Research Papers

Household wellbeing in rural Papua New Guinea: Poverty analysis from the 2023 PNG Rural Household Survey

This analysis provides the first poverty assessment using the cost of basic needs approach in Papua New Guinea in 1.5 decades. The cost of basic needs poverty methodology is the standard approach to estimating poverty in low- and middle-income countries. It aims to reflect the cost of a food basket and nonfood needs to secure a healthy life and minimum standard of living. Using the cost of basic needs approach, we calculate and compare two poverty measurements. First, we compute a standard (traditional) cost of basic needs poverty line where the food poverty line is defined by a dietary energy (calorie) threshold. Second, we extend the standard cost of basic needs approach to calculate a healthy diet food poverty line that meets both the dietary energy threshold, as well as recommended nutrition targets.

Results suggest that 43 percent of sample individuals live below the standard cost of basic needs poverty line. When recalculating the poverty line to account for a healthy diet threshold (a mix of food groups set at quantities consistent with dietary guidelines), we find that 64 percent of the sample is below the healthy diet poverty line. On average, households within the survey sample over-consume the recommended daily quantity of staples and fats, however daily consumption of vegetables, fruits, and protein-rich foods (e.g., fish, meat, nuts) fall short of recommended targets.

The above poverty analysis begs the question of what characteristics are associated with higher income earning households (we use per capita consumption-expenditure as the rural income proxy). Regression analysis suggests that greater production assets (land and labor), education, market access, and income diversification (via non-farm businesses and migrant remittances) are associated with higher household incomes. While we hypothesized that households engaged in cash crop sales (i.e. cocoa, coffee, betelnut, horticulture) would be significantly better off, we find that only cocoa farming households have significantly higher incomes.

The regression analysis reveals that facilitated access to a market is one of the most important indicators explaining per capita consumption-expenditure (i.e. income per person). Households that are more than 4 hours from a market have about 25 percent less income compared to households that are within 2 hours from a market. Conversely, households that report owning a small business (non-farm enterprise) are associated with approximately 25 percent greater consumption-expenditure per capita. While market access and income diversification are important to household incomes, weather shocks such as floods are associated with significant declines (8 percent) in per capita consumption-expenditure. Given the above results, a pilot social safety net program in more remote (greater than 4 hours from a market) and flood prone areas, where household incomes are significantly lower, may provide important insights on the most efficient mechanisms to build resilience among PNG’s vulnerable population. Including a community asset building component (e.g., building and maintenance of rural feeder roads and bridges) in the social safety net program could be tested to understand how best to support rural-urban market linkages and incentivize off-farm employment.

Understanding that a social safety net program requires significant resourcing (including financial, logistics and time), there are other opportunities to improve rural welfare within the country. Facilitating remittance transfers from migrants to rural households via electronic banking services and easing banking costs for rural households may increase remittance payments. In addition, facilitating access to primary education via reduced school fees and increasing school attendance via school feeding programs could provide greater income earning opportunities for better educated households, as well as (if designed properly) fill some of the nutrition gaps demonstrated by the large share of individuals that live under the healthy diet poverty line presented in this paper.

‘Gold runs through these trees’: Preferences for ecosystems payment programs in Papua New Guinea

Payment for Ecosystem Services (PES) programs (such as REDD+ and voluntary carbon credit programs) have been designed to provide improved forest governance, reduced carbon emissions and diversified income sources for forest communities. However, recent evaluations of REDD+ projects across diverse countries have shown mixed results. In 2022, the government of Papua New Guinea put a moratorium on voluntary carbon credit programs due to inadequately specified processes on contract design and targeting, resulting in ongoing deforestation and lack of transparent remuneration in participating communities under select programs. As the country reassesses how to engage in voluntary carbon credit programs, this study aims to inform the design of PES programs tailored to meet the needs of forest landholders. Using recently collected rural household survey data, we evaluate the unique characteristics that are correlated with forest-owning households’ likelihood of accepting a PES contract. The discrete choice experiments included in the survey, and complementary focus group discussions suggest that forest landholders prefer PES contracts with higher financial incentives and lower land area commitments, requiring an additional $39.07 per hectare per year to preserve all forested land compared to committing half of their forested land to a PES contract. Other factors, such as household size, the use of forest land for timber production and commercial logging, ongoing forest preservation activities within a community and market access also influence respondents’ preferences for PES contracts.

