The Political Economy of Healthy and Sustainable Food Systems: An Introduction to a Special Issue

Document Type : Editorial

Authors

1 Institute for Physical Activity & Nutrition, Deakin University, Geelong, VIC, Australia

2 Melbourne School of Population and Global Health, University of Melbourne, Melbourne, VIC, Australia

3 School of Politics and International Studies, University of Leeds, Leeds, UK

4 School of Public Health and Epidemiology, University of Ottawa, Ottawa, ON, Canada

Abstract

Today’s food systems are contributing to multiple intersecting health and ecological crises. Many are now calling for transformative, or even radical, food systems change. Our starting assumption in this Special Issue is the broad claim that the transformative changes being called for in a global food system in crisis cannot – and ultimately will not – be achieved without intense scrutiny of and changes in the underlying political economies that drive today’s food systems. The aim is to draw from diverse disciplinary perspectives to critically evaluate the political economy of food systems, understand key challenges, and inform new thinking and action. We received 19 contributions covering a diversity of country contexts and perspectives, and revealing inter-connected challenges and opportunities for realising the transformation agenda. We find that a number of important changes in food governance and power relations have occurred in recent decades, with a displacement of power in four directions. First, upwards as globalization has given rise to more complex and globally integrated food systems governed increasingly by transnational food corporations (TFCs) and international financial actors. Second, downwards as urbanization and decentralization of authority in many countries gives cities and sub-national actors more prominence in food governance. Third, outwards with a greater role for corporate and civil society actors facilitated by an expansion of food industry power, and increasing preferences for market-orientated and multi-stakeholder forms of governance. Finally, power has also shifted inwards as markets have become increasingly concentrated through corporate strategies to gain market power within and across food supply chain segments. The transformation of food systems will ultimately require greater scrutiny of these challenges. Technical ‘problem-solving’ and overly-circumscribed policy approaches that depoliticise food systems challenges, are insufficient to generate the change we need, within the narrow time-frame we have. While there will be many paths to transformation, rights-based and commoning approaches hold great promise, based on principles of participation, accountability and non-discrimination, alongside coalition building and social mobilization, including social movements grounded in food sovereignty and agroecology.

Keywords


 

"Watch the Video Summary"

 

  Check the full list of "Political Economy of Healthy and Sustainable Food Systems" special issue here

 

