Food Security Information for Action

Food Security Policies Formulation and Implementation

Lesson 1 Establishment of a Food Security Policy Framework Learners Notes

This course is funded by the European Union and implemented by the Food and Agriculture Organization of the United Nations

FAO, 2009

Course - Food Security Policies - Formulation and Implementation Lesson 1 - Establishment of a Food Security Policy Framework

Table of Contents
Learning objectives.......................................................................................................2 Introduction....................................................................................................................3 Conceptual framework for food security policies..........................................................4 Subjects of food security policies..................................................................................5 Policies with multiple effects on food security...............................................................9 Linkages to other policies, strategies & programmes.................................................11 Summary.....................................................................................................................12 If you want to know more............................................................................................13

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

Learning objectives
At the end of this lesson you will be able to: explain the need for policies aimed at improving food security; describe the main features of food security policies; and acknowledge food security as a policy issue cutting across different sectors.

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

Introduction
Combating the problem of hunger and malnutrition requires specific policy actions. Governments of many countries have defined food security objectives to be pursued in the framework of national development policies. Policies aimed at improving the food situation of a country and its people are directed to contribute to the achievement of the first Millennium Development Goal (Eradicated poverty and hunger) and the realization of the basic human Right to Food. Example: Preamble to the Food Security Policy document of Timor-Leste The preamble to the Food Security Policy document of Timor-Leste states: Food insecurity in TimorLeste has been one of the main concerns of the first government after gaining independence because a high share of the population suffers from the lack of food, in quantitative and qualitative terms. Many people do not reach the minimum standard of a balanced diet that guarantees them a healthy living and a productive and long life. The Food Security Policy will be a complementary instrument, not only for achieving the Millennium Development Goals, but also for materializing the Governments policy to eradicate hunger in all its forms, thus contributing to poverty reduction in 2020, as stated in the National Development Plan (NDP). There are two typical approaches to designing food security policies: Integration of food security policy issues into overall and sectoral national development policies and strategies of a country, e.g. Poverty Reduction Strategy and agricultural and social sector policies and strategies. Preparing a specific Food Security Policy document, incorporating all aspects which are relevant for improving food security and taking into account the linkages which exist to overall and sectoral development policies and strategies of the country. This lesson provides guidance for the preparation of food security policies, be it in the form of preparing a special Food Security Policy document or in the form of an incorporation of food security policy issues into other national development policies and strategies.

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

Conceptual framework for food security policies

A state of food security requires that: sufficient food is available; all people have economic and physical access to the food they need; access and availability are ensured over time (stability), and the food is effectively utilized. Definition of food security We refer to the definition of the World Food Summit 1996: Food security exists when all people, at all times, have physical and economic access to sufficient safe and nutritious food that meets their dietary needs and food preferences for an active and healthy life. This definition of food security includes the following four aspects or conditions of food security: - Physical AVAILABILITY of food - Economic and physical ACCESS to food - Food UTILIZATION - STABILITY of the other three dimensions over time. Food insecurity exists if even one of these conditions is not met. The actual food situation in many developing countries is characterized by deficiencies with regard to several of these aspects. Example: Food security situation in Ethiopia The food security situation in Ethiopia can be outlined as follows: In years of average and good harvests, Ethiopia produces largely enough food to feed its population and only a small amount of food has to be imported. However, there are many poor households, particularly in rural areas, neither producing enough food on their own nor having the means to buy the food they need. Even in years of good harvests they suffer from hunger. The country is prone to recurrent droughts and other natural disasters. The shortfalls in production which occur in the wake of natural disasters affect both food availability and access, severely aggravating the food situation of the poorest population groups. Due to lack of knowledge about hygiene and nutrition, unsafe drinking water, diseases and other factors, the food prepared and consumed is often not fully utilized.

