Memorandum submitted by the Department
for Environment, Food and Rural Affairs (SFS 57)
1. Following the invitation of 11 December
2008 from the House of Commons' Environment, Food and Rural
Affairs Select Committee to submit written evidence for its inquiry
entitled Securing food supplies up to 2050: the challenges
for the UK, this memorandum focuses on the steps Defra is
taking to ensure we remain food secure in the UK now and in the
future, and in light of the challenge to feed the globe's rapidly
growing population sustainably.
INTRODUCTION
2. Defra's response to the Committee's terms
of reference attempts to provide an overview of the department's,
and Government's work to ensure a sustainable and secure food
supply.
3. The Government's definition of UK food security
is: "for people to have access at all times to sufficient,
safe, sustainable and nutritious food, at affordable prices, so
as to help ensure an active and healthy life." Our work
on food security is built on analysis carried out over some years,
most recently in Defra's analytical study Food Security and
the UK (December 2006),[1]
and followed by our discussion paper Ensuring the UK's Food
Security in a Changing World, issued last July.
4. The Cabinet Office/Prime Minister's Strategy
Unit report Food Matters set out four strategic policy
objectives, which the Government has endorsed.[2]
Our approach to food policy is to join up the health, social,
environmental and economic aspects. This will be driven forward
by a new Cabinet sub-committee and co-ordinated by a Food Strategy
Task Force. It will include work that Defra, the Department of
Health, the Food Standards Agency, and a number of other departments
are taking forward in partnership. Defra's new co-ordinating role
on food policy means working with other departments on wider issues
than before such as the social impacts of food policy. The newly
created Council of Food Policy Advisers will assist with this.
How robust is the current UK food system? What
are its main strengths and weaknesses?
The UK food system
5. The UK food system is a significant part
of the UK economy. Consumer expenditure on food totalled £172 billion
in 2007—split between expenditure on catering services (£82 billion)
and food and drink for the home (£90 billion). The UK
exported £11.4 billion worth of food and drink, the
majority of which was highly processed (58% highly processed;
35% lightly processed; 7% unprocessed). The agri-food sector as
a whole contributed £79.4 billion (8.6%) to national
market sector GVA in 2006, and employed 3.2 million people.
In 2007 the UK imported £26.6 billion worth of
food and drink imports, of which £5.4 billion consisted
of unprocessed agricultural products.
6. The diversity of the supply of our food products
in the UK, including domestically, helps to spread risks from
potential disruptions such as terrorism or floods. It also enables
us to choose from a rich selection of nutritious foods. In 2006,
26 countries, including the UK, accounted for 90% of our
food supply, up from 22 countries in 1996. Currently, 34 countries
supply the UK with at least 0.5% of our food imports, with no
single country accounting for more than 13% (Netherlands having
this share), and the vast majority of our food (69% in value)
coming from our stable trading partners in the European Union.[3]
7. The food sector has demonstrated its
ability and flexibility in dealing effectively with emergencies,
for example, the flooding in Gloucester and the southwest in 2007.
During the floods the supermarkets remained open and able to provide
food to the affected populations and, with the dairy and alcoholic
drinks industry, supported the provision and distribution of water.
Strengths and weaknesses
8. UK farming continues to show its strength
and resilience in the face of challenges. The biggest wheat harvest
in UK history in the last year is testimony to this, as is the
9% increase in real terms in total farming income. As stewards
of the land, our farmers know that UK food production has both
positive and negative impacts on the environment. There are examples
of good environmental practice, but also challenges for us in
meeting our objective of a more environmentally sustainable food
chain. Positively, agriculture has shaped the landscape that we
know and value and, through appropriate management, can bring
significant benefits to the UK's environment. However, the sector
is also heavily dependent on oil, energy and water, all of which
are increasingly scarce. Agriculture also contributes to climate
change: direct emissions from animals accounted for 3% of UK greenhouse
gas emissions in 2005. Globally, livestock farming accounts for
an estimated 18% of greenhouse gas emissions if associated land-use
changes are taken into account. Waste is an issue across the food
chain—the main sources of waste being food and packaging.
