TRAVAIL capital et societe 36:2 (novemhre 2003) pp. 174-199

RESUME

Le declin agraire et la dependancenutritionnelle dans les Cara'i'bes:Confronter les illusions dMnevitabilite

Tony Weis

Ci'l article silite le declin agraire de la region dans le contexte d'linetransformation pltts lar^e de la production et de I'integtalion dti murchc'mondial. Le btit de I'article est de demystifier les forces dti man heomnipresentes et ecrasantes que confronient les petits prodiicteiirsagricoles des Carai'hes. en attirant I'attention stir les interets puissantsifiii souS'tettdent les changemetus actttels. L'analyse cst fondee stir laconviction que la petite agriculture constilue une activite prodttctiye etune source de dignite dans la region et. par consequent, devrait ettereorganisee et reyalorisee an liett d'etre ahandonnee a unfatalistneinjustifie.

LABOUR. Capihil and Society 36:2 (November 2003) pp. 174-/99

Agrarian Decline and BreadbasketDependence in the Caribbean:

Confronting Illusions of Inevitability

Tony WeisThe University of Western Ontario

London, Ontario

The Caribbean Today: Re-Casted Dependence

// is possible to become a consiimini> appendaiic of NorrhAmerica finiuu-ed hy remittances, drug transhipment, loans,tourism services, and offshore financial services, with theattendant implications for Caribbean culture and society.

-Michael Witter (p. 13)

...after enduring 500 years of setritude. and forging livelihoodsin these deceptively beautiful killing fields of yesteryear...luejrisk the loss of a distinctive society still in the making...Asplaygrounds for the rich and powerful the region will have aneconomic future. What it runs, is the risk of cultural extinction.

-C.Y. Thomas (pp. 20-21)

Imperial powers constructed the Caribbean to be "the sugarbowl, tobacco poucb. coffee shop, and rum supplier ofthe world"(Mintz 1985: 130). Tbis history produced agrarian landscapesdominated by large plantations, wbicb endured after Emancipation,and an emergent peasantry on the margins. Plantation and peasantagriculture continued to dominate Caribbean societies well intothe 20"' century before other economic sectors began to develop.

Today, however, agro-export (mostly plantation) production in theCaribbean Community (CARICOM)' is not only losing its place inglobal networks but domestic producers (mostly small tanners) arefast being displaced in their own markets. The region's narrowniches in the global economy have changed; in economic terms itnow primarily provides tourism resorts, off-shore banking (fed bycorporate tax-dodgers), inigratory labour (both short- and long-termand skilled and un-skilled), drug transhipment., and some resources(most notably Trinidad's oil).

As Witter and Thomas suggest above, this transformation maywell carry on, and for some countries and individuals continue tobring great prosperity. Small states like Barbados and The Bahamashave social and economic indicators in the realm of theindustrialized world while Trinidadian leaders insi.st their countryis on track to achieve such status by 2020. Elites in countries likeJamaica possess the wealth to live in large, gated stately homes anddrive expensive SUVs. But the economic picture in CARICOM isvery uneven, and not nearly so bright for the majority of people inGuyana, Jamaica, and the Windward Island nations (Dominica. St.Lucia, and St. Vincent), while it is downright calamitous for mostHaitians. Continued agrarian decline poses a particular threat tothose nations in the region facing significant levels of debt andlong-term payments imbalances (Haiti. Jamaica. Guyana,Dominica. St. Lucia. St. Vincent, and Belize)^ and those with highlevels of unemployment.

High unemployment remains a persistent problem throughoutmuch ofthe region., particularly for the young and poorly educated,and after debt- and adjustment-induced austerity it is nowmoderated primarily by migration, remittances, and the sizableinformal sector (including the drug economy).' But even continued

' The Caribbean Community (CARICOM) was eslablished between Jamaica.Barbados. Guyana, and Trinidad and Tobago by the Treaty of Chaguarama.s (197,1),and siihsequcntly grew lo inclLide Antigua and Barbuda, the Bahamas. Behze,Dominica, Grenada, Mnnlserrat. St. Kitis and Nevis. Si. Lucia. St. Vincent and theGrenadines. Suriname. and as i)r2()U2. Haili. In 2004, Ihe combined jiopuiation was15.2 million.- Indebtedness (both external and inicrnal) and related pressures on governmenlaeeounts have inevitably regressive impacts, diverting resources from public goodsand from the poor' Ol'licia! employment siaiisiics in the region are unreliable (Thomas), but in a recent

