Written evidence submitted by Food Climate Research Network,

Environmental Change Institute, University of Oxford

[FS2 0007 (FSY 0065)]

This response addresses the first question raised by EFRA

How best to improve UK (and EU) food security, including using resources more efficiently

Food security now, and in the future is founded on a sustainable, resilient environmental resource base.  But today’s food system is in the process of undermining base and as such is undermining the foundation upon which future production, and our food security, depends.

The environmental problems caused by and affecting the food system are generated not only by unsustainable production practices, but also by UK and global patterns of food consumption that drive inherently resource intensive types of production.  Rising demand for animal products and other high impact foods places untenable pressure on land and water resources, and generates greenhouse gas (GHG) emissions that threaten climatic stability.  The production, distribution and consumption of food contributes to about 20-30% of global greenhouse gas emissions, uses 70% of freshwater resources and is the main driver of deforestation and biodiversity loss. Farm animal production alone contributes 14.5% of global GHG emissions, makes use of 15% of irrigation water and occupies some 70% of farm land (Gerber et al 2013,FAO 2006; Vermeulen et al 2012).[1] [2] [3] An estimated 30-50% of all food produced is spoiled or wasted – representing a waste of land, water and other inputs, the generation of ‘unnecessary’ emissions, and contributing to food insecurity (IMECHE 2013).[4] Moving from land to sea, unsustainable fishing practices deplete stocks of species we consume and also cause wider disruption to the marine environment. As the impacts of climatic and environmental change start to hit home, food production is becoming more difficult and unpredictable in many regions of the world. 

At the same time the food system is failing to fulfil its primary purpose – to feed us adequately. While crudely speaking, enough food is produced to feed our global population of 7 billion, we are not well fed.  Around 2 billion people are sick from the consequences of excess - obesity and chronic diseases – while approximately 800 million people suffer the hunger of insufficiency.  To this should be added the ‘hidden hunger’ of micronutrient deficiencies, such as vitamin A induced night blindness and anaemia, which in total affect about two billion people - including, ironically people who might also be obese.[5] [6] [7]

While it is recognised, on paper at least, that the twin challenges of climatic/environmental change and food security need to be addressed - and addressed in an integrated fashion - in practice the challenges are too narrowly defined and the solutions proposed are not only inadequate but implemented in a compartmentalised fashion.

UK policy makers (and the policy makers elsewhere) too often see the food security challenge as one of ‘producing more food’ to meet projections  in demand that are seen as inevitable and unmalleable.  The response to the environmental challenges that threaten food security is seen as one of ensuring ‘resource efficiency’ through sustainable intensification.  Rising diet related problems of obesity and associated chronic diseases are again addressed separately, without consideration of the environmental implications of current food patterns.  These are simply not adequate responses to the multifaceted nature of the environmental, health and equity challenges we face.

While sustainable intensification is indeed essential (see for example Garnett et al 2013)[8] and while some increased food output will certainly be needed in some regions, the complexity of the ‘food problem’ and the dynamic interplays of cause and effect cannot be solved through simple technical or productionist solutions: it is an ineffective response to addressing the problems of hunger and insufficiency, and is likely to exacerbate the growth in obesity and associated diseases.  Moreover, a ‘more food’ agenda risks threatening the climatic and environmental stability upon which we depend.  A robust and rapidly growing body of academic research suggests that improvements in the efficiency of food production, while essential, will not be sufficient if we are to achieve absolute reductions in greenhouse gas emissions, operate within the context of severe water restraints and halt land use change and associated CO2 release and biodiversity loss (Popp et al 2010; Foley et al 2011; Ray et al 2013; Bajželj et al 2014).[9] [10] [11] [12]

To address a wide range of environmental concerns effectively, while tackling inequities in the system and the twin problems of dietary insufficiency and excess, three additional approaches are needed.