10% of all UK industrial and commercial waste comes from the food
industry and consumers throw away an estimated 30% of the food
they buy, half of which is edible.
9. The effects on health of what we eat in the
UK are also significant. While consumers are increasingly interested
in healthy eating, at current levels 40% of us will be obese by
2025, and 60% by 2050. Current dietary habits also increase the
risk of developing cardiovascular disease, diabetes, and cancer.
70,000 premature deaths a year could be avoided if, nationally,
our diets matched nutritional guidelines. We also need to consider
the accessibility and affordability of healthy food to those on
the lowest incomes, particularly at a time of rising food prices.
10. As well as its dependency on energy,
oil and water, our food system also depends on telecommunications
and transport. Reliability and diversity of supply in these areas
remains essential.
11. Our food system benefits from the number
and diversity of its supply chains, manufacturing and retailers,
and the variety of foods that can be used and substituted. By
any objective measure and despite recent price increases, the
UK currently enjoys a high level of food security. An initial
assessment of the five main elements of food security set out
in July's Defra discussion paper[4]
indicates that food safety, access to and availability of safe
and nutritious food, and the resilience of the food chain are
the strong points of the UK food system. Making our food system
more sustainable, more secure, and delivering the objectives set
out in Food Matters remains central to our work.
How well placed is the UK to make the most of
its opportunities in responding to the challenge of increasing
global food production by 50% by 2030 and doubling it by
2050, while ensuring that such production is sustainable?
12. As last July's Defra discussion paper
on food security made clear, UK food security needs to be put
in a global context. The Government is committed to ensuring that
the UK is a leader internationally in helping to increase global
food production in a sustainable way. Agricultural research and
development has been shown to deliver a relatively high rate of
return, and will help to deliver sustainable increases in production.
The UK has announced its intention to invest £400 million
in international agricultural research over the next five years.
13. Domestically, the Government wants to see
UK producers competing for and winning markets at home and abroad,
now and in the future. Our agriculture is strong and resilient
with total farming income rising. As well as producing record
amounts of wheat in 2008, levels of beef and veal exports nearly
trebled. UK agriculture makes a significant contribution to our
food security as part of a network of global partners able to
trade freely with ourselves and other nations. British agriculture
should produce as much food as possible. The only requirements
should be that consumers want what is produced and that the way
our food is grown sustains our environment and safeguards our
landscape.
14. The UK is at the forefront of proposals
for a Global Partnership on Agriculture and Food Security (GPAFS)—an
idea first launched at the FAO's High Level Conference in June
of last year. GPAFS aims to complement the UN's Comprehensive
Framework for Action (CFA), and act as a mechanism for the mobilisation
of resources for agriculture and food for both the short and longer-term.
Central to our efforts is the need to ensure that the global production
increases required in future are sustainably achieved and take
account of climate impacts.
15. Jane Kennedy, Minister for Farming and
the Environment, is co-sponsoring (with Mike Foster at DfID) Professor
John Beddington's Foresight study on the future of food and farming.
The Chief Scientist's study will examine the global food system,
and its implications for developments both here and abroad, asking
how we can meet the challenge of feeding nine billion people by
2050.
In particular, what are the challenges the UK
faces in relation to the following aspects of the supply side
of the food system
Soil quality
16. In some parts of the UK we already have
low levels of soil cover. However, there is little evidence to
suggest that production will be affected significantly by soil
degradation such as erosion, compaction and organic matter decline
in the near future. These remain on-going issues though, and recent
studies suggest organic matter levels are declining in some areas.
17. Precautionary measures aiming to address
soil degradation are already in place under CAP cross-compliance
and agri-environment measures. The Government plans to improve
soil monitoring to ensure it has a good understanding of trends
and risks. CAP cross-compliance and agri-environment measures
are also being kept under review.