Poultry value chain and cluster development in Papua New Guinea: Insights from a recent field study

Despite poultry being lauded as a relatively affordable source of protein and micronutrients in many lower-income countries, chicken meat is twice as expensive in PNG compared to nearby Southeast Asian countries. Recent rural household consumption data collected by the International Food Policy Research Institute (IFPRI) suggests that an important share of households do not eat enough protein to meet healthy dietary guidelines (Schmidt et al., 2024). Poultry, along with fish and pork, are the three most important animal-source protein foods in the country, yet these products remain financially prohibitive to a large share of the population.

This paper explores the unique challenges and opportunities within PNG’s poultry sector using a "growth diagnostic" approach (pioneered by Rodrik, 2010). Through interviews with key stakeholders across the poultry value chain, we found that while high feed costs persist as a significant challenge, poultry farmers have yet to adopt additional cost-reduction strategies, such as establishing small-scale regional feed mills, utilizing local feed ingredients, and diversifying feed and input imports. An intriguing puzzle of PNG’s poultry sector is the limited number of small-scale producers successfully transitioning to medium-scale operations. This primarily stems from high transport costs and restricted access to input and sales markets. The challenges of marketing chicken in PNG have received less attention than production. Drawing on the experiences of successful models in other countries and considering the specific situation of PNG's poultry sector, fostering poultry production and processing clusters (e.g., in Lae suburban areas) emerges as a potential strategy to address production, transportation, and marketing constraints. By concentrating production, value chain clustering can enhance access to essential services (e.g. slaughtering and cold storage), improve market access, and reduce overall costs. While clustering holds promise for PNG’s poultry value chain, its success hinges upon joint action between the public and private sectors, as well as NGOs operating within the value chain.

The agrifood system in PNG: Structure and drivers of transformation

Although the economy of Papua New Guinea is heavily influenced by the oil and natural gas sector, which accounts for 30 percent of GDP and most of the country’s foreign exchange earnings, small-scale agriculture continues to be the major source of livelihoods for most of the population. Much of the food crop production (particularly starchy staples such as sweet potatoes, cassava, yams and sago) is not traded internationally; however, oil palm, coffee and cocoa are major exports. A large share of agricultural production undergoes little value-added through processing and much of it is consumed by farm households themselves. Thus, there would appear to be substantial scope for increases in employment and incomes through further development of the broader agrifood system, including agroprocessing, trade and transport, and food services.

Subsistence farming typically dominates agriculture during the earliest stages of development; as agricultural productivity rises; however, farmers start to supply surplus production to markets, thus creating job opportunities for workers in the nonfarm economy both within and outside of agrifood sectors (Haggblade, Hazell, and Dorosh 2007). Rising rural incomes generate demand for more diverse products, leading to more processing, packaging, transporting, trading, and other nonfarm activities. In the early stages of agricultural transformation, the agriculture sector serves as an engine of rural and national economic growth. Eventually, urbanization, the nonfarm economy, and nonagricultural incomes play more dominant roles in propelling agrifood system development, with urban and rural nonfarm consumers creating most of the demand for agricultural outputs via value chains connecting rural areas to towns and cities (Dorosh and Thurlow 2013). The exact nature of this transformation process varies across countries because of the diverse structure of their economies and the unique growth trajectories of their various agrifood and nonfood subsectors.

This paper describes the current and changing structure of PNG’s agrifood system (AFS) and evaluates the potential contribution of different value chains to accelerate agricultural transformation and inclusiveness. We start by offering a simple conceptual framework of the AFS and then compare PNG’s AFS to that of other countries at different stages of development. We go on to disaggregate PNG’s AFS across agricultural value chains, taking into consideration their different market structures and historical contribution to economic growth and transformation. Finally, we use a forward-looking economywide model to assess the diverse contributions that specific value chains can make to each of a set of broad development outcomes. We conclude by summarizing our main findings.

