NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD
NATURAL RESOURCES GOVERNANCEAND THE RIGHTTO ADEQUATE FOODTHEMATIC STUDY 4Prepared byLuisa CruzDevelopment Law Branch (﴾LEGN)﴿FAO Legal Office
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD2Table of rences.24
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD3ForewordTo celebrate the 10th anniversary of the adoption of the Voluntary Guidelines to Support the ProgressiveRealization of the Right to Adequate Food in the Context of National Food Security (﴾hereinafter “Right toFood Guidelines”)﴿, the FAO Right to Food Team has prepared seven thematic studies that document andhighlight progress made over the last ten years, while also capturing the challenges ahead in relation tomajor issues covered by the Right to Food Guidelines (﴾RtFG)﴿. The studies are helpful in reflecting uponcurrent gaps and areas of improvement for future implementation of the guidelines and valuable forevery person or organization that works in the context of national food security and is interested inrealizing the right to adequate food by implementing the RtFG.1The thematic studies cover the following topics:1. THE RIGHT TO ADEQUATE FOOD IN FOOD SECURITY AND NUTRITION POLICY DESIGNSGuidelines 2, 3, 5, 6 and 132. INSTITUTIONAL FRAMEWORK FOR THE RIGHT TO ADEQUATE FOODGuidelines 5, 183. LEGAL DEVELOPMENTS IN THE PROGRESSIVE REALIZATION OF THE RIGHT TOADEQUATE FOODGuideline 74. NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOODGuideline 85. SOCIAL PROTECTION AND AN ENABLING ENVIRONMENT FOR THE RIGHT TOADEQUATE FOODGuidelines 8, 146. NUTRITION, EDUCATION AND AWARENESS RAISING FOR THE RIGHT TO ADEQUATE FOODGuidelines 10, 117. INTERNATIONAL DIMENSIONS OF THE RIGHT TO ADEQUATE FOODGuideline 19, Part IIIAcknowledgmentsThis paper was written by Luisa Cruz and Margret Vidar, Legal Officers, Development Law Branch of theFAO Legal Office. The authors are grateful for the contribution of Paolo Groppo, David Palmer, DominiqueReeb, Jin Sooyeon, Yuka Irie, Nicole Franz, Helga Jossupeit, Lena Westlund, Naomi Kenny, FrancescaFelicani, Peter Deupmann, Blaise Kuemlangan, and Yoon Yee Kim. The authors are also grateful for thecomments and suggestions received from Sisay Yeshanew, Simon Blondeau, Mauricio Rosales, SherryAjemian, Juan Carlos GarciaCebolla, Frank Mischler and Serena Pepino from the FAO Right to Food Team,Economic and Social Department.1The views expressed in these thematic studies are those of the authors and do not necessarily reflect the viewsor policies of FAO. The conclusions given are considered appropriate at the time of preparation. They may bemodified in the light of further knowledge gained.