  1. Development Initiatives. Global Nutrition Report 2018: Shining a Light to Spur Action on Nutrition. Bristol, UK: Development Initiatives; 2018.
  2. FAO, UNICEF, WFP, WHO. The State of Food Security and Nutrition in the World 2021: Transforming Food Systems for Affordable Healthy Diets. Rome: FAO; 2021.
  3. Willett W, Rockström J, Loken B, et al. Food in the Anthropocene: the EAT-Lancet Commission on healthy diets from sustainable food systems. Lancet. 2019;393(10170):447-492. doi:1016/s0140-6736(18)31788-4
  4. High Level Panel of Experts on Food Security and Nutrition (HLPE). Nutrition and Food Systems: A Report by the High Level Panel of Experts on Food Security and Nutrition of the Committee on World Food Security. Rome: HLPE; 2017.
  5. High Level Panel of Experts on Food Security and Nutrition (HLPE). Food Security and Nutrition: Building a Global Narrative Towards 2030. Rome: HLPE; 2020.
  6. Swinburn BA, Kraak VI, Allender S, et al. The global syndemic of obesity, undernutrition, and climate change: the Lancet Commission report. Lancet. 2019;393(10173):791-846. doi:1016/s0140-6736(18)32822-8
  7. Heaver R. Strengthening Country Commitment to Human Development: Lessons from Nutrition. Directions in Development. Washington, DC: World Bank; 2005.
  8. Gillespie S, Haddad L, Mannar V, Menon P, Nisbett N. The politics of reducing malnutrition: building commitment and accelerating progress. Lancet. 2013;382(9891):552-569. doi:1016/s0140-6736(13)60842-9
  9. Harris J, Molly A, Clément C, Nisbett N. The Political Economy of Food. Institute of Development Studies (IDS); 2019.
  10. Baker P, Demaio A. The political economy of healthy and sustainable food systems. In: Lawrence M, Friel S, eds. Healthy and Sustainable Food Systems. Routledge; 2019. p. 181-192.
  11. International Panel of Experts on Sustainable Food Systems (IPES Food). The New Science of Sustainable Food Systems: Overcoming Barriers to Food System Reform. London: IPES Food; 2015.
  12. Pinstrup-Andersen P, Watson DD. Food Policy for Developing Countries. Ithaca, London: Cornell University Press; 2011.
  13. Ericksen PJ. Conceptualizing food systems for global environmental change research. Glob Environ Change. 2008;18(1):234-245. doi:1016/j.gloenvcha.2007.09.002
  14. Haddad LJ, Hawkes C, Achadi E, et al. Global Nutrition Report 2015: Actions and Accountability to Advance Nutrition and Sustainable Development. Washington, DC: International Food Policy Research Institute (IFPRI); 2015.
  15. Gaventa J. Finding the spaces for change: a power analysis. IDS Bull. 2006;37(6):23-33. doi:1111/j.1759-5436.2006.tb00320.x
  16. Walls H, Nisbett N, Laar A, Drimie S, Zaidi S, Harris J. Addressing malnutrition: the importance of political economy analysis of power. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.250
  17. Nisbett N, Gillespie S, Haddad L, Harris J. Why worry about the politics of childhood undernutrition? World Dev. 2014;64:420-433. doi:1016/j.worlddev.2014.06.018
  18. Clapp J, Fuchs DA. Corporate Power in Global Agrifood Governance. Cambridge: MIT Press; 2009.
  19. Fuchs DA. Business Power in Global Governance. Boulder, CO: Lynne Rienner Publishers; 2007.
  20. Hospes O, Brons A. Food system governance: a systematic literature review. In: Kennedy A, Liljeblad J, eds. Food Systems Governance. London, New York: Routledge; 2016. p. 13-42.
  21. Fuchs DA, Kalfagianni A. The causes and consequences of private food governance. Bus Polit. 2010;12(3):1-34. doi:2202/1469-3569.1319
  22. McMichael P. A food regime genealogy. J Peasant Stud. 2009;36(1):139-169. doi:1080/03066150902820354
  23. Baker P, Kay A, Walls H. Trade and investment liberalization and Asia's noncommunicable disease epidemic: a synthesis of data and existing literature. Global Health. 2014;10:66. doi:1186/s12992-014-0066-8
  24. Gonzalez CG. Trade liberalization, food security, and the environment: the neoliberal threat to sustainable rural development. Transnational Law and Contemporary Problems. 2004;14:419.
  25. International Panel of Experts on Sustainable Food Systems (IPES Food). From Uniformity to Diversity: A Paradigm Shift from Industrial Agriculture to Diversified Agroecological Systems. London: IPES Food; 2016.
