bringing the products to the markets and
act as a catalyst in improving the efciency of the sup-
ply chain (at the community level). But linkages alone
and the BDS provided by buyers are not enough to bring
enterprises into the mainstream market. Often times
the main prerequisite for a subcontracting agreement is
for potential subcontractors to have a certain acceptable
performance level. As such, the project team found it
necessary to: a) develop a range of services with market
requirements as the starting point that will address the
gaps; and b) build the indigenous capacity to provide and
deliver the BDS by themselves, particularly those that
relate to skills that affect improvements in the commu-
nity level supply chain, and consequently, enable them to
meet market requirements.
In addition to skills constraints, the project sud-
denly faced stagnant markets in Mindanao (the principal
market of the processor) due to bombings in Davao
City and nearby provinces. With the unstable peace and
order activities, commerce signicantly slowed down.
Fortunately, the project was already in discussion with a
Manila distributor which facilitated continuous sales for
the Davao processor and consequently the indigenous
communities.
The project then shifted to concentrate on build-
ing up a BDS system in the Babogo communities and,
consequently, strengthen their market position. The BDS
system builds on existing trade/marketing structure to
facilitate the ow of BDS to all players in the community
supply chain. Under the system, marketing intermediar-
ies at every level are tapped and trained to handle typical
technical and business concerns of microenterprises. In
the kaong communities, for instance, the contractors
provide market-based quality specications as well as
share some technical and market info to the central buy-
ing agent in the community. The central buying agent
Bridging the Gaps in the Kaong Subsector 7
then shares these with the pool of trainors
2
from the
cooperative. The cooperative organizes the training for
the microenterprises (members and non-members) and
also operates the common service cum marketing facili-
ties. Training sessions are conducted both in the common
service facilities center and in the place of the barangay
assemblers. The sessions also became forums to discuss
and nd solutions to common concerns and potential
market opportunities. Coaching and mentoring services
and quality control services are provided by the barangay
assemblers
3
to their group of suppliers and the transpor-
tation group. In other words, the BDS delivery system
follows the ow of the products. Knowledge and skills
upgrading forms of BDS and marketing service are paid
via mark-ups while tangible services (e.g., use of common
service facilities, raw materials) are paid in cash with vari-
ous payment schemes.
The project team also adopted a passive role in bro-
kering transactions. Market development activities thus
focused on promoting product quality and food safety
by making buyers aware of the positive changes imple-
mented by communities, providing opportunities (formal
and informal) for the different players to interact with
each other and supporting the participation of processors
to marketing events.
To date, the shift in activities appears to be working
well. Linkages induced by market forces are becoming
more spontaneous. More buyers are coming to the kaong
market in Davao del Sur, including buyers from Manila.
The main role of the program is now to track the prog-
ress of orders and negotiations between buyers and the
communities, including discussions of new issues and
constraints. Processors provide the program with feed-
back on their transactions, which is used as the basis for
capacity building for the intermediaries. Intermediaries
also discuss the problems they have encountered with the
project team, which provides them assistance in dening
solutions and developing new opportunities.
Market relationships facilitated by the SDCAsia
project have not yet reached the point where the differ-
ent parties can discuss relationship issues and constraints
openly with each other. However, a certain degree of
openness has been established.
The entry of more buyers both from Davao and
Manila has provided the Bagobo communities more
choices, and hence, more power in the market. Commu-
nity intermediaries must now learn to use this power in
a positive way, i.e., to create long-term, win-win transac-
tions, ethical trading relationships, customer loyalty, and
customer retention.
Competitive forces (i.e., additional buyers) are
enabling traders to offer better terms and conditions
to semi-processors, as well as to upgrade their role and
function (e.g., pick-up of products at buying stations,
packaging materials, market info, assistance in opening
bank accounts, etc), thus improving the efciency of the
supply chain. Similarly, processors or their buying agents
are offering relatively better prices to traders, as well as
added services (e.g., assistance in opening bank accounts,
cash payments, pick-up of products at buying stations,
etc.). It has been observed that trader loyalty is stronger
to processors who offer additional services.
Strengthening Supply-chain Governance
Many of the trust issues between traders and semi-
processors can be traced to the lack of product standards.