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

Subjects of food security policies

Food security (FS) policies have to address those conditions for food security that are not (yet) fulfilled. Depending on prevailing food security problems in a country, appropriate policy measures to remedy the problems should be defined. Table 1: Policy measures to remedy problems If the problem is: FS policies have to aim at: Insufficient Supplies Increasing food supplies, i.e. if the food available in a country is e.g. by promoting domestic food production not sufficient to adequately feed its and/or facilitating food imports. population Insufficient Access i.e. if there are people and households who cannot obtain the food they need Improving access, by enabling food insecure people and households to obtain the food they need.

Improving utilization, Ineffective Utilization e.g. by enabling people to prepare the food in i.e. if the food is prepared and consumed a way which is safe, maintains its nutritious in a way that it cannot be properly quality and that the nutrients are fully utilized by the body absorbed by the body. Instability of Food Supplies i.e. if there are seasonal food shortages or deficits in the wake of harvest failures or disasters Stabilizing food supplies, e.g. by making timely provisions so that sufficient food is available throughout the year and if a disaster strikes.

Interactions between the different dimensions of food security need to be considered when food security policies are designed. Example: Interaction between different food security dimensions For example, low levels of agricultural production not only limit food supplies but also agricultural income, thus constraining access of farm households to sufficient food and making them vulnerable to temporary food shortages. On the other hand, policies to promote agricultural production have positive effects not only on food production and supplies but also on access and stability. Next we will have a look at what types of food security policies can be designed to improve each one of the four dimensions of food security. We will consider: a) b) c) d) Policies to increase food supplies (availability) Policies to improve access to food poverty alleviation Policies to improve utilization Policies to ensure stability of food supplies

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

A) Policies to increase food supplies (availability) Food availability refers to the supply side of the food economy. Sources of food supplies are: domestic food production (subsistence plus marketed production); and food imports. Food availability can be increased: Increasing domestic food production; and Facilitating food imports. Table 2: Increasing Food Availability Increasing In general, domestic food production is the main source of food supplies. dom Therefore, in situations with insufficient food supplies, food security policies estic have to focus on increasing domestic food production, including all policy food measures which typically form part of agricultural development strategies, prod such as: agricultural research, extension, improved technologies, input ucti supply and subsidies, land tenure reform, natural resource conservation, on rural infrastructure and food marketing. If food supplies from domestic production (and available food stocks) are insufficient to cover the needs, the balance has to be covered by food imports. Food security policies must facilitate food imports, e.g. by granting import licenses, removing tariff and non-tariff restrictions on food imports, overall trade liberalization, promoting market data exchange and information. Facilitating If a country depending on food imports lacks, due to foreign exchange food constraints, the means to finance commercial food imports according to the imports needs, food insecurity in terms of supply deficits (expressed e.g. in price hikes) occur. In order to avoid such deficits, external assistance is required. The government may seek external assistance in the form of foreign exchange support, to increase the food import capacity of the country, or directly in the form food aid (food imports on a grant basis or at concessional terms).

B) Policies to improve access to food poverty alleviation Insufficient access to food is the core problem of food insecurity. It is closely related to poverty, affecting all households who are living below the poverty line, i.e. who dont have sufficient assets and means to cater for their needs. Access refers to capacity of households and individuals to obtain the food they need, either by producing it on their own, by buying it on the market, or obtaining it through transfers. Since insufficient access to food is the result of poverty, policy measures to improve access to food essentially are poverty alleviation policies.

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

Depending on the situation, environment, livelihood, resources and capacities of poor and food insecure population groups, food security and poverty alleviation policies will have to focus on measures for agricultural development, on income and employment generation in rural and urban environments, and/or on public transfer systems. Income Income means purchasing power. It is, in general, the most decisive factor in access to food. Table 3: Improving Access to Food In an agriculture based economy and society, a major source of Agricultural subsistence and income is agriculture. development Therefore, food security and poverty alleviation policies need to focus focusing on on measures of agricultural and rural development targeting specifically poor farmers small farmers and poor rural households. Policy measures in the field of agricultural sector development have to be accompanied by employment and income generation policies in rural and urban, agricultural and non-agricultural as well as public and private sectors. Focus has to be put on the promotion and development of value chains. Productive and private sector employment may have to be complemented by public employment schemes, in order to ensure that the poor rural and urban population obtain the means to gain adequate access to food. Until poverty alleviation is achieved and poverty is eliminated on a sustainable basis, special targeted approaches are needed to ensure that the poor, vulnerable and food insecure population groups obtain the food they need and are able to cover their minimum requirements. Typical targeted approaches are social safety net programmes and public transfer systems, including feeding programmes (e.g. institutional / therapeutic / supplementary / school feeding), food assistance, cash transfers, targeted subsidies, cash- and food-for-work programmes. The transfer systems must be designed in a way that they do not jeopardize sustainable development in the productive sectors.