  26. International Panel of Experts on Sustainable Food Systems (IPES Food). Too Big to Feed: Exploring the Impacts of Mega-Mergers, Consolidation and Concentration of Power in the Agri-Food Sector. London: IPES Food; 2017.
  27. Moodie R, Bennett E, Kwong EJL, et al. Ultra-processed profits: the political economy of countering the global spread of ultra-processed foods–a synthesis review on the market and political practices of transnational food corporations and strategic public health responses. Int J Health Policy Manag. 2021. doi:34172/ijhpm.2021.45
  28. Hawkes C. Uneven dietary development: linking the policies and processes of globalization with the nutrition transition, obesity and diet-related chronic diseases. Global Health. 2006;2:4. doi:1186/1744-8603-2-4
  29. Clapp J. Financialization, distance and global food politics. J Peasant Stud. 2014;41(5):797-814. doi:1080/03066150.2013.875536
  30. Burch D, Lawrence G. Towards a third food regime: behind the transformation. Agric Hum Values. 2009;26(4):267. doi:1007/s10460-009-9219-4
  31. Clapp J. The rise of financial investment and common ownership in global agrifood firms. Rev Int Polit Econ. 2019;26(4):604-629. doi:1080/09692290.2019.1597755
  32. Smith K, Lawrence G. Finance's social license? sugar, farmland and health. Int J Health Policy Manag. 2021. doi:34172/ijhpm.2021.11
  33. Clapp J. Food Security and International Trade: Unpacking Disputed Narratives. In: The State of Agricultural Commodity Markets 2015-16. Rome: Food and Agriculture Organization of the United Nations (FAO); 2015.
  34. Patel R. Food sovereignty. J Peasant Stud. 2009;36(3):663-706. doi:1080/03066150903143079
  35. Dauvergne P. The Shadows of Consumption: Consequences for the Global Environment. Cambridge: MIT Press; 2010.
  36. Garton K, Thow AM, Swinburn B. International trade and investment agreements as barriers to food environment regulation for public health nutrition: a realist review. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.189
  37. Milsom P, Smith R, Baker P, Walls H. Corporate power and the international trade regime as drivers of NCD policy non-decisions: a realist review. Health Policy Plan. 2021;36(5):820. doi:1093/heapol/czab013
  38. Baker P, Russ K, Kang M, et al. Globalization, first-foods systems transformations and corporate power: a synthesis of literature and data on the market and political practices of the transnational baby food industry. Global Health. 2021;17(1):58. doi:1186/s12992-021-00708-1
  39. Ralston R, Hil SE, da Silva Gomes F, Collin J. Towards preventing and managing conflict of interest in nutrition policy? an analysis of submissions to a consultation on a draft WHO tool. Int J Health Policy Manag. 2021;10(5):255-265. doi:34172/ijhpm.2020.52
  40. Sonnino R. Local foodscapes: place and power in the agri-food system. Acta Agric Scand B Soil Plant Sci. 2013;63(Suppl 1):2-7. doi:1080/09064710.2013.800130
  41. Hawkes C, Halliday J. What Makes Urban Food Policy Happen? Insights from Five Case Studies. International Panel of Experts on Sustainable Food Systems (IPES Food); 2017.
  42. Mason P, Lang T. Sustainable Diets: How Ecological Nutrition Can Transform Consumption and the Food System. Taylor & Francis; 2017.
  43. Wiskerke JS. Urban food systems. In: de Zeeuw H, Drechsel P, eds. Cities and Agriculture. London: Routledge; 2015. p. 19-43.
  44. Ingram J, Ericksen P, Liverman D. Food Security and Global Environmental Change. Routledge; 2012.
  45. Sonnino R, Lozano Torres C, Schneider S. Reflexive governance for food security: the example of school feeding in Brazil. J Rural Stud. 2014;36:1-12. doi:1016/j.jrurstud.2014.06.003
  46. Marsden T. From post-productionism to reflexive governance: contested transitions in securing more sustainable food futures. J Rural Stud. 2013;29:123-134. doi:1016/j.jrurstud.2011.10.001
  47. Schiff R. The role of food policy councils in developing sustainable food systems. J Hunger Environ Nutr. 2008;3(2-3):206-228. doi:1080/19320240802244017
  48. Lang T, Rayner G, Rayner M, Barling D, Millstone E. Policy councils on food, nutrition and physical activity: the UK as a case study. Public Health Nutr. 2005;8(1):11-19. doi:1079/phn2005654