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waves of external migration have not been enough to prevent thegrowing squalor of cities like Port-au-Prince, Kingston, orGeorgetown, which is undoubtedly connected to disturbing levelsof crime and violence."*

Compounding the problem of unemployment is the question ofdignified labour. Obviously the idea of dignity in labour is acomplex one that defies precise definition and measurement, thoughit would seem to demand at a basic level that a person feels somedegree of autonomy, challenge (intellectually and/or physically),and sense of meaningfulness in their work and contribution tocommunity (however they might perceive it). Whatever difficultythere may be in defining and measuring it should not stop us fromrecognizing that ju.st and healthy societies strive to create dignifiedfornis of work for all. as the Zapatista movement has so consistentlyemphasized (Weis 2004a). Such recognition clearly raises concernsin the Caribbean as connections between servitude past and presentare stark in the region's large tourism industry, a rising number ofhouseholds are sustained by remittances, many unskilled youngmen see their opportunity as foot soldiers for powerful drug cartels,**and some impoverished women and men continue acting as 'drugmules' (ingesting cocaine for bodily transhipment) at great risk, anobvious testament to the depth of their desperation.

Finally, there are inescapable cultural dimensions to the erosionof the region's productive economy and the re-casting of itsdependence, as the quotes by both Witter and Thomas point to. Nowhere is this more apparent than in the dramatic dietary change thathas taken place, conspicuous in the proliferation of U.S. fast food

reporl Ihe World Bank (2005) calls unemploymenl one of the region's bijzgesleconomic problems. Nol stirpiisingly. given Ihal Ihe Bank logelher with theIntcrnationiil Monelary Fund (IMF) has had a niajnr role in regional policyrcslrtictuiing over llie pasl Iwo decades, the reporl lends to atlrihtite ecimomic growthand gains in social itidicators to adjustinenl wiiile lailing to connect these same dcht-leveragcd policies lo any ofthe region's economic and sneial problems.^ The tremendous unevenncss of wealth and opportuntiy are certainly nothing newto Ihe Carihhean. but ihe nature of struggle has been largely turned inwards in anumber of countries — whal some have called a "social itnplosion'. as inlra-classconflict often play.s out in very violent ways (Weis 2005).

•* In general, while much recent scholarly work has been done on crime, violence,policing, and •peace-making" in the region, especially in the contexi of the drugtrade, the issue of dignified wtirk is seldom if ever mentioned.

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restaurants and junk food. As a Trinidadian small farmer andactivist noted with dismay, it is telling tbat a KFC restaurantnow sits prominently in Port of Spain's Independence Square.*•As will be discussed, this also relates to the evolving nature ofepidemiological problems in tbe region.

In short, the problems and prospects of small farming in theCaribbean bear heavily on the region's economic and social changeto a far greater degree than is often recognized. Tbese problems andprospects, in turn, cannot be understood witbout situating them inthe broader context of changes in global agricultural production andmarket integration. In emphasizing how the big picture of agrarianchange is bearing on small farmers in the Caribbean, this paperseeks to clarify the global context and, by extension, replacedemobilizing illusions of inevitability with recognition that theunevenness and distortions ofthe global food economy requiremeasured policy responses. This intent is guided by a belief tbatsmall farming in the Caribbean is nt)t merely an outmoded historicresiduum in an age of globalization, but can have a central place inongoing struggles for dignified livelihoods.

Peasantization and De-peasanti/ation in the Caribbean

Despite great obstacles, the 'peasantization" of Caribbean societieswas rapid and profound after Emancipation. As Mintz (1985: 131)puts it, emergent peasants were forced to grow "in tbe crevices oftheir societies, like blades of grass pushing up between the bricks".The immense bio-physical and legal constraints set by tbelandscape, colonial governments, and the manoeuvring oftheplantocracy compelled many ex-slaves into waged labour andtenancy arrangements^ but the desire for freedom and dignity ledmany others to the hills and forests to create new ways of life.Where labour became scarce, principally Guyana and Trinidad, theBritish brought in indentured labour from India.