The impacts of production and price shocks on the coffee industry in PNG

Coffee is one of Papua New Guinea’s leading agricultural export in value terms, accounting for 156 million USD of export earnings in 2021 (FAOSTAT, 2023), 13 percent of agricultural export revenues and 1.4 percent of total export revenues. The coffee industry is a major source of income for some 2.5 million people, mainly in farm households, and is cultivated in 17 out of 22 provinces (ACIAR, 2021). Coffee exports and incomes are threatened, however, by a number of supply side factors such as ageing coffee trees, outbreaks of coffee berry borer, poor production practices and challenges in reaching markets (i.e. transport and post-harvest handling), as well as by demand-side fluctuations in the world price of coffee (World Bank, 2022; Dorum et al., 2023). This research note first presents an overview of PNG’s coffee sector, including a discussion of production trends and structure of the coffee value chain. We then utilize a simple partial equilibrium model of coffee supply and demand, along with data on coffee production and household consumption from the PNG Household Income and Expenditure Survey (HIES) of 2009/10, FAOSTAT and the World Bank, to simulate the impacts of potential production and price shocks on the coffee industry in Papua New Guinea (PNG). Finally, we present an analysis of price movements in recent years and the potential costs and benefits of a price stabilization policy for coffee producers.

Constraints facing rural poultry production in PNG: The role of input suppliers

Context: The average consumption of protein foods in Papua New Guinea (PNG) remains insufficient to meet nutritious diet guidelines, especially in rural areas. While an expanding literature has demonstrated that poultry is a cost-efficient animal source food to increase protein intake, rural households in PNG face high prices at the market for poultry meat. Similarly, the high price of poultry production inputs constrains greater uptake of rural poultry production. PNG’s heavy reliance on feed (and feed input) imports, as well as high transportation costs and insufficient rural manufacturing and processing infrastructure creates limited opportunities for rural subsistence and commercial poultry production growth. Objective: There is a lack of value chain studies to understand the feasibility of expanding the local mini livestock feed mill model in PNG to increase poultry feed supply in underserved areas. This study builds from earlier work on rural livestock feed infrastructure programs, and aims to fill the knowledge gap on the opportunities and constraints for expanding domestic livestock feed production and distribution via rural mini feed mills. Method: The International Food Policy Research Institute (IFPRI) and the National Agriculture Research Institute (NARI) conducted in-depth qualitative interviews with 8 mini mills and 13 poultry farmers across 4 highland provinces during October and November 2022. We synthesize the interview transcriptions of the qualitative interviews in tandem with quantitative analysis of food consumption and agri-food trade data, as well as the authors’ own field observations in this paper. Results: The in-depth interviews showed that the poultry farmers who purchased from local mini feed mills substantially lowered their feed costs, resulting in greater gross profits compared to rural poultry farmers that only sourced feed from commercial feed suppliers. However, the mini feed mills that we interviewed outlined a series of challenges in sustaining rural feed mills in PNG. The main challenges of running a successful mill included feed mill equipment procurement, electricity reliability, reliable raw ingredient supply, mini mill retailing to secure a client base, and adequate information about feed formulation. We identified two potential approaches that have overcome many of the identified challenges, that could be replicated and adapted to expand mini feed mill operations in the Highlands. The first approach is a farmer cooperative model that incorporates credit and feed delivery services to cooperative farmers. In doing so, they are able to better estimate volume demand for processed feed and accommodate feed production accordingly. The second approach follows a lead firm model, whereby a local farm supply retail outlet is expanding its business to include livestock feed production and supply, overcoming equipment procurement constraints given their previously developed business model focused on farm implement supply. Our evaluation provides detailed costs and benefits of both approaches for potential expansion of these livestock feed producer and distributor models.