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD4List of acronymsCBDConvention on Biological DiversityCEDAWConvention on the Elimination of All Forms of Discrimination against WomenCESCRCommittee on Economic, Social and Cultural RightsCFSCommittee on World Food SecurityCFS RAICFS Principles for Responsible Investment in Agriculture and Food SystemsCOFICommittee on FisheriesDRCDemocratic Republic of the CongoFAOFood and Agriculture Organizations of the United NationsFAPDAFood and Agriculture Policy Decision AnalysisFLAForest Land AllocationFPICFree, Prior and Informed ConsentFSNFood Security and NutritionGIAHSGlobally Important Agricultural Heritage Systems InitiativeHLPEHigh Level Panel of ExpertsHRBAHuman Rights-‐Based ApproachHRCHuman Rights CouncilICARRDThe Declaration of the International Conference on Agrarian Reform and Rural DevelopmentICESCRInternational Covenant on Economic Social and Cultural RightsICRAFWorld Agroforestry CentreIIEDInternational Institute for Environment and DevelopmentILOInternational Labour OrganizationIPCCIntergovernmental Panel on Climate ChangeMLRAMarine Living Resources ActNGONon Governmental OrganizationsOHCHROffice of the High Commissioner for Human RightsRBCRed Book CertificateRTFGVoluntary Guidelines to Support the Progressive Realization of the Right to Adequate Foodin the Context of National Food Security (﴾Right to Food Guidelines)﴿SOFAState of Food and AgricultureSOFIThe State of Food Insecurity in the World
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD5SOFOState of the World’s ForestsSSFGuidelinesVoluntary Guidelines for Securing Sustainable Small-‐scale Fisheries in the Context of FoodSecurity and Poverty EradicationUNUnited NationsUNCTADUnited Nations Conference on Trade and DevelopmentUNDRIPThe United Nations Declaration on the Rights of Indigenous PeoplesUNESCOUnited Nations Educational, Scientific and Cultural OrganizationUNSCNUnited Nations Standing Committee on NutritionUNSGUnited Nations Secretary-‐GeneralUNSRUnited Nations Special RapporteurVGGTVoluntary Guidelines on responsible governance of tenure of land, fisheries and forests inthe context of national food securityWFPWorld Food ProgrammeWHOWorld Health Organization
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD6INTRODUCTION2A decade has passed since the adoption of the Right to Food Guidelines (﴾RTFG)﴿. It is now time to step backand take stock of the effects these have had to date, determining what specific inputs the Guidelines haveprovided to addressing issues concerning the access, use and management of natural resources as part ofthe fight against hunger. How far have we come, and what progress has been over the last ten years?The first section of the paper analyses the shift that has taken place over the last decade with theincorporation of a human rights discourse within the global agenda on natural resources in the context offood security. As will be seen, this is evidenced not only by the growing body of international instrumentsadopted to regulate natural resources, with a particular focus on protecting vulnerable populations, butalso by the increase of inclusive and transparent consultative mechanisms of dialogue on both aninternational and national level. An example of this consultative process is the unique platform of thereformed Committee of World Food Security (﴾CFS)﴿, where governments, civil society and the privatesector have been able to reach a consensus on a variety of themes including responsible governance ontenure of land, fisheries and forests within the context of the food security agenda.The second section of this paper analyses some examples of national reforms which incorporate a humanrights-‐based approach to natural resources and which constitute progress in terms of the recognition andprotection of the rights of the most marginalized populations. This section also explores importantchallenges to guaranteeing tenure rights to natural resources as a means to the realization of the right tofood, both at national and global level. For example, the gender gap in agriculture, in particular as regardsaccess to land, restricts advancing gender equality in access to productive resources. This impedesprogress in addressing undernourishment worldwide. Similarly, the impact of climate change, highlightedin the recent report of the Intergovernmental Panel on Climate Change (﴾IPCC)﴿, elucidates the need tofocus on the most vulnerable in order to find adequate solutions that truly mitigate the impacts thatclimate change is having on their livelihoods (﴾IPCC, 2014)﴿.As such, this document looks back in order to collect some of the developments related to naturalresources and food security from a human rights based-‐approach and sets forth some of the prominentchallenges that still need to be addressed.I. A CHANGE OF FOCUS OVER THE LAST 10 YEARSAccess to water, land, fisheries, forests and other natural resources are crucial for billions of people’srealization of the right to food. The availability of food, which is a fundamental element of the right tofood, pertains in part to the possibility of feeding oneself directly from productive natural resources(﴾CESCR, 1999)﴿. It is precisely in the context of food security that a shift has occurred within the globalagenda on natural resources, as reflected in an increase in the number of international instrumentsincorporating a human rights perspective within the questions surrounding natural resources. The RTFGwere the first international instrument adopted by FAO member States to address access to resources andassets as one of the key areas to be improved in order to contribute to the realization of the right to food,by paying particular attention to the specific access problems of women and of vulnerable, marginalizedand traditionally disadvantaged groups. Guideline 8 provides recommendations on issues related tolabour, land, water, genetic resources, sustainability and services (﴾see annex 1 for a full content ofGuideline 8.)﴿In order to be able to grasp some of the effects of the RTFG in the natural resources agenda, there is aneed to look at the global level in order to identify some of the most recent and significant changes ininternational instruments and initiatives in that particular field.2The Council of FAO unanimously adopted a set of Voluntary Guidelines for the Progressive Realization of the Rightto Adequate Food in the context of National Food Security in 2004.