For both African and Indian descendants, independent smallfarming represented an escape from different forms of bondage, andtbeir resilience forged some of the most densely settled rural

'' From a discussion al ihe Waller Rodney Groundings, Georgetown, Guyana, June2005.'' As well as. for some, a degree of acculturation and desire for stabiliiy. ihe extentoi which has been debated.

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landscapes in the world. From their marginal positions in thelandscape small farmers produced most domestic food supplies,apart from a few basic imported staples (e.g. flour, commeal, andsalt-fish) (Mintz 1989. 1985: Beckford 1985). As late as the mid-20"' century, the Caribbean remained heavily rural and agrarian. In1950, the population in present-day CARICOM. including Haiti(the region's largest and mo.st rural country), was 75 per cent ruraland 63 percent agricultural; without Haiti, it was 63 per cent ruraland 40 per cent agricultural (see Figure I }.^

Yet despite the significant agrarian populations and agro-tradesurpluses being produced into the 1960s, still led by King Sugar,malnutrition was widespread — responsible for nearly half thecases of child (under five) mortality in the region into the 1960s(Sinha). As George Beckford made clear, this contradiction was nota reflection of any inherent human or bio-physical constraints tofood self-sufficiency but rather was an outcome ofthe distortionsof plantation economies (Beckford 1972). In contrast. Beckford(who was a major influence in the emergence of the criticaltradition of Caribbean political economy) consistently emphasizedthat small farmers were the wellspring ofthe region's creativityand a "repository of a popular culture of self-reliance andindependence," and that "the land and the free spirit of free men andwomen who rejected the plantation to cultivate the land to growfood was the hope for the future" (Levitt: 24).'*

But the rural and agrarian character ofthe region was changingrapidly in the 1950s and 1960s. Urbanization was rising withmodest levels of industrialization, though branch-plantmanufacturing generally failed to t̂ake off as the region's businesselites, intellectuals, and state planners anticipated and thought held

** Disaggregating ihe agricullural population is difficult, as Ihe divide between smallfarmers and plantation workers in the Caribbean has long been rather liuid — mostplantation workers cultivate stnall plots and many small farmers provide seasonalkibotir on plantations. More clear is ihe Tact that the size ofthe rural population washistorically tied closely to agricultural livelihoods. All population, pnxltiction, andirade statistics have been derived from the Food and Agricultural Organization'sopen-access statistics database iFAOSTAT data. 2005). fhe CARIC(JM Secrelariatin Guyana also assisted by providing detailed trade statistics.'' Levitt (p. 24) goes on to suggest that "the need for intellectual, philosophicalrenewal in the region is more urgent today than it was in the iy60s, when politicalindependence offei-ed hopes of a better ftittire."

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the key to modem economic growth."* In addition to the limitedindustrial growth, the region's pohtical economic course was alsoshaped by the dissolution ofthe West Indies Federation (establishedin 1958 between Jamaica. Barbados, and Trinidad) to separateindependence movements, increasing international migration, andthe growth of new sources of wealth: tourism (for all but Guyana.Suriname. and Haiti), bauxite (for Jamaica and Guyana), oii(Trinidad), and later off-shore banking (Barbados, The Bahamas,and Antigua). Haiti's prospects were immeasurably impaired by theruinous kleptocracy of Papa Doc Duvalier.

Despite the establishment of CARICOM in 1973 by theprincipals ofthe failed West Indies Federation, the extent ofregional economic integration has fallen far short ofthe possibilitiesadvocates saw it containing (Brewster and Thomas). The CommonExtemal Tariff (CET) was established to level external tariffs acrossmember nations, ensuring preferential market access, but intra-CARICOM trade has only ever accounted for a small percentage oftotal trade for most members as a result of similar productionstructures and dependencies. This stunted integration combinedwith the unequal distribution of new sources of wealth setCARICOM nations on markedly different economic paths (therange of social and economic indices within CARICOM expandedgreatly with the ascension of Haiti, one of the poorest nations in theworld).