18. There is a danger that the impacts of
climate change may add to rates of erosion, increase the amount
of waterlogged soil, and increase levels of compacted soils. In
addition, temperature rises, and changes in rainfall patterns
are likely to affect soil moisture levels which will affect productivity
and require increased irrigation. There will also be risks of
salinisation from irrigation. Soils act as important carbon stores
and research has been commissioned to understand the likely impacts
of climate change on key soil threats, and the actions that will
be needed once these likely impacts are understood.
Water availability
19. Abstracting water unsustainably can
have serious environmental impacts, negatively affecting habitats
and biodiversity and any flood protection they provide. It can
also have a negative effect on water quality, reducing the ability
of rivers to dilute pollutants.
20. By importing food and other products, the
UK is also importing "virtual" or "embedded"
water—the water used to produce a product in another country.
As a heavy importer of virtual water, the UK has a substantial
"external water footprint" (recent estimates by the
WWF suggest this to be 62%), and hence the potential to be putting
pressure on water resources outside of the UK. The impact of the
UK's external water footprint can be positive or negative—and
will depend on conditions in the country of origin. Defra is currently
discussing potential further work on embedded water, including
future policy and research requirements with stakeholders.
The marine environment
21. Defra published Fisheries 2007,
its long-term vision for sustainable fisheries in October of that
year to guide future fisheries policy. Focussed on activities
in England and within British limits adjacent to England, it strives
for a balance between the Government's economic, social and environmental
priorities for sustainable marine fisheries.
22. The Common Fisheries Policy (CFP) provides
the policy framework governing the exploitation of marine fish
resources in EU waters. In its negotiations on fishing opportunities
in EU and other international waters, the UK's aim is to achieve
a balanced and fair settlement which promotes the long-term sustainability
of fish stocks, the economic sustainability of the UK fishing
industry, and the protection of vulnerable species.
23. Sustainable fisheries must also be a
global priority. Fish make up half the dietary protein for 400 million
people in the world's poorest countries, and a fifth of protein
nutrition in developing countries as a whole. Additionally, fish
exports from developing countries are a significant element of
national income.
24. Illegal, unreported and unregulated
(IUU) fishing remains a major threat not just to the world's fish
stocks, but to its marine biodiversity, and the livelihoods and
security of coastal communities. This problem is particularly
critical for developing countries, now that many western fisheries
are already heavily fished and well controlled. With strong UK
support, the EU has introduced a new Regulation to prevent, deter
and eliminate the import of IUU fishery products into the Community.
The science base
25. Support to encourage thriving and sustainable
farming and food industries in the UK, and in reducing the negative
impacts of farming on the environment, must be supported by research
and development programmes. These include sustainable farming
systems and biodiversity, agriculture and climate change, agriculture
and sustainable water management, resource efficient and resilient
food chains, and plant health. Underpinning many of the research
capability needs are expertise and facilities in plant, animal
and soil science, a significant proportion of which are provided
by research institutes and organisations. There are also several
UK university departments with specific expertise. Collectively,
these research providers constitute a fairly comprehensive research
base for agricultural science and associated environmental considerations.
26. Defra provides £68 million a year
in research funding for farming and food including £39 million
on animal health and welfare. The BBSRC invests £185 million
a year, the Agriculture and Horticulture Development Board £20 million,
and industry and NGO contributions to LINK research are about
£6 million. Defra has also announced a new national
research centre for food and the environment which will strengthen
Defra's research capability. The Food and Environment Research
Agency will bring together a wide-range of expertise. It will
strengthen our work in plant and crop protection and in environmental
risk assessment, help us respond to crises speedily, and assist
in cutting delays for businesses trading in the UK or overseas.
Research also needs to respond to new problems as they arise;
Defra's recent announcement of additional funding for bee health
and research is an example of this.
