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A Global Perspective on Food Policy

I applaud Mark Bittman, Michael Pollan, Ricardo Salvador, and Olivier de Schutter for advocating the introduction of a national food policy in the U.S. Greater emphasis in our current farm legislation on nutrition, health, equity, and the environment is clearly warranted and long overdue. As the authors note, Americans’ access to adequate nutrition at all income levels affects educational and health outcomes for the nation as a whole. Poor nutrition thus plays a role in determining the level and distribution of economic and social wellbeing in the U.S, now and in the future. It is surprising that no one within the large circle of Presidential hopefuls has raised the topic of food, not just agriculture, as a major political issue for the 2016 election.

The U.S. is not unique. Virtually every country with an agrarian base has, at some point in history, introduced agricultural policies that support farmers and provide incentives for them to produce major commodities. At the time, governments have been able to justify these policies on several grounds: national security (avoiding excess dependence on foreign nations for food), economic growth (using agricultural surpluses as an engine of economic growth), and social stability (keeping its population well-fed to avoid social unrest). Once agricultural policies are implemented, they typically give rise to institutions and vested political interests that perpetuate a supply-side orientation to food and agriculture. In the U.S., the political institutions that govern food and agriculture have their roots in historical political precedents that date back to the 1860s, and later to the 1930s when the New Deal was promulgated. Farm interests have been entrenched in the U.S. political system for quite some time, and they cannot be easily removed.

There is a general rule for successful policies: Align incentives with objectives. A corollary to this principle is that objectives change over the course of economic development. For the United States in earlier eras, and for many developing economies in recent decades, meeting basic calorie needs has been the first order of business. This objective has been largely achieved through public investments in infrastructure (irrigation, roads), research and development, commodity support programs, incentives for private agribusiness development, and other supply-side measures.

With successful agricultural growth and rising incomes, many countries face a new set of food and nutrition challenges: eliminating “hidden hunger” (deficiencies in iron, vitamin A, calcium, zinc and other micronutrients), and abating the steady rise in obesity that results from a transition to diets rich in energy-dense carbohydrates, fats, and sugar. Hidden hunger affects some three billion people worldwide. It is prevalent among low-income households in almost all countries, impairs cognitive and physical development (especially among infants up to two years of age) and thus limits a nation’s educational and economic potential. Meanwhile, rates of obesity now surpass rates of energy-deficient hunger throughout the world, even in developing nations.

The objectives of food and agricultural policies in virtually all countries need to shift, on balance, from promoting staple food supplies to enhancing nutrition. I am not suggesting an abandonment of agriculture, but rather an enrichment of agriculture with more crop diversity to support the nutritional needs of all people. If improved nutrition is the objective, what are the correct incentives? Proper incentives will differ among countries, but will inevitably require a fundamental change in institutional structure. With a shift from supply- to demand orientation, there needs to be a transition from Ministries of Agriculture to Ministries of Food. After all, the main goals of a Ministry of Agriculture are to increase the volume of agricultural production and to improve economic growth in the agricultural sector. The main goal of a Ministry of Food, by contrast, is to enhance the nutrition and food security of the entire population.

Bittman, Pollan, Salvador, and de Schutter emphasize that replacing the U.S. Department of Agriculture (USDA) with a “U.S. Department of Food, Health, and Wellbeing” would be difficult at best. It would require unprecedented political will and cooperation among parties. The same can be said for institutional change in agricultural ministries throughout the world. Regardless of the challenges, however, nothing will change until the conversation surrounding food policies, politics, and institutions takes a major turn.

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FSE director Roz Naylor will give the opening plenary lecture at the 2nd International Conference on Global Food Security on October 12, 2015 at Cornell University. Naylor is William Wrigley Professor in Earth System Science, and senior fellow at the Stanford Woods Institute for the Environment and the Freeman Spogli Institute for International Studies at Stanford. 

In addition to Naylor's lecture on "Food security in a commodity-driven world," several FSE researchers will give talks and poster sessions during the five-day conference, including professors Marshall Burke and Eric Lambin, visiting scholar Jennifer Burney, postdoctoral scholar Meha Jain, and doctoral candidate Elsa Ordway.

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Walter P. Falcon
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It is the end of summer and time for another Iowa report. My wife and I own a medium-sized farm in East Central Iowa that produces corn and soybeans, and beef from a cow/calf herd. My day job is as Professor of International Agricultural Policy at Stanford University, typically working on hunger problems in Asia. The summer keeps me in direct contact with rural life in the Midwest. 