CARICOM as a whole has undergone a steady 'de-peasant-ization", and the decline in the ratio of agricultural livelihoods tototal population gets magnified when Haiti is disaggregated. Notincluding Haiti, the rest of CARICOM's agricultural population hasdeclined from 36 per cent of total population in I960, to 24 per centin 1980, to 17 per cent in 2000 (see Figure 1).

Declining agricultural employment levels in CARICOM havegenerally not corresponded with the sort of efficiency gains thatwere occurring in many other parts ofthe world, especially fromthe 1960s onward. Agro-export production in the Commonwealth

'" Puerto Rico, a semi-colony of the U.S. was a unique case and a nolabie exceptionas 'Operalion Bootsirap' turned the island's agricultural economy into one based oncheap labour and Hyht manutaclurinj!. Puerto Ricu also exported a large supply ofcheap labour to U.S, cilies. In 1950. work in agriculture comprised nearly half ol thePuerlo Rican labour lorce; by 1980. this was down lo only 3.5 per cent.

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Figure 1 CARICOM Population (000)

IWKH) - ,

14.000-

12,000-

5 I ( I , (HX1-

g. £ M.lKH) -

ft.ooo -

•iim -

Tulal

Toial(w/(>Hai i i )Agri ful iural

Agriculiurai(w/o Huil i l

1950 I96() 1970 1980 20 Ml

th'nxeilfmni FAOSTATS. 21105

Caribbean fell by roughly 40 per cent from the mid-1960s to themid-1970s (Chernick). and the 'tropical commodities disaster' {i,e.persistently declining terms of trade) since the late 1960s (Robbins)would have sped the region's shift from net agro-exporter to netagro-importer faster were it not for the Lome Convention in 1975.Through the Lome Convention, newly independent nations inAfrica, the Caribbean, and the Pacific (ACP) were shielded from thefull brunt of falling terms of trade by protected markets in theEuropean Community (EC). The central tenets of Lome were non-reciprocal, duty-free access and stabilized prices to all industrial andmost agricultural exports from the ACP to the EC. and increaseddevelopment aid and industrial cooperation for ACP countries.

Within CARICOM. Lome allowed uncompetitive sugarindustries to limp along and boosted banana production in Jamaicaand the Eastern Caribbean. In Jamaica, banana production was re-invigorated on plantations, while in the Windward Islands arelatively equitable smallholder system improved the .standard of

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living for many (thus, bananas bave a far more positive associationin tbe Windward Islands than tbey do in the 'Banana Republics' ofLatin America) (Myers). Yet wbile Lome stabilized export earningsand reduced some ofthe vulnerability associated with commoditydependence, in so doing it helped perpetuate these narrow exportbases and hence acted as a palliative rather than a cure (orimbalanced trade relationships — a problem that became a crisis inthe mid-1990s with bananas and in 2004 with sugar.

Tbe balance of payments problem posed by the shift from netagro-exporter to net agro importer was obscured, to varying degreeswithin CARICOM. by rising foreign excbange earnings in non-agricultural sectors. The employment dilemma posed by agrariandecline witb limited industrialization was partly off-set by growtbin service sector employment, especially tourism, and partly by tberegion's very bigh levels of external migration. Sidney Mintz's(1985: 151) assessment two decades ago that this migration wasrapidly redefining "the nature of rural life" in the Caribbean baspronounced evidence: outside of Haiti, tbe ratio of CARICOM'sagricultural to rural population has fallen steadily and is projectedto be only one-third by 2010. In describing this transformation,Mintz (1985: 151) also noted how the Caribbean region "consis-tently produces more labour tban its dependent and irregulareconomies can steadily employ" — an appraisal that has alsocontinued to resonate with time.

The Big Picture: Agrarian Change and Peasant Vulnerability

Like tbe Caribbean, wbile .some parts of tbe agricultural sectors inthe Third World bad long been devoted to serving internationalmarkets, many areas retained a large measure of self-sufficiencyprior to 1950. International agro-trade changed considerablythereafter, led by prolonged productivity increases in temperateregions where scientific developments and capital-intensivemethods coupled with tbe heavy state intervention to producemassive surpluses. An export imperative quickly became engrainedin the U.S. agricultural sector, initially supplying a decimatedEurope after World War II. and soon after (as European agriculturerebounded and protectionist pohcies were established) turning to theThird World to outlet its surphises.''