27. We have some concerns that expertise
in agricultural sciences, and in specific technical areas (for
example, soil science, weed science, "whole organism"
biology, agricultural engineering), are not being replaced; universities
are no longer teaching relevant courses, and long-term career
prospects are limited. Additionally, future requirements are likely
to be for interdisciplinary, socio-economic science, modelling
and systems-based approaches alongside these more traditional
disciplines. An example might be integrating expertise in effects
of climate change and other pressures on farming systems with
socio-economics, to feed into overall policy development.
The provision of training
28. As well as good farming skills, farmers
need business and environmental skills in order to succeed. The
Government is working with the industry to help it meet its challenges
and ensure the right skills are developed.
29. Defra is supporting Fresh Start, an industry-led
initiative which provides training and mentoring for new or recent
recruits to the industry, and also a matchmaking service identifying
potential opportunities for participants.
30. In addition, the Agri-skills Forum has
been formed to help establish a Skills Agenda, owned by the industry,
to re-skill and raise professional standards. A skills group has
been established, consisting of Lantra, the National Farmers'
Union, Landex (an association of further and higher education
colleges), and the Agricultural and Horticultural Development
Board. Its role is to encourage farmers and growers to value and
participate in skills and knowledge development, and to influence
educators and the Government to meet industry needs.
Trade barriers
31. As July's Defra discussion paper on
food security made clear, we believe that the global marketplace
for food needs to be freed from the distorting effects that subsidies
and import tariffs have on producers worldwide. The World Bank
has shown that greater liberalisation of trade would result in
increased farm output in most of the world, including 5-6% a year
in Africa. The tariff and subsidy regime under the EU's CAP keeps
prices for consumers artificially high in the EU and in 2007 the
cost of EU agricultural policy to EU consumers was €34 billion.
32. The UK still considers that agreeing a balanced
Doha deal via the WTO offers us the best opportunity to make the
global trading system fairer, and we will continue to work within
the EU for reform of the CAP to make it less trade distorting
and more sustainable.
The way in which land is farmed and managed
33. Farmers have an important role not only
in food production but as custodians and guardians of the countryside
and the environment. UK agricultural holdings represent 77% of
our total land area, and the challenges presented by climate change
to the industry are large.
34. Since the CAP reform of 2003, farmers are
required to comply with a set of Statutory Management Requirements
(SMRs) and keep their land in Good Agricultural and Environmental
Condition (GAEC) in order to qualify for the full single payment
and other direct payments. The SMRs relate to the areas of public,
animal and plant health, environment and animal welfare. The standards
of GAEC relate to the issues of soil erosion, soil organic matter,
soil structure and ensuring a minimum level of maintenance, and
avoiding the deterioration of habitats. Maintaining the quality
of the soil means that the soil will continue to sustain production.
35. Farmers can also voluntarily opt to
join Environmental Stewardship (ES) schemes. ES provides funding
to farmers and land managers in England who deliver effective
environmental management on their land, and has the following
primary objectives: wildlife conservation, maintaining and enhancing
landscapes, protecting the historic environment and natural resources,
and promoting public access and understanding of the countryside.
36. Climate change is having an increasing
impact on farming and land management, but options exist for farmers
to help them cope with, and take advantage of, the changes. However,
more work remains to be done to meet these challenges. Farmers
and land managers need to be aware of and manage risks climate
change presents to their businesses. Farmers have a responsibility
to reduce their greenhouse gas emissions by, for example, providing
animals with diets that specifically match their nutritional requirements,
and by being as energy efficient as possible. There is a need
for further research and policy analysis, and Defra is undertaking
a specific programme of research on agriculture and climate change
(around £5 million in 2007-8), comprising projects in
the following areas: measuring emissions from agriculture; mitigating
agricultural nitrous oxide and methane emissions; climate change
impacts and adaptation; energy in agriculture and food; bio-energy;
and renewable materials.
37. Globally, the UK has been leading the
call to reaffirm the Millennium Development Goal commitments,
including MDG 7 on ensuring environmental sustainability.