My previous Iowa postings have been dominated by weather—severe drought in 2012, massive flooding in 2013, and tornados in 2014. In a different way, weather features again this year. We had 10 inches of rain and a hailstorm during the first 10 days following my June return from California. But after that episode, the weather has been nearly perfect for our locale. Things could still go wrong—a typical farmer comment—but at the moment, we are looking at near-record yields on our farm. My guess is 210 bushels per acre for corn, and 65 bushels per acre for soybeans, both about 10% higher than for recent years. 

Crops throughout the region look generally good, and the following couplet is a standard feature of local conversations: 

“Don’t the crops look great?”  
“Yeah, but they aren’t worth nothing.”  

A sharp run-up in corn prices the last two weeks of June—from $3.50 to $4.40 per bushel—left farmers hopeful with what would turn out to be faulty expectations. As many waited for further price increases before selling, the good weather and the economic slow down in China caused corn prices to tumble. By Sept 1, prices were back at $3.50. These low prices left many farmers with dashed expectations, substantial amounts of 2014 corn in farm storage, and the prospects of a large upcoming October harvest. Nor will crop insurance help very much. The combination of yields and prices this year will leave most farmers just outside the range that would qualify them for 75%-revenue-protection payments. 

Few outside the farming community realize that marketing decisions are often more important than production in defining a successful farm year. Few also appreciate the differential impact on Iowa’s general prosperity from the $7 corn that prevailed in 2012-13, versus the current $3.50. 
 

graph showing rise and steep fall in corn prices


Gloom is not the only thing that has been rolling across the landscape. Two parades really had to be seen to be appreciated. Each year since 1973, the state has hosted a bike ride across Iowa called Ragbrai. It is a weeklong activity that starts at the Missouri River to the west, and ends 500 miles to the east at the Mississippi River. It has grown into a massive affair that attracts some 15,000 riders.  

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Photo Credit: C. Benz 

This year’s ride was special, at least for us. This mass of rolling humanity came within two miles of our farm, and it included a sizeable number of Stanford faculty and students (including my boss, pictured below) who, among others, made mini-detours to visit us. What were most interesting to my wife and me were the impressions expressed both by the bikers and the local hosts. 

The riders marveled at the rolling topography of Iowa; the vast expanses of corn and soybeans; the welcoming hospitality of Iowans; the infinite ways pork could be served on a stick; and the best sweet corn in the world! The locals were bemused that so many sane people of all shapes and sizes would voluntarily ride 500 miles in the heat and rain; amazed by the short-term chaos that 15,000 cyclists could cause in small rural communities that were attempting to move machinery and feed cattle; and pleased by the magnitude of the expenditures. The latter was deftly described by a neighbor as “our own economic stimulus package,” and more pointedly summarized by a local headline, “Circus, Economic Windfall, or Occupying Army?” 
 

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roz iowa bike race 2


 Photo Credit: R. Naylor

Politicians formed the second parade (charade?) that has been rolling across the state. Iowa—with the dubious honor of having the first primary/caucus—is a genuinely purple state. It voted for President Barack Obama in 2012 and for Senator Joni Ernst in 2014. Iowans pride themselves on being able to pick winners and on being stubbornly independent. The prevailing general mood at the moment, however, is some combination of confusion and disgust. Donald Trump draws the most comments. And while he leads the polls, I have yet to hear anyone (literally) this summer say that he or she favored him. Time will tell what Iowans really believe.


Nowhere was the comedy and chaos more vivid than at the recently completed Iowa State Fair. Some 15 presidential candidates showed up. Most of them spoke at the fair’s “Soapbox Corner” before conspicuously casting their kernel-of-corn vote at the straw (corn?) ballot table. They also had the obligatory pictures taken with the life-sized cow sculpted in butter, the fair’s largest bull (there must be some symbolism here), and the fair’s heaviest pig. The latter was a 500-pound specimen named Mac. (I was disappointed that an earlier winner, my namesake “Wally”, was not in the competition.) And to no one’s surprise, all candidates thought that corn-based ethanol was a really good idea. Most of them even expressed favor with the fair’s latest cuisine contribution—the Bomb—brisket, wrapped in bacon, served on a stick! 
 

