Governing Global Food Security: The emerging architecture of global food security governance

Political Economy of FoodCentre for Food Policy

City University, LondonMarch 12, 2012Jessica Duncan

What this lecture covers International Reaction

Emerging transnational food security policy space

Key Actors

Key Initiatives Summary of policy responses

Broader context: Global governance Observable Phenomenon Political Programme

International Reaction

World Food Security Policy: InitiativesDate Lead Event/Act Output

2008 World Economic Forum

Global Agenda Council on Food Security

Global Agenda Council Food Security Report

April 2008 UN Establish High Level Task Force on the Global Food Security Crisis

Comprehensive Framework for Action (2009) Updated 2010

June 2008 UN High-Level Conference on Food Security and the challenges of bio-energy

Declaration of the High-Level Conference on World Food Security: The Challenges of Climate Change and Bioenergy

July 2008 G8 G8 Summit Hokkaido Toyako, Japan

Leaders Statement on Global Food Security.Tasked a G8 Experts Group on Global Food Security.

September 2008

High Level Event on the MDGs

Date Lead Event/Act Output

October 2008

FAO/CFS Committee on World Food Security 34th Session

Final Report of the34th Session of the CFS Agenda Item V was CSO participation Agenda Item VI was a proposal to Strengthen the CFS to meet new challenges

November 2008

FAO FAO Conference 35th (Special) Session

Follow-up to the Independent External Evaluation of FAO.

January 2009

UN and Spain

High Level Meeting on Food Security for All

Final Statement

January 2009

World Economic Forum

Fresh Solutions for Food Security

May 2009 UN CSD-17 Final Text

July 2009 G8 L’Alquila Summit

“L’Aquila” Food Security Initiative “L’Aquila” Joint Statement on Global Food Security

World Food Security PolicyDate Lead Event/Act Output

2009 G8/WB Global Agriculture and Food Security Program (GAFSP) Trust Fund

Global Agriculture and Food Security Program (GAFSP) Trust Fund

September 2009

UN/USA Partnering for Food Security Side Event at 64th Session on UN General Assembly

Partnering for Food Security: Moving Forward

October 2009

UN High-Level Expert Forum, How to Feed the World in 2050

October 2009

FAO 35th Session of the Committee on World Food Security (CFS)

Reform Document of the CFS

November 2009

Civil Society

People’s Food Sovereignty Forum

Final Declaration

November 2009

FAO Summit on World Food Security

Declaration of the World Summit on Food Security

January 2010

Regions Food Summit

Summit of World’s Regions on Food Security

January 2010

March 2010

Global Conference on Agricultural Research for Development

Date Lead Event/Act Output

May 2010 HLTF Consultation to update the CFA

Updated CFA

June 2010 G8 G8 Summit Muskoka

June 2010 Mayor of Rome and WFP

Meeting to endorse a the framework for Scaling up Nutrition (presented at the 2010 Spring Meetings of the IMF and WB)

September 2010

Various Proposition: Scaling-Up Nutrition

A Road Map for Scaling-Up Nutrition (1st draft)

September 2010

UN High Level Plenary Meeting of the General Assembly

Outcome document

October 2010

CSO CSO Consultation in Advance of the CFS

Civil Society Mechanism for the CFS

October 2010

FAO-CFS 36th Session of the CFS Final Report

October 2010

APEC First APEC Ministerial Meeting on Food Security

Niigata Declaration on APEC Food Security

Dominant Policy Actors

Rome-Based AgenciesFAO WFP IFAD

www.fao.org www.wfp.org www.ifad.orgNeutral policy space, expertise, country-level

supportEmergency humanitarian food and

nutrition aidFunding food and agricultural projects

• Established in 1945• UN agency that leads international efforts

to end hunger.• The FAO has 191 members, two associate

members and one member organisation, the European Union.

• Headquartered in Rome, the FAO is present in over 130 countries, with a network of five regional offices and 74 fully-fledged country offices.

• It employs 3,691 staff, and had a regular global budget of $1 billion in 2010-2011.

• Neutral forum: A space for states to meet to negotiate and debate agreements and policies around food and agriculture. and a source of knowledge and information

• Supports countries to improve their agricultural, forestry and fisheries policies, plans and practices, and ensure good nutrition and food security for all.

• Founded in 1963• WFP has 10,200 staff worldwide• Receives voluntary contributions

from 60 governments.• It is the food aid branch of the UN

and the world's largest humanitarian organization addressing hunger.

• Provided 4.6 million tonnes of food to 109 million people in 75 countries in 2010 – of whom 89 million were women and children.