Improving agricultural value chain coordination and gender inclusiveness in PNG

The welfare of Papua New Guinea’s (PNG’s) population depends on domestic agriculture productivity and stability. As of 2019, value-added from the agriculture, forestry, and fishing sectors totaled approximately 17 percent of GDP. However, when considering the downstream value chain activities directly related to the agriculture sector (e.g., agriculture processing, domestic food trade and transportation, and domestic food commodity sales), the larger agri-food system in PNG contributes over 25 percent to the country’s overall GDP (Pradesha and Dorosh, 2022). Maximizing efficiency throughout the entire agri-food value chain is critical to fostering greater economic growth and poverty reduction within the country. Growing a globally competitive agriculture sector also demands investments and capacity strengthening in mid-stream value chain operations such as product aggregation, transport logistics, packaging and processing, and handling. It is important that these investments also promote inclusive development that benefits both men and women value chain actors. Previous research suggests that where women are economically empowered and have access to decent jobs in lucrative nodes (i.e., activities) of value chains, households have higher incomes and are less likely to be poor (FAO, 2011). In PNG, despite women’s greater share of employment in agriculture (60 and 52 percent of women and men work in agriculture, respectively), women participate less in higher-value agricultural production and trade activities (Chang et al., 2016; Omot, Chambers, and Spriggs, 2013; World Bank, 2022).

Rural household welfare in Papua New Guinea: Food security and nutrition challenges

Papua New Guinea continues to encourage a policy focus on food and nutrition security. The PNG National Nutrition Policy (2016-2026) and Nutrition Strategic Action Plan (2018-2022) (NSAP) set a path to improve coordination, secure sufficient funding, and improve technical capacity of nutrition-focused pro gram implementation. As policy prioritizes improved nutrition outcomes, it is important to understand the cost that households face of securing a higher level of nutrition. Ensuring a healthy diet that meets nutrition standards is relatively expensive in PNG. The analysis presented in this paper, which uses detailed household food and non-food consumption data suggests that 4/5 of households in the survey sample live below the healthy diet poverty line (which sets a calorie threshold and defines healthy diet nutrition targets). That is, these households do not have the income available (or do not consume sufficient food and non-food goods) to meet their basic needs which includes securing a nutritious diet that meets food based die tary guidelines.

Implications of public investments and external shocks on agriculture, economic growth and poverty in Papua New Guinea: An economywide analysis

Policymakers in Papua New Guinea face difficult choices as to how best to promote economic growth and reduce poverty in the context of vast differences in technology and infrastructure across the country. Fluctuations in world prices of petroleum, minerals, and export crops complicate the management of the economy because of their large impacts on export earnings and government revenues, as well as household welfare. Moreover, other shocks, such as the Covid-19 pandemic that shut down major parts of the economies of PNG and the rest of the world, have far-reaching effects on various economic sectors, as well as the health and welfare of the population. This paper presents an analysis of investment options in the agricultural sector and the effects of major economic shocks to the PNG economy using an economy-wide computable general equilibrium (CGE) model that provides estimates of the economic linkages between production, household incomes, consumption, investment, and trade. The model’s base data, a Social Accounting Matrix (SAM) for 2019, and many of the parameters are derived from the national accounts, household surveys and other data for PNG. It is important to realize, however, that even though the SAM and model structure provide a framework that guarantees a consistency of many of the assumptions, there remain many uncertainties in the data. Thus, the results presented here should not be interpreted as exact estimates, but only approximations of potential effects of policies and external shocks. The plan of this paper is as follows. Chapter 2 provides an overview of agriculture and economic growth in PNG over the last two decades, highlighting the declining share of agriculture in GDP despite positive agricultural GDP growth rates and changes in the real exchange rate that have major implications for incentives in the economy. Chapter 3 then presents a summary of the economy-wide model used in the analysis. Details of the model are found in the annexes and in the references included in the paper. Design of the model simulations and model results are discussed in Chapter 4. These simulations cover various investments in agriculture and transport infrastructure, increases in world prices of petroleum and natural gas, price increases for agricultural exports and hypothetical carbon credits tied to a reduction in exports of forestry products. Chapter 5 concludes with a summary of the main findings, policy implications and suggested areas for further work.

Improving agricultural productivity in Papua New Guinea: Strategic and policy considerations

If smallholder farming households in Papua New Guinea achieve higher crop productivity levels, progress will be made along several dimensions of the development vision for PNG – increasing GDP for the agricultural sector and the overall economy; driving growth, diversification, and transformation of local rural economies; improving food consumption; and reducing poverty. In this paper, we examine recent data on yields for the most important crops grown in PNG, assess what yields might be achieved based on productivity data from areas of Indonesia with similar growing conditions, and sketch where policy reforms could provide incentives and access to technologies to achieve higher crop yields by all farmers across PNG.

