- At the request of the Minister for Climate and Energy, Mr Magnette
- Approved by the general meeting of 3 February 2011
Opinion (pdf)
Abstract
- To ensure a sustainable food system, it is particularly important to have a clearer view of the production and consumption of proteins in our food systems. The world is faced with the prospect of securing a balanced diet for nine billion people within the capacity of the world ecosystem by 2050. It therefore comes down to a transition of the protein production and consumption systems to a system with greater ecological and social sustainability and more guarantees for the economic players in the chain. A sustainable target picture entails that a food system has to be organised at European level by 2050 that is in large measure self-supporting. For this to be achieved, EU policy and international trade agreements must be steered in this direction.
- To achieve this goal, the council advocates a protein transition as part of a general transition to a more sustainable agriculture and food system. The protein transition is a deliberately organised process, based on active cooperation between governments, economic players and the civil society.
- A first pillar of the protein transition is the transformation of the current system of importing plant proteins. This system must become more sustainable. The council proposes a number of principles for achieving a more sustainable system and calls for new initiatives to be taken or existing ones to be improved and enhanced.
- A second pillar of the protein transition is geared to production and consumption, and endeavours, pursuant to a balanced and healthy dietary pattern, to shift consumption from animal proteins to more sustainably produced plant proteins. In this connection, the council makes a number of concrete proposals concerning supply and demand.
- Finally, the council makes certain recommendations on how to organise the protein transition. For instance, it calls on the federal government to take the initiative for a national cross-policy platform where the protein transition process is set in motion and stimulated further.
1. Context
- [a] On 26 March 2010, the council approved its sustainable food system opinion. At the request of Minister Magnette, that opinion provided a definition of a sustainable food system and set out policy proposals for a transition to such a system.
- [b] The sustainable food system opinion does not go into the protein issue. In that opinion, the council undertakes to conduct an internal debate in 2010 and to come up with an additional opinion, particularly on the import of plant proteins and the production and consumption of animal proteins. This animal and plant protein opinion is the upshot of that debate.
- [c] The animal and plant protein opinion is expressly in line with the sustainable food system opinion. It reconfirms the contents thereof and develops additional elements, specifically about the protein issue.
2. Opinion
2.1 General framework
- [1] To ensure a sustainable food system in the long term, it is particularly important to have a clearer view of the production and consumption of proteins in our food system. The world is faced with the prospect of securing a balanced diet for nine billion people within the capacity of the world ecosystem by 2050. It is therefore important to pay sufficient attention to protein production and consumption systems, including decent employment. Some systems increase the pressure of food production on the environment and can thus contribute to reaching the limits of sustainability of the world food system faster. Depending on the production system and the location of production, shifting from plant sources to animal proteins can have a considerable impact on water, energy and land use. If the land is not suitable for plant production for food, then it should be turned over to other –if possible several – uses, such as for animal production, the promotion of biodiversity and as a water buffer or as open space in the landscape. If only the quantity of proteins produced per hectare is taken into account, the yield of plant protein will be higher in most cases. But the overall sustainability of the system depends also on specific circumstances. Mixed companies have a number of advantages for some aspects of sustainbility compared to specialised companies. Cooperation between specialised companies situated next to each other can address such sustainability aspects. Protein consumption also plays an important role in a balanced and healthy diet. The key question is: how can a balance be reached between the food requirements and the capacity of the environment on the one hand, and the effective compliance with international standards (particularly those of the International Labour Organisation) on the other.
- [2] The problem differs depending on the existing consumption pattern. There is often an overconsumption of animal proteins in the dietary pattern of the Western world, including in our country, with regard to the recommendations of the High Health Council. It is worth pointing out nonetheless that consumption is lower than recommended in some age and population groups. In developing countries, on the other hand, there is often underconsumption of proteins because of poverty. The question arises as to what can the share of food of animal origin in human consumption be in the long term, without exceeding the limits of the globe’s ecological capacity and with a view to maintaining a healthy and balanced diet for the population.
- [3] A dietary pattern with a high share of animal proteins cannot be extended to a world population of 9 billion people. A great deal of research is being conducted on the precise scope of this impact of animal production on the earth’s capacity, therefore on the question as to where the limit of sustainable food production lies, but no scientific consensus has been reached yet. There is, however, agreement on the nature of the problems. Some systems can be more sustainable and have a more positive impact on the environment and on biodiversity. However, a sizeable portion of the world’s animal production chain contributes, through various practices – at times directly, at other times indirectly – to deforestation, uses large quantities of water and land, and also makes a significant contribution to the greenhouse effect and the loss of biodiversity. In a world where demand for land and raw materials by sectors other than food supply can only increase, this can lead to sharp conflicts that can be dangerous for the food supply and also for the economic position of the different players in the food production chain. A combination of more efficient, appropriate and justified production, a reduction of losses in production and consumption, and possible changes in the dietary pattern (in striving for a balanced diet) offers the best prospects for all stakeholders.