• Has an extensive global field presence with immense logistical and procurement capacity to deliver and distribute emergency food assistance.

• Conducts food insecurity assessments and vulnerability analyses to help it anticipate and respond rapidly to food crises.

• Established in 1978 upon recommendation of the 1974 World Food Summit.

• The agency has 167 member states and about 35 offices worldwide, and it currently has a commitment of loans and grants for 2010 to 2012 of $3 billion, which combined with co-financing is worth about $7.5 billion in total.

• and the leading multilateral investor in the livelihoods of poor rural communities in developing countries.

• Works with governments, partners and local communities, to offer low-interest loans and grants to finance agricultural and rural development programmes and projects

• Since 1978, has granted or lent about $13 billion (about $5 billion to sub-Saharan Africa) and mobilized nearly $20 billion in co-financing for 870 programmes or projects in 117 countries.

• Currently funds 240 projects

United Nations• UN Secretary General’s High Level Task Force on the Global Food Security Crisis

(HLTF)• Launched in April 2008• 22 UN agencies, the World Bank Group, International Monetary Fund (IMF),

World Trade Organization (WTO), and OECD• Assistant Secretary-General, David Nabarro = Chair + the Special Representative

for Food Security and Nutrition• Director General of the FAO Vice-chairman of Task Force • The HLTF aims to achieve its objectives through improved coordination at the

international and country level without creating any bureaucratic structures or inter-governmental layers.

• Key outcome to date: Comprehensive Framework for Action (CFA)– Based on the FAO’s 2003 Anti-Hunger Program

• Challenge: Set up as a short term, informal (i.e. no bureaucracy) Task Force, but has not been disbanded. Mandate overlaps with CFS

Group of 8 (G8)• The G8 is a forum for the leaders of eight of the world’s most industrialized nations• In July 2008, G8 Leaders meeting in Hokkaido Toyako, Japan: Leaders Statement on Global Food Security

– The Statement emphasized the urgency of short-term needs (e.g., access of small-holder farmers to fertilizers), a commitment to increase food aid and investment and recognised the coordinating role of the UN through their support for the High Level Task Force on the Global Food Crisis (HLTF).

– They also encouraged countries with surplus to released food stocks and called for the removal of export restrictions

• 2009 L’Aquila Summit, the G8 issued another declaration highlighting the need to increase agricultural production. – 26 nations and 14 international organizations launched the “L’Aquila” Food Security Initiative.– $22 billion over three years for agricultural investment and agreement

• The approach is articulated around 5 principles: 1. Investment in country-led plans and processes; 2. A comprehensive approach to food security that includes support for humanitarian assistance,

sustainable agriculture development and nutrition 3. Strategic coordination of assistance4. A strong role for multilateral institutions5. Sustained commitment of financial resources

• At the L’Aquila Summit, G8 leaders committed USD20 billion over three years for sustainable agriculture development and safety nets for vulnerable populations through the Aquila Food Security Initiative (AFSI)

Group of 20 (G20)• G20 group of 19 most important national economies + EU• Represent around 90% of global GDP, 80% of global trade and 2/3rd of the world’s population• With the 2008 financial crisis: G20 was the most suitable forum for coordinating responses,

effectively taking over from the G8• At the Pittsburgh Summit (2009), leaders backed the G8’s L’Aquila Food Security Initiative and called

for the World Bank to establish the Global Agriculture and Food Security Programme Fund to facilitate disbursements

• Seoul Summit (2010), under the leadership of French President Sarkozy, the G20 developed a Multi-Year Action Plan on Development with nine key areas for development, including food security

• June 2011, the G20 held its first meeting of Agriculture Ministers: (ANOTHER!) Action Plan on Food Price Volatility and Agriculture– The Action Plan identifies two areas of action: enhance policy coherence and coordination:

mitigate the risk in price volatility and enhance protection for the most vulnerable– Includes proposal for AMIS, support for CGIAR to research seed improvement and the need for

promotion of market-based risk management tools for vulnerable populations, and a pilot project to establish an emergency regional humanitarian food reserve under the guidance of the WFP

• SRRTF: “the roots of the problem remain unaddressed in this action plan” • G20 has effectively “declared itself the de facto coordinator of international development finance”

(Wise and Murphy 2012:25)

World Bank Group• WB is an international financial institution tasked with providing loans to developing countries to support

various programmes• July 2009, the WB released Implementing Agriculture for Development, World Bank Group Agriculture Action

Plan: FY2010-12, as follow- up to the World Development Report 2008: Agriculture for Development– The Action Plan builds on themes outlines in Researching the Rural Poor, the 2003 Agriculture and Rural