  49. Acosta A, Fanzo J. Fighting Maternal and Child Malnutrition: Analysing the Political and Institutional Determinants of Delivering a National Multisectoral Response in Six Countries. Brighton, UK: Institute for Development Studies; 2012.
  50. International Food Policy Research Institute (IFPRI). Global Nutrition Report 2016: From Promise to Impact: Ending Malnutrition by 2030. Washington, DC: IFPRI; 2016.
  51. Canfield MC, Duncan J, Claeys P. Reconfiguring food systems governance: the UNFSS and the battle over authority and legitimacy. Development (Rome). 2021:1-11. doi:1057/s41301-021-00312-1
  52. Clapp J, Scrinis G. Big food, nutritionism, and corporate power. Globalizations. 2017;14(4):578-595. doi:1080/14747731.2016.1239806
  53. Clapp J. Food. Cambridge: Polity Press; 2020.
  54. Lie AL. ‘We are not a partnership’–constructing and contesting legitimacy of global public–private partnerships: the Scaling Up Nutrition (SUN) movement. Globalizations. 2021;18(2):237-255. doi:1080/14747731.2020.1770038
  55. Kraak VI, Swinburn B, Lawrence M, Harrison P. The accountability of public-private partnerships with food, beverage and quick-serve restaurant companies to address global hunger and the double burden of malnutrition. United Nations System Standing Committee on Nutrition: News. 2011;39:11-24.
  56. Fanzo J, Shawar YR, Shyam T, Das S, Shiffman J. Challenges to establish effective public-private partnerships to address malnutrition in all its forms. Int J Health Policy Manag. 2021. doi:34172/ijhpm.2020.262
  57. Challies E. The limits to voluntary private social standards in global agri-food system governance. The International Journal of Sociology of Agriculture and Food. 2013;20(2):175-95. doi:48416/ijsaf.v20i2.189
  58. Clapp J, Noyes I, Grant Z. The food systems summit's failure to address corporate power. Development (Rome). 2021:1-7. doi:1057/s41301-021-00303-2
  59. Brandon I, Baker P, Lawrence M. Have we compromised too much? a critical analysis of nutrition policy in Australia 2007–2018. Public Health Nutrition. 2021;24(4):755-765. doi:1017/s1368980020003389
  60. Schouten G, Glasbergen P. Creating legitimacy in global private governance: the case of the Roundtable on Sustainable Palm Oil. Ecol Econ. 2011;70(11):1891-1899. doi:1016/j.ecolecon.2011.03.012
  61. Changing Markets Foundation. Talking Trash: The Corporate Playbook of False Solutions to the Plastic Crisis. New York: Changing Markets Foundation; 2020.
  62. Trevena H, Neal B, Downs SM, et al. Drawing on strategic management approaches to inform nutrition policy design: an applied policy analysis for salt reduction in packaged foods. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.204
  63. Robinson E, Blake MR, Sacks G. Benchmarking food and beverage companies on obesity prevention and nutrition policies: evaluation of the BIA-Obesity Australia Initiative, 2017-2019. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.147
  64. Baker P, Hawkes C, Wingrove K, et al. What drives political commitment for nutrition? a review and framework synthesis to inform the United Nations Decade of Action on Nutrition. BMJ Glob Health. 2018;3(1):e000485. doi:1136/bmjgh-2017-000485
  65. Moodie R, Stuckler D, Monteiro C, et al. Profits and pandemics: prevention of harmful effects of tobacco, alcohol, and ultra-processed food and drink industries. Lancet. 2013;381(9867):670-679. doi:1016/s0140-6736(12)62089-3
  66. Cullerton K, Donnet T, Lee A, Gallegos D. Playing the policy game: a review of the barriers to and enablers of nutrition policy change. Public Health Nutr. 2016;19(14):2643-2653. doi:1017/s1368980016000677
  67. Roache SA, Gostin LO. The untapped power of soda taxes: incentivizing consumers, generating revenue, and altering corporate behavior. Int J Health Policy Manag. 2017;6(9):489-493. doi:15171/ijhpm.2017.69
  68. James E, Lajous M, Reich MR. The politics of taxes for health: an analysis of the passage of the sugar-sweetened beverage tax in Mexico. Health Syst Reform. 2020;6(1):e1669122. doi:1080/23288604.2019.1669122