This covers a range of subjects—CO2 emissions, water,
biodiversity, sanitation, forests and fisheries among them. It
is crucial, therefore, in protecting the natural resources on
which the poor depend most, and to achieving the other MDGs including
that on hunger.
What trends are likely to emerge on the demand
side of the food system in the UK, in terms of consumer taste
and habits, and what will be their main effect? What use could
be made of local food networks?
38. Evidence even up to last year indicated
that UK consumers are retaining their growing interest in food,
in particular the health, quality, origins and ethical aspects.[5]
Defra's latest expenditure and food survey[6]
indicates:
— A continuation in the downward trend
of purchases of less healthy foods; purchases of whole milk, white
bread, some meat products[7]
and soft drinks have dropped.
— Average energy intake per person has
dropped, along with intake of saturated fatty acids, sodium, and
a big drop in the intake of added sugars (i.e., sugars not found
naturally in, for example, fruit).
— Fruit and vegetable purchases are
rising slowly.
39. A report from market analyst Mintel
in September 2008 suggests that locally sourced food is among
the most buoyant food categories in terms of growth, following
a steady upward trajectory from 2003 to 2008. In October
Mintel said that manufacturers offering quality premium goods
are likely to be resilient in any market turbulence. The success
of direct selling by farmers, suggests that the interest in local
food networks will continue and grow for the foreseeable future.
40. We also expect to see the following
consumer trends emerge in 2009:
— Less food waste through greater awareness
of the amount of food we waste in the UK and its cost in both
personal financial and environmental terms.
— A move away from premium to standard
and basic supermarket product lines.
— More flexibility and willingness
to compare products, brands and retailers on price—there
is evidence this is already happening with the rise in purchases
of own-brand products.
— A preference when dining out for
consumers to choose less expensive places.
What role should Defra play both in ensuring that
the strengths of the UK food system are maintained and in addressing
the weaknesses that have been identified? What leadership and
assistance should Defra provide to the food industry?
41. Defra is focused on working with the
sector to achieve a sustainable, secure and healthy food supply,
and a thriving food and farming sector. The Food Industry Sustainability
Strategy (FISS), published in 2006, highlighted the way in which
Government and the food industry must work together to improve
sustainability. Building on earlier industry input, the Food and
Drink Federation launched its successful and ongoing Five-Fold
Environmental Ambition in October 2007 with commitments on
CO2, waste, water, and transport. Defra has also established a
Food Industry Better Regulation group—a forum for discussing
regulatory issues affecting the food and drink supply chain.
42. Defra's role in an emergency, having collected
and disseminated information, is to enable Ministers to take policy
decisions to support industry's response; to relax drivers' hours,
for example. In the case of a very severe emergency, the Secretary
of State could use Section 2 of the Civil Contingencies Act
to direct the actions of the food industry as required.
43. The Government also works with industry
and the public sector to promote business continuity planning
so as to improve resilience. Defra leads the relationship with
the food sector, although the Food Standards Agency leads on food
safety. Defra has set up and chairs the Food Chain Emergency Liaison
Group, a forum at which other Government departments, industry,
and the relevant trade associations can share information and
jointly consider developing policy.
How well does Defra engage with other relevant
departments across Government, and with European and international
bodies, on food policy and the regulatory framework for the food
supply chain? Is there a coherent cross-Government food strategy?
44. The Prime Minister's Strategy Unit report,
Food Matters, published in July 2008, signalled a fresh
approach to food policy across Government. The report highlighted
the need to join up food policy to address the health, environmental
and economic challenges in the food system in an integrated way.
It set out four strategic policy objectives:
— The changes needed to deliver a further
transition to healthier diets.
— A more environmentally sustainable
food chain.