At the beginning of the project, for instance, pricing was
said to be set arbitrarily. Processors claimed that prod-
ucts produced by the Bagobo communities were of poor
quality and required additional re-processing. The main
problem was that quality standards were subjective. At the
start of the program, the Bagabo communities believed
that they were producing products of acceptable quality,
a position which, based on local norms, could be con-
sidered correct. To address many trust and transparency
issues as well as to facilitate the development of product
differentiation the project team facilitated the strengthen-
ing of supply-chain governance by:
strengthening horizontal linkages (identifying and
facilitating commitment to common objectives)
establishing process and product quality standards.
The standards and norms were set by key players in
the community that were trained by specialists, with
input from buyers.
promoting the benets of meeting quality standards
among the different players. This campaign was
primarily directed at barangay assemblers since they
are the nearest to suppliers in terms of location and
inuence.
2
Consist of fruit processors and barangay assemblers
3
They collect the semi-processed kaong from their group of suppliers and deliver these to the cooperative
IGP-BDS Learning Network Case Study #6 8
strengthening the capacity of marketing intermediar-
ies in good manufacturing processes and quality-con-
trol processes
developing and ensuring the access of different
players to BDS services that enable them to match
market requirements with quality standards
promoting compliance with product standards via
marketing intermediaries at various levels. This
process depended to a great extent on a strong chain
leader in the community (i.e., a community-based
buying agent who was well-respected by the semi-
processors). The explicit acceptance of the chain
leader was very important in facilitating supply chain
collaboration.
The effectiveness of collaboration among supply
chain actors at the community level, as well as their
consequent collective adherence to product standards de-
pends on shared goals and mutual interests. The program
therefore offered organizational development support and
conducted social marketing campaigns. However, the best
trigger for closer collaboration and cooperation has been
the pursuit of markets outside the locality.
At present, a clear concept of good-quality product
vis--vis an unacceptable product (rejects) is recog-
nized by buyers and semi-processors. The traders and the
Bagobo communities have started to realize the rewards
of managing performance and quality along their sup-
ply chain. As one trader puts it, 90 percent of the time
traders only accept and pay for clean seeds that have been
pre-processed well. Sometimes, however, the buyer relents
and accepts discolored, poor-quality kaong in consider-
ation of the farmers effort. It would be uncharitable to
turn them away after they have carried kilos and kilos of
seeds on their back or head for hours, the trader ex-
plained. I just tell them how to do it better and make
sure they understand that next time, I wont accept poor-
quality seeds.
The trader added that she also requires farmers who
bring their kaong to the buying stations to attend good
manufacturing practices (GMP) training, especially
when their kaong are substandard. One time, almost half
of the 100 kilos she collected at one buying station were
of poor quality. She immediately tasked community-
based trainers to conduct a GMP training there. After
some time, the GMP sessions bore fruit. The percentage
of substandard kaong was eventually reduced to 5 kilos,
or about 5 percent, of the total kaong collected.
Lessons Learned
The SDCAsia project offers the following lessons
learned:
The best way to convince mainstream businesses to
work with indigenous communities and microen-
terprises is to present proof that production systems
and practices, including product quality and volume,
have improved. As soon as the Bagobo communi-
ties became known for highquality, semi-processed
products and the capacity to produce required
volumes of consistent quality, contractors began to
approach the communities without much facilitation
on the part of the project team.
Market relationships must offer tangible benets to
all involved, thus creating an incentive for continued
participation and maintenance.
Facilitating supply-chain governance and continu-
ous dialogue among all parties ensures that mutual
objectives of the supply alliance are met and that no
one member attempts to benet at the expense of the
others. Third-party facilitation during the formative
stages of relationships helps build trust by ensuring
that information pertinent to the parties involved is
exchanged.
Facilitating win-win relationships entails in-depth
understanding of the nature of the value chain and
markets important to resource-poor enterprises, their
structure, the different stakeholders involved, their
institutions, their dynamics, and the way in which
the poor are currently served by these markets.
It is important to facilitate the process of building
market relationships and not engage in core market
activities. The facilitator of the project should not be
viewed as the ever-ready savior of these relation-
ships. However, the facilitator must be exible and
should help the parties nd solutions to the problems
that arise.
Bridging the Gaps in the Kaong Subsector 9
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