The U.S. instituliotialized IboLi aid and ci>ncessional sales to iht: Third World as

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Over time wheat and flour came to replace traditional dietarystaples in large parts ofthe Third World, aid turned into trade, and itwas not long before European and North American farm sectorswere competing for export turf, eventually adding other elements ofthe temperate grain-oilseed-livestock complex (e.g. powdered milk,soy-based feedstuffs) to the mix (Friedmann). One good illustrationofthe scale and speed of change in global food production is thatplanetary per capita meat consumption nearly doubled between1950 and 1990.

Export competition together with tbe strategic need for foodsecurity contributed to a system in which export subsidies, domesticprice supports, direct payments, and import controls becamewidespread in ricb. temperate countries. In short, a spiral wascreated where chronic grain surpluses brought pressures for moreintervention, surpluses increased and were exported (assisted bythe compression of time and space by transportation andcommunication technologies), levels of state support for agriculturein rich countries continued to grow into the 1980s, and food importdependencies deepened over time (Friedmann).

The average assistance given by Organization for EconomicCo-operation and Development (OECD) governments to theiragricultural sectors increased from 32 percent ofthe total valueof their agricultural output in 1979-81 to 47 per cent in 1986,and nearly every OECD country also selectively increased itsagricultural protectionism over tbis period (Bumiaux et al.). In richcountries, the nature ofthe subsidy regimes has favoured themost well endowed farmers and contributed to an increasingconcentration of production, allowing large producers, merchants,and processors to thrive within an artificially deflated priceenvironment wbile squeezing small farmers at bome and in marketsabroad.

Around tbe same time as stale regulation and supports weregrowing in ricb countries, much of the Third World was forced intothe arms and policy dictates of the International Monetary Fund(IMF) and World Bank, whose cookie-cutter economic reformshad critical impacts on agricultural sectors. In essence, structural

the primary tJieans for dtmipitig iis graiti stirplitscs. rellecUng a comhinatioti ofubjcclives: tu keep dutnestie priees utider eonlrol; lo lurlity Cold War alliances; andlo faciliiaie market petielration.

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adjustment in agriculture brought market liberalization, increasedexport orientation, the elimination of state marketing boards andsubsidized credit, and reduced public support for things such asresearch and extension. The Jamaican experience with agriculturaladjustment illuminates many ofthe problems with this logic and itsimpacts (Weis 2()04b). These agricultural policy changes wereguided, explicitly and implicitly, by a 'free market approach to foodsecurity' — that is. the idea that food security is best ensured byliberalizing markets to cheap imports and focusing production oncomparatively advantaged exports (agricultural or otherwise) tomaximize foreign exchange and buy food from a global systemwhich, as it integrates, tends towards increasing efficiency (thoughthe call for the state to give way to the market obviously contrastsstarkly wilh the large and complex agro-subsidy regime in richcountries, and the image of a benign and efficient market contrastswith the gross distortions that characterize the global food economyand the environmental externalities that go unaccounted in the long-distant transport of food).

In the 1970s and 1980s the global system of agro-productionremained heavily influenced by state supports in rich countriesand selective market protectionism, but transnational corporations(TNCs) were fast becoming the key forces integrating nationallyregulated farm sectors with globally sourced processing,distribution, and retail complexes. The growth and consolidationof TNCs was giving them increasing control over farm output,while a similarly striking consolidation of seed, fertilizer, andagro-chemical TNCs began dominating farm inputs. The IMF- andWorld Bank-prescribed agricultural reforms went hand-in-glovewith the rising corporate control over global agro-processing,distribution, retail trade, and inputs, a process which continues tothe present. Non-traditional agro-export expansion, eagerlypromoted by the IMF and World Bank, has tended to reproduceor deepen colonially engrained inequalities in the landscapesof the Americas, entrenching landed elites or encouragingland consolidation by a new commercial class of farmers(Thrupp).