First there is a need to create a more equitable balance of power in the food system, both at the national and international levels: growing more food will not solve all the problems of affordability, access and poor nutritional quality.  This is a vast undertaking and detailed responses will doubtless already have been submitted by others more expert on these issues. However, essential actions will include efforts by UK government operating at the international level to address price and subsidy distortions, incentivise the production of more nutritious foods, support and empower poor producers and consumers, agree better working conditions and fairer terms of trade, and - in many regions of the world- improve transport, storage and market infrastructure.

Second, we need to reduce the amount of food that is lost or wasted along the whole supply chain.  Thanks to the work of WRAP and others, work is already underway here, although a great deal more needs to be done.

Third, eating patterns will need to change. What, and how much we eat is directly related to what, how much and in what ways it is produced.  We therefore need to consume more ‘sustainably’ – we need to adopt eating patterns that have lower environmental impacts, that deliver broader societal benefits, and support good health.

The focus of this submission is to underline the need for policy action to support a UK wide shift to sustainable healthy eating patterns and for the UK government to show international leadership on this issue.   The evidence base demonstrating this need is clear and has been highlighted (Popp et al 2010; Foley et al 2011; Ray et al 2013; Bajželj et al 2014).[13] [14] [15] [16] The point we wish to make here is that action to reduce food related GHG emissions through shifts in consumption can not only address environmental concerns but also deliver improved food security and nutritional outcomes.

The last few years have seen a proliferation of research focusing on understanding the relationship between the nutrition of individuals and populations, and the environment.  Studies generally find that low environmental impact eating patterns - as measured by GHG emissions and land use - are centred on a diverse range of  minimally processed tubers, whole grains, legumes and fruits and vegetables, with animal products (meat and dairy foods) eaten sparingly. They also find that such consumption patterns can be broadly consistent with good nutrition (Vanham et al 2013; Stehfest et al 2009; Van Kernebeek et al 2014; Van Dooren and Kramer 2012; Brunner et al 2009; Pairotti et al 2014). [17] [18] [19] [20] [21] [22] In general, eating patterns consistent with these recommendations represent a nutritional improvement in the way most people in the UK, on average.

Box 1, published in a report following a major stakeholder workshop hosted by the Wellcome Trust and organised by the Food Climate Research Network draws upon this evidence.  It sets out the current state of knowledge on key characteristics of healthier, lower GHG impact eating patterns.

This growing body of evidence has already been broadly incorporated into the recommendations of a few forward-thinking official policy bodies in other countries. These include the Health Council of the Netherlands, Sweden’s National Food Agency and the recently published 2012 New Nordic Recommendations (HCN 2011; National Food Agency, undated; Norden 2014), [23] [24] [25] all of whom have published advice for those interested in consuming healthily and with low environmental impacts.  For the development of the 2015 United States Dietary Guidelines, a sub-committee has been set up to focus on food systems sustainability, with a call for public comment on various issues, including the development of appropriate metrics.

In the UK, while a growing number of stakeholders are engaged one way or another in the sustainable healthy eating agenda, there no clear strategic policy framework underpinning or supporting their activities. So far the UK Government has limited itself to providing secretariat support to the multi-stakeholder Green Food project and has agreed to the publication of the currently draft sustainable healthy eating guidelines on the Global Food Security website later this year.  While better than nothing, this represents merely a micro-step in the right direction. There is an urgent need for policy leadership to set the direction of travel on sustainable food consumption and to provide support to business and civil society communities engaged in these issues.  Linked to this there is a need for policy-backed investment in research focused on systematically exploring and advancing knowledge and practice in this area – particularly on building understanding of what policies and actions are effective in shifting consumption patterns in healthier and more sustainable directions.

To summarise this submission: the sustainable healthy eating issue should no longer be seen as a niche concern.  Advancing action on sustainable healthy diets is an essential part of the response to the twin challenges of food security and environmental/climatic change.  It needs to be taken seriously. Substantial support is required to build a robust, policy relevant evidence base. And policy leadership to promote, support and coordinate work in this area and to engage and support the research, NGO and business community, is essential.

October 2014