Development Strategy and follows up on proposals advanced in the World Development Report 2008: Agriculture for Development

– The Action Plan is meant to outline the WB’s commitment food security through improved agricultural production, raising the incomes of the poor, facilitating economic transformation, and environmental services

• Other outputs: World Development Reports: Agriculture (2008), Gender and Development (2012); Food Price Volatility (G20)

• Hosts and manages a CGIAR Multi-Donor Trust Fund to harmonize donor investments– Increasing role in food security research (FAO)

• Trustee of GAFSP– Increasing role in food security funding (IFAD)

• Global Food Crisis Response Program (GFRP)– Increasing role in emergency aid (WFP)– September 2011, the GFRP had approved $1,502.5 million of funding for various projects

• Is the WB encroaching on the mandates of the Rome-based Agencies?

GAFSP• In 2010, a fund was set up as part of the L’Aquila commitments, and upon request

of the G20 Pittsburgh Summit • The Global Agriculture and Food Security Program (GAFSP) was launched as

multilateral financing mechanism, held in the World Bank, to assist in the implementations of the pledges made at the L’Aquila Summit

• The GAFSP has a coordination unit as well as two funding windows: private sector window and public sector window

• The Private Sector Window provides short and long term loans, credit guarantees and equity to support private activities for improving agriculture and development– This window is managed by the International Finance Corporation (IFC) (WB)

• The Public Sector Window supports strategic country-led or regional programmes that are based on sector-wide consultations and planning exercises– This window is governed by a steering committee comprised of an equal number of

donors and recipients as well as non-voting representatives from the Trustee (the World Bank), UN agencies, IFAD, Multilateral Development Banks, and civil society organizations

Contributions to GAFSP Private and Public Sector Windows (Pledges and Committed) December 31, 2011 (in millions USD)

SUMMARY OF KEY POLICIES AND OBJECTIVES

What are the policy implications and suggestions in the wake of the food price crisis?

Dominant policy approach to the food crisis

Immediate Relief

Policy Cohesion

Increased Production

Improved Markets

Immediate Relief Policy Coordination Increased Production Improved Markets

L’Aquila Joint Statement on Global Food Security (G8 2009)

Emergency assistance will remain an important means through which national authorities... can provide help to people facing acute hunger.

By joining efforts with partners and relevant stakeholders around the world, we can together design and implement an effective food security strategy, with priority on the world’s poorest regions.

Approach includes: increased agriculture productivity, stimulus to pre and post-harvest interventions, emphasis on private sector growth, smallholders, women and families, preservation of the natural resource base, expansion of employment ... increased trade flows.

Open trade flows and efficient markets have a positive role in strengthening food security.

5 Rome Principles for Sustainable Global

Food Security – WFS (2009) originally Aquila Principles

(G8) (2009)

4 Policy Objectives for Agriculture for

Development- WB’s WDR (2008)

10 Principles for Action - Updated Comprehensive

Framework for Action (CFA) HLFT (2010)

5 Thematic Areas Agricultural Action Plan - WB (2008)

5 Objectives- Action Plan on food price

volatility and agriculture - G20

(2011)

1.Invest in country-owned plans2.Foster strategic coordination at national, regional and global level to improve governance3.Strive for a comprehensive twin-track approach to food security 4.Ensure a strong role for the multilateral system 5.Ensure sustained and substantial commitment by all partners to investment in agriculture and food security and nutrition

1.Improve access to markets and establish efficient value chains 2.Enhance smallholder competitiveness and facilitate market entry3.Improve livelihoods in subsistence farming and low-skill rural occupations 4.Increase employment in agriculture and the rural nonfarm economy, and enhance skills

1. Twin-tracks to food and nutrition security 2. Comprehensive approach3.Smallholders, particularly women, at the centre of actions4. Increased focus on resilience of household livelihoods5.More and better investments in food and nutrition security6. Importance of open and well-functioning markets and trade7.The value of multi-stakeholder and multisectoral partnerships8.Sustained political commitment and good governance9.strategies led by countries with regional support10. Accountability for results

1.Increasing agricultural productivity2.Linking farmers to markets3.Reducing risk and vulnerability4.Facilitating agricultural entry and exit and rural nonfarm income5.Enhancing environmental services and sustainability

1.Improve agricultural production and productivity2. Increase market information and transparency 3. Strengthen international policy coordination in order to enhance confidence inInternational4. Improve and develop risk management tools for governments, firms and farmers5. Improve the functioning of agricultural commodities’ derivatives markets