The rising corporate control (and share of profit) within agro-food chains has contributed to a number of notable trends:diminishing farm-gate earnings, with concomitant scale and

1S4

mechanization imperatives: the reduction of on-farm biodiversitywith homogenized inputs and the spread of industrial techniques;intense marketing creating strong brand loyalty that detachesassociation from space; and what Friedmann calls the tendencytowards di.stattce and dtirabilit}' — illustrated by the useful conceptof 'food miles' (which accounts for the distance food travels fromland to mouth) — that leads to increasing dietary convergence. Inshort, while large state supports persist in rich countries, agriculturehas become "less and less an anchor of .society, and more and morethe outcome of corporate sourcing strategies" (McMichael 2000a'23).

While agro-TNCs were well served by the bi-lateral disciplinesplaced on Third World countries by the IMF and World Bank, theyalso began seeking a supra-national institution that would secureand expand market access and abet global sourcing. This pressurewas a significant reason why agriculture, which was previouslyimmune from multilateral trade discipline, was brought to theUruguay Round negotiations (1986-94) that produced the WorldTrade Organization (WTO), something that is seen most plainly inthe oft-noted fact that a former Cargill executive spearheaded theU.S. negotiating team as the WTO's Agreement on Agriculture(AoA) was constructed. Other agro-TNCs were also vigorousadvocates.

In the AoA. member states agreed to convert noti-tariff barriersinto tariffs and to limit import tariffs to different 'bound" levels. Aswell, agro subsidies were categorized broadly speaking into good(Green Box) and bad (or 'trade-distorting"), with the latter set onschedules for reduction. The negotiations sought to reduce exi.stingagricultural tariffs by 15 per cent m the First World and 10 per centin the Third World, but there was some flexibility. For instance.CARICOM's CET for agricultural products from non-CARICOMnations was 40 per cent, but it chose a 'ceiling' binding of 100 percent in signing the AoA. with no exception lists and no provisionfor future reductions (CARICOM nations negotiate collectively butcan adopt individual positions).

The pretensions that the AoA was inaugurating a new era of'fairness' in global agro-trade came under fire quickly after it wasunveiled, with critics demonstrating how it actually cemented themassively distorted global system that had been built up to that

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point through a narrow and selective conception of trade distortingmeasures that were committed for reduction.' ' In effectivelysanctioning much ofthe rich country subsidy regime while at thesame time entrenching liberalization (or, at the very least, cappingtariff flexibility into the future with vulnerable targets set for furthercuts), the AoA was seen to represent the worst-case scenario forsmall farmers. This fear was subsequently borne out as First Worldaggregate agro-subsidies have actually increased since 1995 whilefood import dependence continues to rise in many parts of the ThirdWorld.

The extremely unequal industrialization of agriculture hasproduced vast global disparities in per farmer productivity,imbalances that have fed the polarization of agro-trade patterns(Amin). A handful of powerful producing nations dominate globalagro-exports; in 2002, 56 percent ofthe world's agro-exports camefrom countries with only 2 per cent of the world's total agriculturalpopulation (Weis 2003). The United Nations' Food atid AgriculturalOrganization (FAO) projects this general course to continue in theforeseeable future, noting that "in particular, net imports of cerealsand livestock products will continue to rise quite rapidly" in muchofthe Third World (FAO 2002). The scale., technology, and subsidy-fortified competitiveness of temperate producers (and the associateddietary change) is having a major impact on the internationaldivision of labour.

Between 1950 and 1990. agriculture as a relative share of thelabour force in the Third World declined by a staggering 40 per cent(Araghi). and the world's agricultural population grew at a muchslower rate than did the world's total population between 1990 and2002. falling significantly (46.4 to 41.6 percent) as a percentage ofthe total population in little more than a decade. While someex-peasants have gained employment in services or industry,many are marginalized from the formal sector and mired in theswelling slums that are such a marked feature of the Third Worldcityscape — what Araghi (p. 145) calls the "huge urban masses ofsuperfluous people". The profound and growing unemployment,poverty, housing, food security, and service provisioning problems

'- A crilical discussion of ihe AoA"s Green Box is developed in another paper (Weis

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in urban areas are documented thoroughly in the United Nations'Human Settlements Programme The Challenge ofShans (2003) andskilfully analyzed by Davis.