Papua New Guinea agri-food trade trends: Dietary change and obesity

The onset of the COVID-19 pandemic has presented a unique challenge to governments across the globe, reinforcing the need to improve understanding of domestic and international trade trends to provide more informed options for response. During the last several months, IFPRI has been analyzing a variety of Papua New Guinea (PNG) national and global datasets with the goal of expanding analytical tools to evaluate potential production shortfalls and food price shocks, and their associated impacts on household food security and livelihoods. This research focuses on agri-food import and export trends during the last two decades to better evaluate potential changes in related import demand and export potential in PNG. In doing so, this research informs an upcoming economy-wide multi market model analysis that will model a variety of potential shocks to household welfare to identify policies to manage potential ensuing food security threats. PNG’s growth in international agri-food trade (both export and import) will continue to be important to overall food security outcomes among rural and urban households. Rural households that produce key export cash-crops (e.g., coffee, cocoa, palm oil) depend on the cash economy to supplement overall food consumption, while urban households depend on rice and other agri-food imports (as well as domestic goods) for consumption. Agri-food imports are also contributing to important increases in the availability of protein-dense foods, with the value of poultry imports growing, on average, 30 percent per capita per year from 2001 – 2016. Although PNG’s agri-food import data suggest a greater demand for higher value food items such as animal-sourced foods, the total import value of ultra-processed foods, such as sugary drinks, are also increasing rapidly within PNG. The profitability and growth of agricultural exports and imports are driven by several factors, including levels of public investment in infrastructure, weather and climate shocks, security and political stability, and conditions in the world market. Government economic policies, including exchange rate, trade and price policies, also heavily influence agricultural trade. to promote and facilitate domestic movement of goods, as well as macro-economic policies that influence the relative price of tradable to non-tradable goods (the real exchange rate) should be managed appropriately to support and incentivize greater agri-food production and trade. These policies could also be paired with an expanded set of education programs that integrate nutrition-sensitive information to address current increases in demand and consumption of high-saturated and sugary processed goods, of which total import values are rapidly increasing in PNG. Finally, a greater portfolio of organized databases, analytical tools and resources are warranted to facilitate real-time analysis that can inform key development investments and initiatives.

Effects of COVID-19 and other shocks on Papua New Guinea’s food economy: A multi-market simulation analysis

Understanding how the Papua New Guinea (PNG) agricultural economy and associated household consumption is affected by climate, market and other shocks requires attention to linkages and substitution effects across various products and the markets in which they are traded. In this study, we use a multi-market simulation model of the PNG food economy that explicitly includes production, consumption, external trade and prices of key agricultural commodities to quantify the likely impacts of a set of potential shocks on household welfare and food security in PNG. In this study, we use a multi-market simulation model of the PNG food economy that explicitly includes production, consumption, external trade and prices of key agricultural commodities to quantify the likely impacts of a set of potential shocks on household welfare and food security in PNG. We have built the model to be flexible in order to explore different potential scenarios and then identify where and how households are most affected by an unexpected shock. The model is designed using region and country-level data sources that inform the structure of the PNG food economy, allowing for a data-driven evaluation of potential impacts on agricultural production, food prices, and food consumption. Thus, as PNG confronts different unexpected challenges within its agricultural economy, the model presented in this paper can be adapted to evaluate the potential impact and necessary response by geographic region of an unexpected economic shock on the food economy of the country. We present ten simulations modeling the effects of various shocks on PNG’s economy. The first group of scenarios consider the effects of shocks to production of specific agricultural commodities including: 1) a decrease on maize and sorghum output due to Fall Armyworm; 2) reduction in pig production due to a potential outbreak of African Swine Fever; 3) decline in sweet potato production similar to the 2015/16 El Niño Southern Oscillation (ENSO) climate shock; and 4) a decline in poultry production due to COVID-19 restrictions on domestic mobility and trade. A synopsis of this report, which focuses on the COVID-19 related shocks on the PNG economy is also available online (Diao et al., 2020).1 The second group of simulations focus on COVID-19-related changes in international prices, increased marketing costs in international and domestic trade, and reductions in urban incomes. We simulate a 1) 30 percent increase in the price of imported rice, 2) a 30 percent decrease in world prices for major PNG agricultural exports, 3) higher trade transaction costs due to restrictions on the movement of people (traders) and goods given social distancing measures of COVID-19, and 4) potential economic recession causing urban household income to fall by 10 percent. Finally, the last simulation considers the combined effect of all COVID-19 related shocks combining the above scenarios into a single simulation. A key result of the analysis is that urban households, especially the urban poor, are particularly vulnerable to shocks related to the Covid-19 pandemic. Lower economic activity in urban areas (assumed to reduce urban non-agricultural incomes by 10 percent), increases in marketing costs due to domestic trade disruptions, and 30 percent higher imported rice prices combine to lower urban incomes by almost 15 percent for both poor and non-poor urban households. Urban poor households, however, suffer the largest drop in calorie consumption - 19.8 percent, compared to a 15.8 percent decline for urban non-poor households. Rural households are much less affected by the Covid-19 related shocks modeled in these simulations. Rural household incomes, affected mainly by reduced urban demand and market disruptions, fall by only about four percent. Nonetheless, calorie consumption for the rural poor and non-poor falls by 5.5 and 4.2 percent, respectively.

