TANZANIA'S DUAL STRATEGY APPROACH

A Blueprint for Universal Clean Cooking Access by 2031 and Beyond

How the National Charcoal Strategy and National Clean Cooking Strategy Create a

Comprehensive Pathway to Clean Energy Transition

By TaTEDO SESO

INTRODUCTION

Tanzania is charting an ambitious yet pragmatic course toward universal access to clean cooking solutions through an innovative dual-strategy approach that acknowledges both the realities of current energy use and the imperative for transformation. With the launch of the National Charcoal Strategy and Action Plan (2021-2031) by the Ministry of Natural Resources and Tourism and the National Clean Cooking Strategy (2024-2034) by the Ministry of Energy, Tanzania has created a comprehensive framework that addresses the full spectrum of cooking energy challenges facing the nation.

This integrated approach recognizes a fundamental truth: sustainable transformation requires managing both the present and the future simultaneously. Rather than viewing charcoal as simply a problem to eliminate, Tanzania's strategies treat it as a transitional resource that must be sustainably managed while accelerating the shift to cleaner alternatives.

 

THE DUAL CHALLENGE: SUSTAINABLE MANAGEMENT AND CLEAN TRANSITION

Tanzania's cooking energy landscape presents a complex challenge that defies simple solutions. Currently, more than 90% of households rely on biomass—primarily charcoal and firewood—for cooking and heating. Charcoal alone contributes 44.2% to the forest sector GDP, generates at least USD 1 billion annually in revenues, and provides livelihoods to hundreds of thousands of people across production, transportation, and trade value chains.

However, this heavy reliance comes at an enormous cost. Unsustainable charcoal production contributes to an annual deforestation rate of 469,420 hectares, with approximately 99% of charcoal produced from  natural forests using inefficient earth  kilns  that  achieve only  15% recovery rates. The government loses an estimated USD 100 million annually due to ineffective regulation and revenue collection, while communities face health impacts from cooking smoke and women bear the disproportionate burden of fuel collection.

THE NATIONAL CHARCOAL STRATEGY: MAKING THE PRESENT SUSTAINABLE

The National Charcoal Strategy and Action Plan (2021-2031) take a revolutionary approach by accepting that charcoal will remain a significant energy source for the foreseeable future and focus on making its production and use sustainable. Rather than criminalize the sector, the strategy seeks to formalize, regulate, and transform it.

Vision and Mission The strategy envisions "charcoal value chains in Tanzania become sustainable, economically viable, and environmentally sound while improving livelihoods," with a mission "to achieve sustainable charcoal value chains through provision of enabling environment and supportive services."

 

Key Strategic Objectives:

  1. Enhanced Sustainable Production and Utilization The strategy promotes establishment of forest plantations and woodlots specifically for charcoal production, increasing state-owned forest plantations from 1 to 3, community-owned plantations by 60,000 hectares, and private plantations by 50,000 hectares by June 2031. This shifts charcoal production away from natural forests to managed, renewable sources.
  2. Improved Production Technologies By promoting improved charcoal kilns with 25% efficiency (up from 15%), the strategy could reduce annual deforestation by 177,809 hectares. Technologies like the Improved Basic Earth Mound Kiln (IBEMK) and Half Orange Kiln can produce 2.5 kg of charcoal from 10 kg of wood, compared to only 1.5 kg with traditional methods.
  3. Alternative Charcoal Development The strategy promotes industrial production of briquettes from agricultural residues, forest waste, and other biomass, targeting a 10% increase in alternative charcoal utilization by institutions, households, and SMEs by 2031.
  4. Formalization and Revenue Collection Creating proper market infrastructure, registration systems for intermediaries, and electronic payment systems will increase revenue collection while reducing illegal trade that currently costs the government millions annually.
  5. Community-Based Forest Management (CBFM) Expanding CBFM from 2.7 million hectares to

16 million hectares by 2031 ensures communities benefit economically from sustainable charcoal production while protecting forest resources.

 

THE NATIONAL CLEAN COOKING STRATEGY: BUILDING THE FUTURE

The National Clean Cooking Strategy (2024-2034), developed in response to President Samia Suluhu Hassan's directive during the 2022 National Clean Cooking Conference, sets an ambitious target: ensuring 80% of Tanzanians use clean cooking solutions by 2034.

Vision and Mission The strategy envisions that "Every Tanzanian use clean cooking solutions to protect their health, environment, and improve livelihoods," with a mission to "ensure accessibility of affordable, sustainable, safe, and easy to use clean cooking solutions."