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wally cafe outside


Photo Credit: R. Naylor 

Readers of previous reports will be pleased to know that the 1868 Waubeek general store and restaurant still serves as the morning gathering place. It has changed hands, but continues its long tradition of watery coffee and stale pastry. (By request, I have included pictures; I am California hatless, plus a shot of the outside.) Besides prices, bikers, and politicians, three new topics of conversation have cropped up: water, cover crops, and weeds. All three are environmental issues that are distinctly operational. They also remind me of just how much information is exchanged around tables such as this one, though on any given morning that conclusion is not always obvious!

 
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wally cafe
Photo Credit: R. Naylor 


By far the most controversial topic of the summer has been water. (And to be clear, the issue is about water quality and the nutrients carried in the water, not about water supplies or allocations.) Many farmers realize that nutrient runoff from livestock operations and from fertilizer applied to fields is a very serious problem; most of them are also loathsome about EPA efforts to redefine and regulate what constitutes water flows in the U. S. 

During the last week in August, the EPA announced new clean-water rules that would give the agency new jurisdiction over bodies of water (and land), including many in agriculture, which were previously unregulated. But it remains to be seen which bodies of waters would be covered, and which specific agricultural situations that would be exempted from the rules. Six states have sued the EPA, and the question of when or if the rules will be implemented is now caught up in the courts. The Farm Bureau has declared an all-out offensive against the rules, and farm publications have added further fuel to the fire. To complicate matters even more, the Des Moines Water Works has brought suit against three counties upstream of its water plant that would require farmers to change practices and/or make investments to reduce nutrient flows (particularly nitrates) into the Raccoon River. 

Most scientists and many farmers believe that nutrient runoff constitutes the largest remaining environmental problem facing agriculture. Thus the fight, in many ways, is less about the problem, and more about philosophy. Most farmers prefer voluntary solutions arranged with the state or the USDA. They typically dislike mandatory rules of any sort, and they are particularly concerned that regulations might be of the one-size-fits-all character. The discourse is inflamed by uncertainty: the EPA has yet to write all of the regulations, and farmers simply do not know what to expect. In the absence of information, they fear the worst. Everyone I talked with had a relevant question. Will we need to get a permit to spread manure? How will drainage tiles that empty into or near creeks be handled? Will we need to file a nitrogen plan for every farm that specifies amounts and timing of fertilizer applications? On our farm, for example, we have a flowing creek that traverses a large permanent pasture. The creek provides water for the cowherd, which has direct access to it. What, if anything, will need to be changed in that arrangement? All of us wonder about the flexibility in timing and scope that will be accorded farmers who may be faced with large corrective investments. Many also fear that the regulators will know little about agricultural practices. In short, what waters are to be regulated, for what purposes, and with what instruments are issues still to be resolved? At the moment, there is considerable heat, but very little light about the answers. 

Virtually all Iowa farmers have transitioned to minimum tillage systems; plowing has become a field operation of the past. This change in tillage also creates new cropping opportunities. 
 

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tillage radish usda


Photo Credit: USDA


Five years ago, there was virtually no talk about or use of “cover crops.” These crops are sown in residues immediately after corn or soybean harvest. Certain of them survive the winter, but others do not. Radishes (shades of the English agricultural revolution, circa 1700!) produce long roots that punch holes in clay layers of the soil, thereby assisting drainage. They can also be grazed. Small grains are also being seeded, which add to add organic matter and can sometimes be chopped as forage for dairy or beef operations. 
 

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triticale

Photo Credit: Mühlhausen/landpixel


Cover crops are clearly still a work in progress, but they provide an interesting example of active on-farm experimentation. Best solutions seem to vary from farm to farm—from no cover, to radishes, to triticale—and seem importantly dependent on particular crop-livestock combinations. Discussions about the use of triticale—a cross between rye and either bread wheat or durum—were of particular interest to me. I worked with Norman Borlaug at the International Wheat and Maize Improvement Center in Mexico during the 1980s to develop modern varieties of this crop, but it has been slow to find appropriate niches in cropping systems around the world. In the 1980s, I never even contemplated that Iowa might be such a place. 

Several forces drive the new concern about weeds. Falling crop prices have squeezed profit margins severely, causing farmers to look seriously at each cost component. For the first time, I have heard farmers question new seed varieties (virtually all GMOs), both because of their cost and their effectiveness. They increasingly wonder if the $200 seed-cost-per-acre for corn is justified. The current year, with its excellent growing season, meant there was less need for certain stacked traits such as drought resistance. Moreover, the year was equally good for weeds, whose resistance to major herbicides like Roundup seemed to be spreading. 