Employment and income generation

Public transfers / social safety nets

C) Policies to improve utilization Effective utilization refers to the ability to utilize the food in a manner that the nutritive quality of the food is maintained when the food is prepared and available to the person consuming the food. Effective utilization can be inhibited by: lack of knowledge about proper food preparation, to ensure food safety and preserve the nutritional quality of food; lack of knowledge about nutritional requirements and nutrient contents of food (including macro- and micro-nutrients);

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

diseases and poor health; if people suffer from diseases, they have special nutritional requirements and, moreover, the nutrients consumed cannot be fully absorbed by the body; lack of hygiene, sanitation, safe drinking water. Improved food utilization calls for policy measures in the following fields: improving food preservation and preparation technologies; establishment of proper food standards; improving public health; provision of safe drinking water; improved sanitation; and hygiene and nutrition education. D) Policies to ensure stability of food supplies Instabilities in access and availability bring about transitory food insecurity. Such instabilities can result from: seasonal variations of food supplies, with food shortages during the hungry season i.e. the period when the stocks from the last harvest are depleted and market prices of food tend to rise substantially; annual variations of food supplies, with food shortages after a poor harvest; acute shortages as a result of natural or man-made disasters (drought, flood, earthquake, war, refugees). Food security policies have to cater for such events when and where they occur or are likely to occur, such as in areas prone to droughts, floods or earthquakes, or in countries or regions with latent or ongoing political conflicts. Relevant policy measures for preventing temporary supply shortfalls are related to establishing a system of disaster preparedness and response, including an Early Warning System (EWS) and a set of measures to ensure food stability. Ensuring food stability The following are some ways to ensure food stability: stocking policies (promotion of household and community food stocks, stocks for market stabilization and strategic food reserves, establishment of monetary reserves to speed up food purchases/imports in the case of need); development of rural infrastructure and improvements of the food marketing system, to facilitate the exchange between food surplus and deficit areas; promotion of food processing and conservation technologies and facilities; and promotion of measures to stabilize production (e.g. irrigation, soil- and water conservation). Policy measures to address instabilities in access are seasonal or temporary employment schemes (food-for-work, cash-for-work) or food assistance programmes.

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

Policies with multiple effects on food security

Most of the policy measures aimed at improving the food security situation have effects on more than one aspect of food security. In designing food security policies, such multiple effects are to be considered and deliberately made use of. Policy measures serving more than one food security objective are called twin-track- or multiple-track-approaches. Examples of twin-track- or multiple-track-approaches Agricultural development policies enhancing the productivity of small and poor farmers, leading to: - increased food production and supplies, and simultaneously - contributing to increased incomes and improved access to food of poor and vulnerable population groups; furthermore, such measures may also bring about improved stability of production and access; Irrigation policies directly affect production/supplies, income/access and stability; Agricultural marketing policies will have effects on food production and supplies, on access via producer and consumer prices and incomes, as well as on stability of access and supplies; Policy measures to improve rural infrastructure, with positive impacts and access, supply, stability as well as utilization. The following graph shows a wide spectrum of multiple effects of policy measures in different policy spheres which typically form part of food security policies:

Learners Notes

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

affecting FOOD AVAILABILITY

POLICIES regarding
Agricultural development

affecting
ACCESS Employment Formal Informal Urban Rural Public employment schemes Safety nets Relief food assistance
Feeding programmes