How do perceptions of relative poverty affect women's empowerment? Evidence from Papua New Guinea

How do perceptions of one’s relative economic status affect gender attitudes, including support for women’s economic participation and involvement in decision-making? We conducted a 2018 survey experiment with female and male adults in approximately 1,000 households in Papua New Guinea. Employing an established survey treatment to subtly alter respondents’ perception of their relative economic well-being, we find that increased feelings of relative poverty make both men and women significantly more likely to support girls’ schooling and women’s paid employment, suggesting that relative economic insecurity can prompt support for women’s economic participation. However, increased feelings of relative poverty may trigger greater intra-household tension. While increased perceptions of relative poverty cause women to want more household decision-making authority, men’s attitudes toward women’s roles in decision-making are unchanged. Results underscore the complicated nature of gender attitudes, and how support for women’s economic participation may rise without simultaneous increases in women’s agency in decision-making.

Poverty prevalence and correlates of household expenditure in four lowland areas of rural Papua New Guinea

The lack of data on rural household production systems and economic conditions in Papua New Guinea (PNG) has impeded efforts to inform development initiatives for the last decade. In 2015/16, a severe El Niño event decimated local crop production and underscored the lack of current data and analysis of PNG’s rural population. This paper presents recently collected data from a rural household survey in PNG, including detailed consumption and expenditure data, to explore poverty prevalence and vulnerability in selected rural areas. In doing so, we evaluate food production and consumption patterns within the survey areas and calculate area-specific poverty lines. In addition, we explore correlates of household consumption expenditure. Results suggest that approximately half of the survey sample have total consumption expenditure below the poverty line. When evaluating calorie consumption by food groups, we find that the rural diet is heavily dependent on starchy foods and a large share of the sample has insufficient protein intake per capita. Further evaluation of the correlates of household expenditure suggest four potential policy initiatives to explore further as conduits to improving overall welfare: 1) identify measures to increase agricultural production and improve resilience to climate shocks; 2) increase investments in education; 3) seek opportunities to enhance migration out of rural areas and 4) reduce the number of household dependents. Given that approximately 80 percent of the population in PNG is dependent on rain-fed, subsistence agriculture, rural data collection and analysis to inform policy priorities and development investments are critical to ensure economic viability and food security. This paper presents the most recent poverty analysis in PNG in nearly a decade and a renewed effort to better inform development priorities for the country’s rural population.

Papua New Guinea survey report: Rural household survey on food systems

Between May and July 2018, the International Food Policy Research Institute (IFPRI) implemented a household-level survey in four areas of PNG: the Autonomous Region of Bougainville (South Bougainville near Buin), Madang (Middle Ramu near Kwanga Station), East Sepik (near Maprik) and West Sepik (near Nuku). The survey investigated the food systems of rural households and how they assure sufficient food to meet the nutritional needs of their household members. The household questionnaire for the survey focused on agricultural production systems and health outcomes and included modules on: production; consumption and expenditure; labor activities (farm and non-farm); nutritional status; and the experience of the survey households with recent agricultural production or other shocks that impacted their livelihoods. This report provides descriptive results from the survey and discusses key indicators and actions to improve agricultural systems and nutrition in PNG.