Key Strategic Thrusts:

  1. Awareness and Education Developing a National Communication Strategy and implementing awareness programs through multiple platforms—targeting women, youth, and schools—to build understanding of clean cooking benefits and reduce reliance on traditional biomass.
  2. Infrastructure Development: Strengthening infrastructure for multiple clean energy options: Expanding electricity access toward the national target of 85% connectivity - Developing natural gas distribution networks (currently serving 1,511 households) - Building LPG import, storage, and distribution capacity (consumption increased from 20,000 to 160,610 metric tons between 2010-2022) - Promoting biogas systems (targeting scale-up from current 12,000 household systems) - Supporting bioethanol development (UNIDO project targeting 500,000 households in Dar es Salaam)
  3. Affordability and Access Reducing costs through fiscal incentives, subsidies, innovative financing mechanisms including microfinance and pay-as-you-go systems, and exploring carbon credit opportunities through the Paris Agreement's Article 6 framework.
  4. Technology and Innovation Promoting research and development in clean cooking technologies, including efficient electric cooking (eCooking) appliances, improved cookstoves (ICS), and appropriate technologies for different contexts.
  5. Policy Harmonization Reviewing and aligning policies across sectors to eliminate contradictions—for example, reconciling forest revenue policies that depend on charcoal sales with clean cooking promotion objectives.

 

THE SYNERGIES: HOW THE STRATEGIES COMPLEMENT EACH OTHER

The true genius of Tanzania's approach lies in how these two strategies work together to create a comprehensive transition pathway:

  1. Bridging the Transition Period The Charcoal Strategy ensures that during the 10+ years required for clean cooking infrastructure to reach 80% coverage, the charcoal that continues to be used causes minimal environmental damage. This prevents a scenario where aspirational clean cooking goals leave communities dependent on unsustainable charcoal in the interim.
  2. Addressing Affordability Through Multiple Pathways While the Clean Cooking Strategy works to reduce costs of LPG, electricity, and biogas, the Charcoal Strategy improves efficiency of charcoal use through better stoves, reducing household energy expenditure even before full transition to clean alternatives.
  3. Protecting Livelihoods During Transition The Charcoal Strategy creates sustainable employment through plantation forestry and improved production, while the Clean Cooking Strategy identifies new economic opportunities in clean energy value chains. This "just transition" approach ensures communities currently dependent on charcoal aren't abandoned.
  4. Complementary Technology Approaches Both strategies promote alternative charcoal/biomass briquettes as an intermediate solution—cleaner than traditional charcoal but more accessible than LPG or electricity in some contexts. This creates a spectrum of solutions rather than a binary choice.
  5. Coordinated Governance The Charcoal Strategy establishes an inter-sectoral forum and national steering committee for coordination, while the Clean Cooking Strategy involves multiple ministries, ensuring these efforts are synchronized rather than working at cross-purposes.
  6. Revenue Generation for Clean Energy By formalizing charcoal value chains and improving revenue collection, the Charcoal Strategy potentially generates funds that can be reinvested in clean cooking infrastructure development—creating a financial bridge to the clean energy future.
  7. Dual Supply and Demand Interventions The Charcoal Strategy addresses sustainable supply of cooking fuel (through plantations and improved kilns), while the Clean Cooking Strategy addresses demand reduction (through alternatives) and behavior change (through awareness). Together they close the loop.

 

COMPLEMENTARY TARGETS TOWARD 2031 AND BEYOND The strategies set mutually reinforcing targets: By 2031:

- Clean Cooking Strategy: 80% of Tanzanians using clean cooking solutions (by 2034) - Charcoal Strategy: 50% sustainable charcoal production, 75% adoption of clean cooking solutions, 30% reduction in deforestation from charcoal

Production Improvements:

- Charcoal Strategy: Increase charcoal kiln efficiency from 15% to 25% - Clean Cooking Strategy: Expand efficient cookstove adoption by 45% in urban households

 

Alternative Fuels:

- Charcoal Strategy: 10% increase in alternative charcoal utilization - Clean Cooking Strategy: Increase LPG, biogas, bioethanol, natural gas, and electricity access

 

Forest Protection:

- Charcoal Strategy: Increase CBFM to 16 million hectares, reduce illegal harvesting - Clean

Cooking Strategy: Reduce biomass dependence, conserve forests

 

CROSS-CUTTING INTEGRATION

Both strategies demonstrate sophisticated integration of cross-cutting issues:

Gender Mainstreaming Both strategies recognize that  women bear  the  greatest burden of inefficient cooking energy (time spent collecting fuel, health impacts from smoke, limited economic participation) and specifically promote gender inclusion in their implementation frameworks.

HIV/AIDS Awareness Both strategies mainstream HIV/AIDS prevention in their value chain activities, acknowledging how energy sector work patterns and urbanization can affect disease transmission.

Good   Governance   Both   emphasize   transparency,  accountability,   law   enforcement,  and stakeholder participation as essential to successful implementation.

Research and Innovation Both call for enhanced research capacity, technology development, and systematic monitoring and evaluation to continuously improve approaches.