Rural finance Land tenure

Irrigation

Resource conservation Food imports Food aid deliveries Rural infrastructure Food marketing Food stocks
Food processing & preservation, Food safety

affecting STABILITY

Education Health & nutrition Water and sanitation

affecting UTILIZATION & NUTRITION

Learners Notes

10

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

Linkages to other policies, strategies & programmes

Since food security is a cross-cutting issue, food security policies encompass a whole range of policy measures pertaining to different sectors and policy spheres. In designing food security policies, it is necessary to review other existing policies that are relevant for food security, in order to: know to what extent food security concerns are already (adequately) addressed in relevant macro and sector policies and strategies; and identify policy gaps still to be filled, either by incorporating food security concerns in existing macro- and sector policies or by preparing a special food security policy. Reviewing other existing policies is like putting a food security lens on the existing policy framework, as shown in the following graph (taken from the example of the Food Security Policy Lesotho):

Poverty Millennium Development Goals Social Sector Policies (e.g. HIV/AIDS, Health, Nutrition Pension scheme) Agricultural Policies (e.g. Agric. Sector Strategy, Irrigation, Seed & Subsidy Policy) Reduction Strategy (PRSP) NEPAD Policies & Programmes Emergency preparedness & response (Disaster Management, Food Aid) Regional Donor Programmes & Policies

SADC Policies

Learners Notes

11

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

Summary
There are two typical approaches to designing food security policies: preparing a special Food Security Policy document; or incorporating food security policy issues into other national development policies and strategies. Food security policies have to address those conditions for food security that are not (yet) fulfilled. They can be designed to: increase food supplies (availability); improve access to food poverty alleviation; improve utilization; or ensure stability of food supplies. Policy measures serving more than one food security objective are called twin-track- or multiple-track-approaches. In designing food security policies, it is necessary to review other existing policies that are relevant for food security, in order to identify policy gaps still to be filled.

Learners Notes

12

Course Food Security Policies Formulation and Implementation Lesson 1 Establishment of a Food Security Policy Framework

If you want to know more...

Online resources Diskin, Patrick, UNDERSTANDING LINKAGES AMONG FOOD AVAILABILITY, ACCESS, CONSUMPTION, AND NUTRITION IN AFRICA: EMPIRICAL FINDINGS AND ISSUES FROM THE LITERATURE, MSU International Development Working Paper No. 46, Michigan, July 1994, web: http://pdf.usaid.gov/pdf_docs/PNABS732.pdf FAO, Policy Briefs, FOOD SECURITY, Issue 2, June 2006; ftp://ftp.fao.org/es/ESA/policybriefs/pb_02.pdf Klennert, Klaus (ed.), ACHIEVING FOOD AND NUTRITION SECURITY, Actions to Meet the Global Challenge, A Training Course Reader, InWent, Feldafing, 2005; http://www.inwent.org/imperia/md/content/unternehmenskommunikationintranet/internet/publikationen/food_reader_engl.pdf Maxwell, Simon and Rachel Slater, FOOD POLICY OLD AND NEW, in: ODI, Development Policy Review, Vol. 21, No. 5-6, Sep./Nov. 2003; http://www.odi.org.uk/publications/dpr/Maxwell_Slater.pdf Rena, Ravinder, AGRICULTURE DEVELOPMENT AND FOOD SECURITY POLICY IN ERITREA - AN ANALYSIS, Ajfand online, Vol. 7, No. 5, 2007 http://www.ajfand.net/Issue16/PDFs/Rena_2335.pdf Additional reading De Klerk, Mike et al., FOOD SECURITY IN SOUTH AFRICA: KEY POLICY ISSUES FOR THE MEDIUM TERM, Human Sciences Research Council, Integrated Rural and Regional Development, Position Paper, January 2004 Makhura M.T., The development of food security policy for South Africa (SAFSP): a consultative process, Food Policy, Volume 23, Number 6, December 1998 , pp. 571585(15) Leblanc, Michel, CONCEPT OF A FOOD SECURITY POLICY, Rseau Europen de Scurit Alimentaire, European Food Security Network, Commission europenne, DG VIII / A, April 1999

Learners Notes

13