  69. Carriedo A, Koon AD, Encarnación LM, Lee K, Smith R, Walls H. The political economy of sugar-sweetened beverage taxation in Latin America: lessons from Mexico, Chile and Colombia. Global Health. 2021;17(1):5. doi:1186/s12992-020-00656-2
  70. Lacy-Nichols J, Williams O. "Part of the solution:" food corporation strategies for regulatory capture and legitimacy. Int J Health Policy Manag. 2021. doi:34172/ijhpm.2021.111
  71. Fuchs D, Kalfagianni A. Private food governance: implications for social sustainability and democratic legitimacy. In: Utting P, Marques J, eds. Corporate Social Responsibility and Regulatory Governance. London: Springer; 2010. p. 225-247.
  72. Bachrach P, Baratz MS. Decisions and nondecisions: an analytical framework. Am Polit Sci Rev. 1963;57(3):632-642. doi:2307/1952568
  73. Thow AM, Apprey C, Winters J, et al. Understanding the impact of historical policy legacies on nutrition policy space: economic policy agendas and current food policy paradigms in Ghana. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.203
  74. Browne J, Gilmore M, Lock M, Backholer K. First nations peoples' participation in the development of population-wide food and nutrition policy in Australia: a political economy and cultural safety analysis. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.175
  75. Parker C, Carey R, Haines F, Johnson H. Can labelling create transformative food system change for human and planetary health? a case study of meat. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.239
  76. Lee AJ, Cullerton K, Herron LM. Achieving food system transformation: insights from a retrospective review of nutrition policy (in)action in high-income countries. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.188
  77. Baker P, Machado P, Santos T, et al. Ultra-processed foods and the nutrition transition: global, regional and national trends, food systems transformations and political economy drivers. Obes Rev. 2020;21(12):e13126. doi:1111/obr.13126
  78. Baker P, Friel S. Food systems transformations, ultra-processed food markets and the nutrition transition in Asia. Global Health. 2016;12(1):80. doi:1186/s12992-016-0223-3
  79. Sievert K, Lawrence M, Parker C, Baker P. Understanding the political challenge of red and processed meat reduction for healthy and sustainable food systems: a narrative review of the literature. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.238
  80. Scrinis G. Reformulation, fortification and functionalization: Big Food corporations’ nutritional engineering and marketing strategies. J Peasant Stud. 2016;43(1):17-37. doi:1080/03066150.2015.1101455
  81. Friedmann H. From colonialism to green capitalism: social movements and emergence of food regimes. In: Buttel FH, McMichael P, eds. New Directions in the Sociology of Global Development. London: Elsevier; 2005.
  82. Garnett T. Food sustainability: problems, perspectives and solutions. Proc Nutr Soc. 2013;72(1):29-39. doi:1017/s0029665112002947
  83. Harris J, Nisbett N. The basic determinants of malnutrition: resources, structures, ideas and power. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.259
  84. Rose N. From the Cancer stage of capitalism to the political principle of the common: the social immune response of "food as commons.” Int J Health Policy Manag. 2021. doi:34172/ijhpm.2021.20
  85. Meadows DH. Thinking in Systems: A Primer. Chelsea Green Publishing; 2008.
  86. Lawrence MA, Friel S, Wingrove K, James SW, Candy S. Formulating policy activities to promote healthy and sustainable diets. Public Health Nutr. 2015;18(13):2333-2340. doi:1017/s1368980015002529
  87. Lukes S. Power. New York University Press; 1986.
  88. Friel S. Redressing the corporate cultivation of consumption: releasing the weapons of the structurally weak. Int J Health Policy Manag. 2020. doi:34172/ijhpm.2020.205
  89. Russ K, Baker P, Byrd M, et al. What you don't know about the codex can hurt you: how trade policy trumps global health governance in infant and young child nutrition. Int J Health Policy Manag. 2021. doi:34172/ijhpm.2021.109
  90. Termeer CJ, Dewulf A, van Lieshout M. Disentangling scale approaches in governance research: comparing monocentric, multilevel, and adaptive governance. Ecol Soc. 2010;15(4):29. doi:5751/es-03798-150429