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD7This section will highlight main characteristics of a human rights-‐based approach that are embedded inthose instruments, by focusing on i)﴿ the participatory process through which they have been adopted andii)﴿ the content, which is the more and more centred on the rights of the most vulnerable individualsand groups.Developments in international instrumentsThere are various examples, which demonstrate this shift. Here below we focus on five instruments, whichthough maintaining contextual specificity, are representative and relevant to the scope of this paper.Examples of International Instruments -‐recently adopted-‐ on natural resources from a humanrights-‐based approach § The Declaration of the International Conference on Agrarian Reform and Rural Development(﴾ICARRD)﴿, 2006The United Nations Declaration on the Rights of Indigenous Peoples, 2007The United Nations Resolution 64/292 on the right to water and sanitation, 2010Voluntary Guidelines on responsible governance of tenure of land, fisheries and forests in thecontext of national food security, 2012Voluntary Guidelines for Securing Sustainable Small-‐scale Fisheries in the Context of FoodSecurity and Poverty Eradication, 2014ICARRD Declaration, 2006The International Conference on Agrarian Reform and Rural Development held in Porto Alegre, Brazil from7 to 10 March 2006, gathered 1400 participants including 450 NGO observers, delegations from 96 FAOmember countries, international experts and representatives from over 130 farmer and civil societyorganizations. During the four days of the Conference, participants reviewed different experiences ofagrarian reform around the world, analyzed impacts, processes, mechanisms, reviewed the roles of thedifferent actors involved, and discussed proposals for future action.A Final Declaration was adopted at the end of the Conference inviting all governments to adopt policiesthat promote agrarian reform and rural development to benefit the poor and most marginalized.Governments reaffirmed that “wider, secure and sustainable access to land, water and other naturalresources related to rural people's livelihoods is essential to hunger and poverty eradication, contributes tosustainable development and should therefore be an inherent part of national policies ”. They also reiteratedtheir commitment to achieve the Millennium Development Goals and recognized that “ food insecurity,hunger and rural poverty often result from the imbalances in the present process of development which3hinder wider access to land, water and other natural resources and other livelihood assets ”.Beyond the relevance of the contents of the Declaration in itself, the Conference was particularlycharacterized by a large participation from a wide variety of stakeholders representing different views onland reform and rural development. This multi stakeholder approach is reflected in the Declaration thatstrongly recognized human rights as an intrinsic component of sustainable development. ICARRDrepresented a milestone towards a human rights-‐based approach to land issues recognizing as well thesignificant value of the RTFG.3See paragraphs 5 and 6 of the Declaration.