Water hemp, in particular, gave soybean farmers grief, and is causing them to rethink seed-weed strategies. They worry about the consequences from applying new combination-herbicides (some still under various reviews) that attack both grasses and broad-leafed weeds. They are particularly concerned that spraying some of the new products will also destroy the grasses in waterways left specifically to prevent water erosion. 

My conjecture is that most farmers will still use the specialized seeds next year. I predict, however, that they will also be searching more carefully for lower-cost ways—both via seeds and herbicides—to manage weeds. The growing weed resistance problem has begun to scare them—a recent Greenwire Poll indicates that 90% are worried—and has belatedly driven home the difficulties that arise from overuse of only one or two herbicides. 
 

 
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cow calf


No Iowa report is complete without some cattle commentary. 

My father was a cattle feeder, and some of those “cattle genes” carried forward a generation. I grew up knowing a lot about purebreds, about corn and soybean-meal feed rations, and about 2-pound-per-day rates of gain that produced 1100-pound animals for sale. Fast forward to 2015. When I look around, virtually all cattle have been crossbred for size and vigor (though in the market they may still be advertised as Angus!). Soybean meal has dropped completely out of the rations being fed in our county, having been replaced by the high-protein distillers grain, the by-product of making corn sweeteners and ethanol. Rates of gain are now 3.25 pounds per day, and finished animals are sold at 1500 pounds. What has not changed, however, is the riskiness of the enterprise. Even with cheap corn, buying 700 pound feeders for $2.25 per pound, and selling 1500 pound steers at $1.45 per pound has not been a great way to get rich in 2015! 

My final impression of the summer is a memorable one: rolling down the Mississippi River on a paddle boat, celebrating my wife’s and my birthdays with good friends, viewing a glorious sunset, and eating world-class prime rib. Now that’s the way to get ready for a new year of Stanford classes.

 
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Photo credit: flickr/Lance and Erin

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A research team led by FSE director Rosamond Naylor has won a $400,000 multi-year grant to study how to create sustainable palm oil supply chains that promote economic growth and environmental sustainability in Indonesia and West Africa. 

Palm oil has become one of the world’s fastest growing and most valuable agricultural commodities. Global production of palm oil doubled in both volume and area each decade between 1970 and 2010, and is expected to double again by 2025. The windfall profits from this rapid expansion have come at a cost of tropical deforestation, biodiversity loss and rising greenhouse gas emissions, and in many cases the economic benefits have bypassed local smallholder farmers. 

"When we talk about sustainability in the palm oil industry, we mean more than saving trees," said Naylor. "The question we are getting at with this project is how can the industry boost rural incomes and alleviate poverty among smallholder farmers, while also reducing deforestation and carbon emissions. We are able to tackle this problem from social, economic and environmental angles because we have a truly cross-disciplinary group of researchers. That's a key strength of this team, and a key strength of Stanford." 
 

Naylor and her team of Stanford faculty, scholars and students will undertake the three-year project with funding from the Stanford Global Development and Poverty Initiative (GDP), launched in Spring 2014. GDP aims to transform Stanford’s capacity to speak to the challenges of poverty and development. This year, GDP awarded more than $2 million to 13 faculty research teams from across the university. 

The new project marks the first venture that connects Stanford’s expertise in sustainability with the Graduate School of Business’ experience in value chain innovations. The team will conduct an evaluation of value chain opportunities for sustainable palm oil production, build corporate partnerships to improve smallholder incomes, and engage in policy advising. 

GDP is a joint initiative of the Stanford Institute for Innovation in Developing Economies (SEED) and the Freeman Spogli Institute for International Studies (FSI). SEED is housed within the Stanford Graduate School of Business. 

Rosamond Naylor is William Wrigley Professor of Earth System Science and Senior Fellow at the Stanford Woods Institute for the Environment and at FSI.

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FSE director Roz Naylor has been selected to deliver the 6th annual Ned Ames Honorary Lecture at the Cary Institute of Ecosystem Studies in Millbrook, NY on Friday, April 24. Her lecture on "Feeding the World in the 21st Century," is free and open to the public, and a video recording of the event will be available on the Cary Institute's website shortly after the talk.