 

IMPLEMENTATION FRAMEWORK

 

The strategies outline complementary implementation mechanisms: Institutional Coordination: National steering committees and inter-sectoral forums ensure policy coherence - Clear roles

for ministries, local governments, private sector, NGOs, and communities

Financing Mechanisms: Multiple credit windows and microfinancing options - Fiscal incentives for sustainable production and clean alternatives - Exploration of carbon market opportunities - Results-based financing approaches

Capacity Building: Skills development for both sustainable charcoal production and clean energy technologies - Training institution curricula updates - Informal skills development and apprenticeship programs

Monitoring and Evaluation: Performance indicators tracking progress on both sustainable charcoal and clean cooking - Regular reporting and feedback mechanisms - Annual stakeholder forums for course correction

 

LEARNING FROM REGIONAL AND GLOBAL EXPERIENCE

Tanzania's strategies incorporate lessons from other countries' experiences:

From India: Government subsidy programs (Pradhan Mantri Ujjwala Yojana) that provided LPG cylinders to 95.8 million low-income households, demonstrating how targeted support can accelerate adoption.

From Kenya: Microfinance institution collaboration with LPG suppliers to provide affordable loans, making initial costs manageable through long-term repayment schedules.

From Uganda: Declining block tariff structures for electricity that reduce costs as consumption increases, specifically encouraging electric cooking.

From Ghana: Engagement with international carbon markets under Paris Agreement Article 6, creating financial flows to support clean cooking transitions.

These experiences inform Tanzania's multi-faceted approach to affordability, financing, and international partnership.

 

CHALLENGES AND THE PATH FORWARD

The dual strategy approach acknowledges significant challenges:

Financing Gaps: The clean cooking transition requires substantial investment in infrastructure, subsidies, and awareness campaigns. Innovative financing including carbon credits, development partner support, and private sector engagement will be essential.

Behavioral Change: Decades of cooking practices don't change overnight. Sustained awareness campaigns, demonstrations, and community engagement will be needed.

Supply Chain Development: Clean cooking requires robust supply chains for LPG, bioethanol, electricity, and technologies. Building these takes time and coordination.

Policy Harmonization: Reconciling policies across forestry, energy, environment, trade, and local government sectors requires sustained inter-ministerial dialogue.

Affordability:  Despite  efficiency  gains,  clean  alternatives  remain  expensive  for  low-income households. Subsidy targeting and gradual phase-ins will be necessary.

Rural-Urban Divide: Urban areas will likely transition faster due to infrastructure access. Special attention to rural solutions (biogas, improved cookstoves, sustainable charcoal) is essential.

 

THE MECS CONNECTION

The Modern Energy Cooking Services (MECS) program's emphasis on electric cooking (eCooking) aligns perfectly with Tanzania's strategies. The Clean Cooking Strategy specifically targets increased adoption of electricity for cooking, supported by:

- Expanding national grid access toward 85% connectivity - Special tariff structures to make eCooking affordable - Promotion of efficient electric cooking appliances - Off-grid solar solutions in areas without grid access

The Charcoal Strategy complements this by reducing biomass pressure during the transition period, creating space for infrastructure development without accelerating deforestation.

 

CONCLUSION: A MODEL FOR THE REGION

Tanzania's dual strategy approach offers a pragmatic blueprint for countries facing similar challenges across Sub-Saharan Africa. By simultaneously making the present more sustainable while building the infrastructure for a clean future, Tanzania avoids the trap of choosing between current livelihoods and environmental protection.

 

The key innovations in Tanzania's approach include:

  1. Treating charcoal as a transitional resource requiring management, not just a problem to eliminate 2. Creating formal economic opportunities in both sustainable biomass and clean energy 3. Coordinating across multiple ministries and sectors from the outset 4. Setting ambitious but achievable targets with clear timelines 5. Learning from international experience while adapting to local context 6. Integrating gender, health, and governance as core elements, not afterthoughts

As Tanzania works toward its 2031 and 2034 milestones, the success of this dual strategy approach will provide valuable lessons for the region and beyond. The framework demonstrates that universal clean cooking access isn't about choosing between environmental protection and economic development—it's about carefully managing the transition from one to the other.

 

By 2031 and beyond, if successfully implemented, Tanzania's dual strategies could deliver:

- 80% clean cooking access by 2034 - Sustainable management of remaining charcoal production

- Protected and regenerating forest cover - Improved health outcomes, particularly for women and children - Formalized value chains providing decent livelihoods - Reduced greenhouse gas emissions - Enhanced energy security through diversified sources

This represents not just a cooking energy transition, but a comprehensive transformation of how Tanzania produces, distributes, and consumes energy—a transformation that many countries in the MECS community are also pursuing. Tanzania's experience—both its successes and challenges—will offer invaluable insights for the global push toward universal clean cooking access.

For countries and programs working on clean cooking transitions, Tanzania's message is clear: acknowledge where  you  are,  plan  where  you're  going,  and  manage  the  journey  carefully. Universal clean cooking access isn't achieved by ignoring current realities—it's achieved by transforming them step by step, with strategies that work together to create a sustainable path forward.