5 Principles for Ending Hunger SRRTF (2011)

Policy Options IAASTD (2008)

1. Ending subsidies that encourage unsustainable practices

2. Using market and other mechanisms to regulate and generate rewards for agro/environmental services,

3. Long-term land and water use rights/tenure

4. Risk reduction measures (safety nets, credit, insurance)

5. Profitability of recommended technologies are prerequisites for adoption of sustainable practices

6. Common pool resource regimes 7. Modes of governance that emphasize

participatory and democratic approaches

1. Regulate the markets for agricultural products and make them more transparent2. Encourage the development of regional storage facilities3. Support the provision of public goods4. Support strategies based on the right to food5. Strengthen global food security governance

Alternative policy approaches

Broader Context: A Global Governance Crisis

F-words:• Food• Fuel• FinancialWe can also add:• Environmental

Global Governance

• Governance is the process of governing. It is the way in which society is managed and how the competing priorities and interests of different groups are reconciled. It includes the formal institutions of government but also informal arrangements.

• Governance is concerned with the processes by which citizens participate in decision-making, how government is accountable to its citizens and how society obliges its members to observe its rules and laws.

• Governance comprises the mechanisms and processes for citizens and groups to articulate their interests, mediate their differences, and exercise their legal rights and obligations. It is the rules, institutions, and practices that sets limits and provides incentives for individuals, organizations and firms.

• FAO. 2009. Discussion Paper: Towards Voluntary Guidelines on Responsible Governance of Tenure of Land and Other Natural Resources. FAO: Rome

We can add the rules and practices that set limits and incentive for governments.

Global Governance: The new world order

Muldoon (2004) Institutional pillars of global governance (2004: 10) and the “new world order” and the future of international organizations (2004:273)

Global Governance

• Observable Phenomenon• Political Programme

Common Characterists of Global Goverance

• Pluricentric rathen than unicentric• Networks play an important role• Networks function to organize relations between

relatively autonomous but interdependent actors• Within contemporary governance systems,

relations between actors pose risks and uncertainties. Sectors have developed institutions to support cooperation and reduce risk

– Van Kersbergen and Van Waarden (2005:151)

Trends in Global Governance

• Vertical shifts – Downward (Nation state or international bodies to

regional actors or sub-national level) – Upward (Nation state to International Institution

with supra-national structure)• Horizontal shifts– Executive and legislative powers to juditiary – Public to Semi-Public or Private Sector

• Network Governance

Global Governance as a Political Programme

• Neoliberal project– Embedded neoliberalism

• Diversity of actors• Shifting roles: state, private sector, civil

society, philanthropic• New alliances: G20, G77, African Union,

GRULAC, civil society, private sector

Global Governance and Food Security: Case Study

Global Agriculture and Food Security Program (GAFSP)• Through GASFP, processes of upward and downward vertical shifts are

taking place• Countries with an interests in supporting food and agricultural in the

world’s poorest countries have shifted their efforts upwards to a global initiative

• As the same time, the GAFSP has committed to consult with stakeholders at the country-level, a process illustrative of a downward shift

• Here we see, if not a total shift, at least a dependent relationship from a global, or supra-national, organization down to the sub-national level

• The GAFSP relies on these consultations and the future implementation of projects by local stakeholders as part of their claim to legitimacy

• Limits: productionism, neoliberalism, “don´t bite the hand that feeds”

Paradigm shift influencing the new architecture of global food security governance

Key Challenges

• Global? • Accountability• Legitimacy• Participation• Transparency• Monitoring and evaluation• Policy cohesion (State sovereignty vs. international objectives• Finding agreement amidst diversity: clashing paradigm

What to keep an eye on• G20 - Mexican Presidency plans to maintain development & food

security focus (AFSI)• Rio +20 • WB – triple-threat• SUN – will nutrition re-surface, if so, what are the implications?• New Executive Director for World Food Programme (WFP)• Committee on World Food Security (focus of next week’s lecture)

– RAI negotiations in OEWG of CFS (Chair = Switzerland)– Adoption and implementation of the VG on the Responsible

Governance of Tenure of Land, Fisheries and Forests in the Context of National Food Security (VGs) – Links to RTF

– Negotiations on the Global Strategic Framework (GSF)

Take Away Messages

• Food systems face a governance crisis that extends to a broader crisis of global governance

• The architecture of food security governance has shifted in response to the food crisis and with the emergence of new actors

• Policy priorities for food security: Emergency aid; Policy cohesion; Increased Productivity; Improved Markets– Multiple interpretations

Download Presentation: foodgovernance.com

THANK YOU!