- [4] A sustainable target picture entails that a food system has to be organised on a feasible, continental scale (at the European level in our case) by 2050 that is in large measure self-supporting. In such a model, Europe is in large measure capable of producing the necessary plant and animal proteins independently to guarantee a full, healthy and balanced food package for all citizens within the ecological capacity. To that end, imports of proteins from other continents are being scaled down. The different components of EU policy and international trade agreements should fall in line with this vision and all players in the chain should be guaranteed an income they can live on, based on the principle of a fair price for a fair product.
2.2 Towards a protein transition
- [5] The council advocates a protein transition as part of a general transition to a sustainable agriculture and food system. Such a supervised transition is necessary to keep the impact of our food system in Europe and the rest of the world within the ecological capacity in the long term, so as to continue to guarantee a healthy and sustainable food supply to all citizens, to ensure that the position of the economic players involved (in agriculture, the food industry and trade) is guaranteed in optimal fashion, to guarantee decent work, and to contribute to just North-South relations in a world where resources are becoming scarcer.
- [6] The protein transition is a deliberately organised process, based on active cooperation between governments, economic players and the civil society. General objectives and target pictures are discussed in that context for the production and consumption of proteins on the basis of scientific data. At the core of this process is the effort to shift, within a balanced and healthy dietary pattern, consumption from animal proteins to more sustainably produced animal proteins and to – likewise sustainably produced – plant proteins. The deployment of appropriate policy instructions geared particularly to a just internalisation of external costs will play a role here. Furthermore, efficiency and technological innovation processes must be stimulated so that they can improve the production chain and stimulate the development of new products. All possibilities must be concurrently explored to involve consumers as allies in the protein transition. Straightforward information and the active promotion of healthy, balanced and sustainable dietary patterns play an important role in this process.
- [7] Given the importance of the societal challenges relating to the production and consumption of proteins, it is vital to place the protein transition process in a clear and ambitious long-term perspective. The council consequently advocates 2050 as such a perspective which must set far-reaching social changes in motion. Measures must however be taken in the short term in order to achieve this goal. Existing measures may moreover be continued and where necessary enhanced, and initiatives or new measures must be taken.
2.3 Import of plant proteins
- [8] An important component of the protein transition is the transformation of the current plant protein import model. The aim must be to make that model more sustainable (at world and national level), with clear objectives set in time. Important principles include:
- Full compliance with all international, national and local regulations in force. World trade agreements that prevent a fully-fledged domestic production of proteins for feed must be adapted.
- Decent work (in particular, compliance with the ILO conventions, decent income).
- Just relations with local communities.
- Ecological responsibility (in particular combating environmental pollution and exhaustion, reduction of greenhouse gas emissions and promotion of carbon uptake, protection of biodiversity).
- Good architectural practices (in particular sustainable water use, protection of natural vegetation, improvement of soil quality, sustainable crop protection).
- Guarantee the economic viability of all players in the production chain.
- [9] The Council notes that various initiatives are being developed or planned (such as RTRS or Pro Terra) geared to contributing, through the voluntary certification of soybeans, to another plant protein import model. These initiatives form an indication of the commitment of a number of actors in the production chain to that end. The Council accordingly recognises that the RTRS[1] model contains positive elements and can help to overcome the current problems. There is no consensus on the model in itself at this time, however. To arrive at a widespread certification system for soybeans, a number of differences between the players will have to be ironed out and the initiative must gain broader representation.[2] The Council must stimulate the various actors to develop the dialogue on this issue within an appropriate framework. In addition to voluntary initiatives such as RTRS and Pro Terra, the Council underscores that the government must also play an important role in making the soybean chain sustainable.
- [10] Various studies and measures to increase the production of plant proteins in Europe, with the active involvement of the sector, are important initiatives that deserve further support. The council calls on the sector and on the government to continue along this path and to pursue the efforts within a global protein transition framework. Involving all stakeholders actively in the charting of the next steps in the transition can only strengthen the process. In this connection, the government can plead actively for international trade agreements that also support European protein production.
- [11] The protein transition should set a goal for a European model of feed production by 2050 that is in large measure self-sufficient, and thus not highly dependent on the import of plant proteins from other continents, so that the sector will be less subjected to the volatility of the international markets.