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD8ICARRD Final Declaration, 2006“We recall the significant steps taken by the whole membership of FAO in adopting a set ofVoluntary Guidelines to Support the Progressive Realization of the Right to Adequate Food in theContext of National Food Security, which is one essential consideration when dealing with the needto promote rural development”§ The United Nations Declaration on the Rights of Indigenous Peoples, 2007A fundamental element that is inextricably linked to a human rights perspective, and which is increasinglymanifest within international instruments on natural resources, is the emphasis on the rights of the mostvulnerable. The United Nations Declaration on the Rights of Indigenous Peoples (﴾UNDRIP)﴿, adopted bythe General Assembly in 2007, is a vital instrument since in many regions of the world indigenous peoplesare among the most excluded groups in decision-‐making processes.The UNDRIP recognizes customary rights and the principle of self determination and explicitly establishesthe principle of free, prior and informed consent (﴾FPIC)﴿ of indigenous peoples when involving theirterritories, lands and natural resources. This principle, which is also recognized in international binding4instruments such as the ILO’s Convention 169 and the Convention on Biological Diversity has offered anormative basis to demand its implementation and ensure indigenous people’s significant participation indecision making. This is a particularly relevant mechanism in a context where large-‐scale investment isincreasing.FPIC in national legislationMany countries have national laws meant to ensure just processes of land transfer, consistent witha requirement to obtain FPIC, but few have yet adopted national laws that explicitly mention anFPIC obligation. An exception is the Philippines, where the Indigenous Peoples’ Rights Act requiresFPIC for any activity that may affect indigenous peoples’ lands and resource rights. Procedures forobservance of this duty are overseen by the Philippines National Commission on IndigenousPeoples, which has deployed and reviewed several versions of regulations that set out the requiredprocess for FPIC.§ Resolution 64/292 on the right to water and sanitation, 2010Resolution 64/292, adopted by the General Assembly of the United Nations in June 2010, recognized for5the first time the human right to water and sanitation. After a series of preliminary work , the human rightto water was recognized firmly as part of the human right to an adequate standard of living, enshrined inarticle 11 of the International Covenant on Economic Social and Cultural Rights (﴾ICESCR)﴿. The scope ofthe right to water in this context covers water for drinking, cooking, washing and other household needs.4The ILO Convention 169 was ratified by 22 States. The Convention on Biological Diversity is a legally bindinginstrument for 194 State Parties.5CESCR. 2003. General Comment 15 on the right to water.
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD9Although this UN Resolution does not hold the legal weight of an International Treaty, it represents asignificant step forward in the realization of the right to food and the right to health.As affirmed by the UN Secretary-‐General Ban Ki-‐moon on the occasion of the 2012 World Water Day,“over the coming decades, feeding a growing global population and ensuring food and nutrition securityfor all will depend on increasing food production. This, in turn, means ensuring the sustainable use of ourmost critical finite source – water” and that securing water access will require, among others, ensuringwater rights to all (﴾UNSG, 2012)﴿.RTFG and WaterWith regards to water, guideline 8.11 stresses that States should improve access to water resourcesand promote its sustainable use and allocation. The equitable distribution of water must satisfybasic human needs and reconcile the preservation of ecosystems with domestic, industrial andagricultural needs.§ The Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries andForests in the Context of National Food Security (﴾VGGT)﴿, 2012The Voluntary Guidelines on the Responsible Governance of Tenure of Land, Fisheries and Forests in theth6Context of National Food Security (﴾VGGT)﴿, adopted by CFS on the 11 of May 2012 , seek to improvegovernance of tenure of land, fisheries and forests for the benefit of all, with an emphasis on vulnerableand marginalized people. It establishes goals of food security and progressive realization of the right toadequate food, poverty eradication, sustainable livelihoods, social stability, housing security, ruraldevelopment, environmental protection and sustainable social and economic development. The VGGT arebuilt on, and provide further development to earlier initiatives such as the RTFG, and the ICARRDDeclaration, that already embraced a human rights-‐based approach (﴾HRBA)﴿ to natural resources issues inthe context of food security.The VGGT have been widely recognized for its participatory process. They are built on inclusiveconsultations that occurred during 2009-‐2010 at regional and global level and brought together almost700 people, from 133 countries, representing the public and private sectors, civil society and academia. Inaddition, four consultations, held specifically for civil society (﴾with 200 people from 70 countries)﴿, and aprivate sector consultation with 70 people from 21 countries. These Guidelines also incorporate proposalsreceived through an electronic consultation on the zero draft (﴾VGGT, 2012)﴿ . As highlighted before, theshift of focus within the global agenda on natural r
NATURAL RESOURCES GOVERNANCE AND THE RIGHT TO ADEQUATE FOOD 4 List of acronyms CBD Convention on Biological Diversity CEDAW Convention on the Elimination of All Forms of Discrimination against Women CESCR Committee on Economic, Social and Cultural Rights CFS Committee on World Food Security CFS RAI CFS Principles for Responsible Investment in Agriculture and Food Systems
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