45. Along with specific policy recommendations,
the report also established a Food Strategy Task Force, to bring
together departments with a stake in food policy, in order to
better coordinate work on food across Government. Subsequently,
the Machinery of Government changes on 3 October 2008 gave
Defra an enhanced role on food. Now, with the lead for co-ordinating
efforts on food across Government, Defra is working with other
Departments on wider issues, such as the social impact of food
policy. This is in addition to its lead responsibilities on farming,
the food industry and their environmental impacts. To support
this new role, a new Ministerial Sub-committee has been established
(Domestic Affairs—Food), and the Food Strategy Task Force
(which was already in place) convenes senior officials from the
relevant departments to support the Sub-Committee.
46. Defra has already forged good working
relationships with departments and others in taking forward its
work on food:
— With the Food Standards Agency and
the Department of Health in delivering actions set out in the
PMSU Food Matters report and in joining up the health and
environmental impacts of food.
— With DfID on food security, sustainable
agriculture, and environmental sustainability. Defra is a delivery
partner for the DfID-led PSA 29 Reduce poverty in poorer
countries through quicker progress towards the Millennium Development
Goals.
— With BERR and the OFT on competition
issues.
— With the Cabinet Office Civil Contingencies
Secretariat, the Centre for Protection of National Infrastructure
and a range of Government departments (in particular the FSA,
BERR (now DECC), Transport and Health) on resilience.
— With Foresight on its Global Food
and Farming Futures project.
— With DECC on climate change deliverables.
— With international partners on CFA
and GPAFS, through multilateral and bilateral commitments such
as those developed with China and India through the sustainable
development dialogues (SDDs) which involve sharing expertise,
skills and knowledge with the places that need it most.
— With our European partners including
FAO on the range of issues affecting food and agriculture.
What criteria should Defra use to monitor how
well the UK is doing in responding to the challenge of doubling
global food production by 2050 while ensuring that such production
is sustainable?
47. As Food Matters said last July,
the "UK makes a small but meaningful contribution to overall
global food supply…but the UK seems likely to have a greater
impact via its influence on international policy, diplomatic initiatives,
development programmes and research efforts". The Government
believes we should maximise our UK productive capacity where this
can be done sustainably and is driven by consumer demand. We have
also set out above how the Government is contributing to initiatives
internationally and in terms of research.
48. Defra is working increasingly closely with
DfID on global food security. One measure of UK success in responding
to the global production challenge is the delivery of the DfID-led
PSA 29, Reduce poverty in poorer countries through quicker
progress towards the Millennium Development Goals. Defra's
contribution towards PSA 29 centres on the seventh of these
goals (MDG7), which aims to "ensure environmental sustainability"
and underpins achieving the other MDGs including MDG1, on eradicating
extreme poverty and hunger. DfID and Defra's co-operative effort
is essential for helping deliver increased global food production
in a way that is environmentally, as well as economically and
socially, sustainable.
49. Professor Beddington's Foresight study
referred to above, and co-sponsored by Defra and DfID Ministers,
also aims to produce practical, action-oriented recommendations
to achieve just this objective.
January 2009
1 Food Security and the UK-an evidence and analysis
paper (December 2006) at
http://statistics.defra.gov.uk/esg/reports/foodsecurity/foodsecurity.pdf Back
2
These are: fair prices, choice, access to food and food security
through open and competitive markets; continuous improvement in
the safety of food; the changes needed to deliver a further transition
to healthier diets; and, a more environmentally sustainable food
chain. Back
3
https://statistics.defra.gov.uk/esg/publications/pocketstats/foodpocketstats/default.asp,
p. 38, 39. Back
4
The five main elements are global availability and resource stability;
UK availability and access; food chain resilience; household access
to sufficient, safe and nutritious food; and, food safety and
confidence in our food. Back
5
Full details in Chapter 2 of Food: an analysis of the
issues, Cabinet Office, January 2007, revision D, August 2008. Back
6
Defra/ONS (December 2008) Family Food: A report on the 2007 Expenditure
and Food Survey. Back
7
Including offal, bacon, ham, chicken, turkey, canned meat, pies,
burgers, and sausages. Back
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