2.4 Production and consumption of proteins
- [12] Another important component of the protein transition is to endeavour, pursuant to a balanced and healthy dietary pattern, to shift consumption from animal proteins to more sustainably produced animal proteins and to – likewise more sustainably produced – plant proteins. The platform of all stakeholders in the protein transition must produce a coherent package of policy strategies combined with objectives in the short, medium and long term – with a chain approach as the point of departure at all times.
- [13] The council supports good (legal and other) initiatives and practices being already developed in this connection, and is encouraging the partners involved to take further initiatives. The council is consequently pleased with the “protocol of cooperation for regular work and fair competition in the meat sectors” recently concluded by the social partners in the meat industry, and expresses its support thereto. Out of concern for the image of the sector and the social situation of the workers involved, the undersigned parties wish to engage, together with the government, to combat non-compliance with legislation in general and with social legislation in particular. This protocol sets out the main lines of a framework that the social partners must work out further, together with the Belgian governmental authorities and in consultation with European players. In this way, all parties are endeavouring for legal security for employers and employees alike.
- [14] To be efficient, the various policy strategies must be geared to supply and demand. An integrated and coordinated strategy is consequently needed geared concurrently to producers, processors, traders and consumers, one which anticipates and strengthens market opportunities. The initiatives proposed below are related and complementary and must be developed as a whole.
- [15] As regards the supply side, the council calls for the following lines to be developed and strengthened:
- Concrete measures to promote the domestic production of proteins, including initiatives that lead to an adaptation of international trade agreements.
- Research programmes for production of plant proteins for feed and for human consumption in the EU.
- Promotion of production of feed rich in protein.
- Research programmes and pilot projects that can make the shift from plant to animal proteins more efficient.
- Further research into the real environmental impact of the various protein products through the entire chain, with attention to direct and indirect effects.
- Support for the development of sustainable food products of animal origin.
- Research into the social impact of the current production method and the social consequences of the different transition scenarios.
- Support for research programmes and pilot projects that can minimise losses in valuable raw materials in the different links of the production chain.
- Further talks on the European policy towards the possible renewed authorisation of the use of carcass meal for feed under strict conditions, excluding cannibalism and limited to pork and poultry.
- Setting clear standards at the relevant policy level for sustainable animal and plant products.
- Support programmes for the development and marketing of products of plant origin.
- Promotion of sustainable protein products in the distribution sector.
- Research into economic instruments (e.g. instruments geared to the just internalisation of external costs, subsidies, fiscal and parafiscal instruments, etc.) that can redirect the production and marketing of sustainable protein products.
- Knowledge development and promotion of a responsible approach to proteins in hotel schools, cooking programmes and training for buyers.
- Guaranteed, quality supply of vegetarian meals in all restaurants subsidised by the government — an issue that is gaining in awareness.
- [16] As regards the demand, side, the council calls for the following lines to be developed and strengthened:
- Promotion of balanced and healthy dietary patterns. It is important for all population groups to be able to opt for a healthy and balanced diet. In this context, this means in particular that they must have a dietary pattern that contains neither too much nor too little protein. Animal and/or plant proteins have their place in such a pattern. Special attention is needed to ensure that vulnerable segments of the population opt for protein products to a sufficient degree.
- Stimulate positive appreciation for the group of consumers who want to reduce the consumption of food products of animal origin in their overall diet.
- A more coherent policy on consumer information about sustainable protein products (sustainably produced dairy products and meat, plant alternatives for food products of animal origin, meal concepts with less or no meat). This comprises in particular making the population aware of the impact of their food choices.
2.5 Organisation of the protein transition
- [17] The Council proposes that, with a broader view to the transition to a sustainable food system, the federal government take the initiative to set up a national, cross-policy platform where the protein transition process is set in motion and stimulated further.
- [18] The Council proposes that this platform work out further the protein transition concept in line with its recommendations and in consideration of the role of all stakeholders.
- [19] It is important for the transition platform to chart the framework, objectives and strategies of a far-reaching protein transition by 2050 which can provide an answer to the major societal challenges relating to the current protein production and consumption.
- [20] The Council advocates the charting of a ten-year plan for a sustainable food system, one that integrates the results of the activities and agreements on the protein transition.
- [21] A comprehensive scientific research programme launched in the short term must take better stock of the existing knowledge on all facets of the protein transition and new, targeted research must be initiated on the missing elements of that knowledge. In addition, concrete actions or projects that are in line with the charted future strategies can already be started.
- [22] The Council asks to be further involved in charting the protein transition.