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Abstract
The food crisis has challenged the political legitimacy and economic efficiency of the
deregulation and liberalization of international agricultural trade. In the second half of the
20th century, “food security” was put forward as the grounds for the implementation of
modern protectionist agricultural policies in developed countries. In response to falling,
unstable agricultural prices on world markets, price support mechanisms became the main
European agricultural policy tool, generating high tariffs. The protection of agricultural
markets was reassessed by the Uruguay Round of the GATT international trade negotiations
(1986-1994), resulting in binding commitments to reduce domestic support measures
suspected of impacting world prices. The ongoing Doha Development Agenda round of
agricultural negotiations still aim to discipline and reduce the protection WTO members
obtain through trade policies and domestic support measures in the agricultural sector.
However, a certain number of NGOs and civil society representatives have developed the
concept of “food sovereignty” to defend the idea that developing countries should have the
right to protect their domestic markets from imports of food products when these imports
compete with domestic production and consequently threaten their agricultural sector. At the
same time, food sovereignty campaigners suspect that WTO rules and the ongoing
negotiations will make this goal unattainable.
Few studies have tried to understand the concept of food sovereignty and the basis on
which it is built, as seen by its supporters. Another aspect of the issue is which economic
instruments it requires. The purpose of this paper is to look at whether the introduction of the
“food sovereignty” concept into the WTO negotiations would enable developing countries to
better protect their smallholder agriculture against agricultural imports. We believe that the
focus of this study may be of importance in explaining some key points of discord at the
WTO.
We base our analysis on recent WTO negotiations to compare the concept of food
sovereignty, as developed by NGOs, with the economic instruments contained in draft WTO
agreements concerning developing countries. Our starting hypothesis is that the concept of food sovereignty could be a political tool and could provide economic instruments to boost
the necessary protection of agriculture in developing countries. The particularity of our
approach is to combine a factual historical-economic analysis of food security with a
cognitive analysis – developed by political scientists – of the concept of food sovereignty.
Firstly, from a historical point of view, we focus on how the concept of “food
security” was used as grounds to build modern agricultural and trade policies and how, in
some cases (CAP), it led to the creation of protectionist instruments or, at the other end of the
scale, trade liberalisation. The second part of our paper studies food sovereignty from the
point of view of its emergence and in relation to WTO negotiations. We base our analysis on
founding texts on food sovereignty written by a few NGOs and identify a number of
definitions. We then conduct a cognitive analysis of the concept from the point of view of the
frame of reference underlying the public policies. The aim of this approach is to construct the
food sovereignty campaigners’ mental maps, which draw on the different levels of perception
of the world (such as images of the agricultural world and the societal role of trade). The third
part of our paper subsequently looks into the extent to which it is possible for developing
countries to protect themselves against agricultural imports, while respecting current
international trade law. For instance Special and Differential Treatment (S&D) entitles them
to a lower and slower reduction in their tariffs than developed countries. In addition, special
arrangements are often discussed to cope with their potential vulnerability to trade
liberalisation. Under the ongoing WTO talks, developing countries can, for instance, negotiate
“special products” that benefit from a less stringent application of tariff reductions than
regular agricultural products. We then argue that some technical arrangements made at the
WTO already tie in with the concept of food sovereignty, even if the term is not actually
mentioned in the draft agreements. This begs the question as to the possibility of the official
introduction of the concept as it stands and its potential effects on the terms of the multilateral
agreements for the developing countries. We show that whereas this concept may clarify
some of the developing countries’ needs, its implementation would not extensively change the
outcome of the negotiations because many developing countries already have tools available
to protect their smallholder agriculture.
These results provide some insight into the interactions between trade policies and
world hunger. Nevertheless, outside of the WTO negotiations or in a departure from its rules,
other international agreements (bilateral trade agreements, funding conditions dictated by
international organisations, etc…) may add more rules against protection from imports into
developing countries. They suggest a broader hypothesis for further research into the effects
of other international agreements on food sovereignty.