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Indonesia produces more palm oil and consumes more palm oil per capita than any country in the world. This article examines the processes through which Indonesia has promoted palm-oil consumption and some of the consequences of that promotion. Partial equilibrium modelling shows that Indonesia's remarkable increase in palm-oil consumption since 1985 is not largely attributable to population and income growth. Instead, much of this consumption growth has resulted from substitution away from coconut oil, facilitated by government policies on technology, pricing, distribution, and trade. The switch from coconut oil to palm oil in Indonesia was associated with increased land conversions to agriculture and diminished smallholder competitiveness. Despite lower rates of cooking-oil substitution in the future, simulations suggest that Indonesia's total palm-oil consumption in 2035 will be at least double that of 2010.

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Tannis Thorlakson, a first-year PhD candidate in the Emmett Interdisciplinary Program in Environment and Resources (E-IPER) in Stanford's School of Earth, Energy and Environmental Science, has won a three-year grant from the National Science Foundation to support coursework and research on the palm oil industry in Indonesia. Thorlakson's proposed project, "Is Certification Enough? The socio-economic and environmental impacts of certified palm oil in Indonesia," was one of 2,000 awards selected from a pool of 16,000 applications. 

Thorlakson's research interests include the interactions between farmers and the firms that buy their produce, as well as how firms' supply chain sourcing strategies impact socio-economic and environmental outcomes in the agriculture sector. 

"I am thrilled, though not surprised, that the NSF selected Tannis for this prestigious award," said Professor Roz Naylor, one of Thorlakson's faculty advisors. "Her research on how multinational companies can make palm oil and other major agricultural commodities more environmentally sustainable is important and timely. It is a welcome addition to the work being done by many at Stanford to tackle the big social, economic and environmental questions about the fast-growing palm oil sector."

Thorlakson will spend the summer of 2015 in Cape Town, South Africa, working with a food retailer to understand the impacts of the company's sustainability initiative on the farmers in the retailers supply chain. 

 


 

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Senior Fellow, Stanford Woods Institute and Freeman Spogli Institute for International Studies
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Rosamond Naylor is the William Wrigley Professor in Earth System Science, a Senior Fellow at Stanford Woods Institute and the Freeman Spogli Institute for International Studies, the founding Director at the Center on Food Security and the Environment, and Professor of Economics (by courtesy) at Stanford University. She received her B.A. in Economics and Environmental Studies from the University of Colorado, her M.Sc. in Economics from the London School of Economics, and her Ph.D. in applied economics from Stanford University. Her research focuses on policies and practices to improve global food security and protect the environment on land and at sea. She works with her students in many locations around the world. She has been involved in many field-level research projects around the world and has published widely on issues related to intensive crop production, aquaculture and livestock systems, biofuels, climate change, food price volatility, and food policy analysis. In addition to her many peer-reviewed papers, Naylor has published two books on her work: The Evolving Sphere of Food Security (Naylor, ed., 2014), and The Tropical Oil Crops Revolution: Food, Farmers, Fuels, and Forests (Byerlee, Falcon, and Naylor, 2017).

She is a Fellow of the Ecological Society of America, a Pew Marine Fellow, a Leopold Leadership Fellow, a Fellow of the Beijer Institute for Ecological Economics, a member of Sigma Xi, and the co-Chair of the Blue Food Assessment. Naylor serves as the President of the Board of Directors for Aspen Global Change Institute, is a member of the Scientific Advisory Committee for Oceana and is a member of the Forest Advisory Panel for Cargill. At Stanford, Naylor teaches courses on the World Food Economy, Human-Environment Interactions, and Food and Security. 

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Ling Cao completed her Ph.D. in Natural Resources and Environment at the University of Michigan, Ann Arbor. Trained as an agronomist and environmental scientist, she has focused on interdisciplinary research at the interface between the sustainability of food and natural systems. Her dissertation research quantitatively assessed the sustainability of emerging shrimp farming systems and technologies, and in particular focused on applying these results to producers and consumers in China and US. In early 2018, Cao was selected as a recipient of the “National Thousand Talents Program for Distinguished Young Scholars,” an initiative of the Chinese government to attract high-level talent from overseas to work full-time in China. In addition, she was also selected as a fellow of the “Shanghai Thousand Talents Program” which aims to recruit top-talent who are leaders in their fields to help enhance Shanghai's future development and sustainable competitiveness. Cao currently works as an associate professor in the Institute of Oceanography at Shanghai Jiao Tung University and continues to work with Roz Naylor and colleagues on fisheries and aquaculture research.

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