Namibia Berries: Regulatory Mediation in Agriculture – The Bee Industry Conflict

Background and Challenge

Although the crop sector plays a critical role in Namibia's economy, it lacks a key enabler, bees. Bees are essential for pollination, a process vital to crop productivity. For the 2025 pollination season, Namibia Berries required approximately 700 beehives. However, the local beekeeping community was only able to provide fewer than 200 hives, covering just 28.57% of the total requirement.

As a result, Namibia Berries approached the NIPDB to facilitate the importation of bees from South Africa to meet the shortfall. The Ministry of Agriculture, Fisheries, Water and Land Reform (MAFWLR) issued an import permit in accordance with World Health Organization (WHO) guidelines and the provisions under animal health regulations. 

However, local beekeepers expressed strong opposition to importing bees from South Africa due to concerns about Apis mellifera capensis. While not a disease, this genetic variant of the honeybee can cause significant harm to local colonies and pose a serious threat to Namibia’s beekeeping industry.

In light of these challenges, a meeting was held between the Namibian beekeepers, relevant stakeholders and the NIPDB to discuss strategies for developing the domestic beekeeping sector. It was concluded that a key obstacle is the lack of a comprehensive legislative framework to govern the aspect of production in the beekeeping sector. While the sector is partially regulated under the Forest Act No. 12 of 2001 (Section 25) and the Animal Health Act No. 1 of 2011, there is currently no legislation specifically addressing bee production. This legislative gap continues to hinder the formal establishment and growth of the sector especially as the local bee industry seem not to identify the competent authority with whom they can collaborate to develop strategies aimed at resolving the challenges faced in growing the industry. Both MAFWLR and MEFT only address a portion of the mandate.

Benefits or potential negative consequences to Namibia

The dispute revealed two main challenges which are i) a broader regulatory gap in the apiculture sector hindering the growth of this critical sector; and ii) the risk of reputational damage as well as loss of investment and jobs if investor challenges were not managed. Pollination services are critical for horticultural productivity and food security. Failure to address the issue constructively risked slowing agricultural innovation and creating legal disputes and the ultimate halt of further production, resulting in reduction or potential loss of jobs. Without resolving this challenge in the long term, the government's aspirations for a flourishing agricultural sector, creating mass sustainable jobs, reducing imports and providing food security will be frustrated.

NIPDB’s Intervention

The NIPDB arranged a meeting to mediate between BBN, Namibia Beekeepers Association, MEFT and MAFWLR. At the meeting each party explained their needs and requirements. The meeting helped explain the legal context that bees cannot be imported from South Africa due to failure for them to track migration and disease of bees. At this NIPDB-hosted a multi-stakeholder dialogue, the parties further explored the long-term development for apiculture and the need for Namibia to grow a sustainable industry as it is done by other countries in Africa. It also used public awareness campaigns during World Bee Day to highlight the role of bees and stimulate local hive production. Finally, NIPDB made a public call for local bee hive producers to supply the urgently needed hives to BBN if any. Consequently, in the short term, Namibia Berries initiated discussions with Israel as an alternative source for bee supply.

Outcome

The open and transparent dialogue helped the investor understand the national interest behind the decision to place conditions on importing bees which South Africa could not meet. The investor appreciated the transparency and clarity provided. Although they did not obtain the import permit for South Africa and now have to import from a more expensive source, the investor acknowledged the fairness of the process and the professionalism shown by the regulators. This helped avoid what could have easily escalated into a legal dispute.

This broader stakeholder engagement further laid the foundation for the longer-term development of Namibia’s apiculture sector. BBN has since committed to working within local constraints while supporting skills transfer and other required support to develop and grow the apiculture industry, in the long run. The NIPDB, together with BBN, issued a public call for expressions of interest from local beekeepers to collaborate on pollination supply, skills transfer, and hive management initiatives. To resolve short term challenges, the call specifically invites Namibian beekeepers with five or more active hives to lease their hives during the upcoming pollination season at the Divundu-based project in Kavango East. In fact a significant business opportunity now exists for MSMEs who can respond to this call as the demand for bees will continue to grow over the next few years.