In short, the free market approach to food security has widelytranslated into "food dependence on world 'breadbasket' regiotis"(McMichael 2000a: 23). Yet though shrinking in relative size,peasant households still constitute roughly two-fifths of humanity.And with so many incorporated into market relations (thoughgenerally excluded from new high-value agro-export networks) andincreasingly exposed to intense competition m the context of long-term global price declines for producers (FAO, 2002), themagnitude of dislocation and vulnerability threatened by the currenttrajectory of global food production and distribution is staggering(Davis, Araghi and Amin)

As discussed in the first section, the Caribbean is a useful placeto examine this question, as the swift job- and production-scarce de-peasantization there has contributed to serious social and economicproblems in parts ofthe region — in spite of exceptional relativescales of migration and remittances — and serves as a warning forother regions about rapid integration within a highly uneven globalfood economy.

Breadbasket Imperialism

"...dc foreign people sucking alia de substance outta discountry wit deir crops"".

- a Jatnaican small farmer"

The Caribbean is situated between the world's three great agro-exporting regions. North America. Europe, and the southern coneof South America, but it is the political economy of U.S. agriculturewhich has the most bearing on the competitive playing field facingagriculture in CARICOM nations. The U.S. is the source of roughlyhalf of CARICOM"s agro-imports, providing both direct andindirect (i.e. diet shifting) competition, and has been veryaggressive in promoting its agro-exports in the region. It has alsobeen the leading advocate of trade liberalization at muUi-lateralforums (as well as wielding inordinate influence bilaterally, throughthe IMF and World Bank).

From an inlerview conducted diiting fieldwork in Jatnaica in 2001-2002.

As noted, wbile TNCs are the dominant actors in the globalfood economy, tbe state continues to maintain a very important,quasi-mercantile role in agriculture in many rich countries with tbesanctioning of the WTO. It was no secret that American agri-business was pleased with the AoA, and soon afterward the U.S.Department of Agriculture (USDA) boasted tbat its "careful,persistent" efforts "promoting U.S. products, penetrating newmarkets [and] tearing down trade barriers...paid off handsomely inthe mid-1990s" as "global demand surged and U.S. exportsexploded" (Galvin) (these 'exploding' agro-exports produced arecord agro-trade surplus in 1996, but rising imports have causedthat surplus to subsequently shrink). Approximately one-third oftotal American agro-output is now exported (up from 20 per cent inthe mid-1980s) and, as one government official put it. exports havebecome "critical to nearly every sector of U.S. agriculture" (Scher).

Though the powers in the U.S. agricultural sector regarded theAoA positively, they were not satisfied: it was seen only as a firststep in institutionalizing liberalization. In the late 1990s, the USDAcalled "the expansion of global market opportunities for U.S.agricultural producers.. .one of the Department's primaryobjectives", and promised to continue its "aggressive efforts ofrecent years to bolster export competitiveness, open new markets,and expand exports" (Glickman). This position is commonlyframed by an insistence tbat the existing system is unfair to U.S.agriculture because its agro-tariffs are. on average, the lowest intbe world (about 5 per cent, in contrast to a global average of56 percent'^) — while, not surprisingly, failing to note per farmersubsidies amongst the highest in the world.

Tbe first attempt to deepen agro-trade liberalization througb theWTO came to naught amidst tbe battle of Seattle (1999) and planswere again de-raiied at the Cancun Ministerial (2003), but therevival of negotiations on agriculture in August 2004 poses thepossibility that flexibility at the border could .soon be attacked. With

'"* Although ihis is deceptive because tariffs are low where domestic subsidies arehigh or in non-eompeling tropical/setiii-tropical produets (e.g. coffee, cocoa, mango,pitieapple. and bananas), while the U.S. uses some selectively high tariffs whereimportant doniestie sub-seclors are vulnerable to competition, l'his sck-ciiveprotectionism limitsi ihe potetitial for sotne non-traditional export development in iheCaribbean.

adjustment reforms having reduced the state's role in agriculture,tariffs are the primary poiicy mechanism most CARICOMgovernments have left to support their small farmers, and the houndtariff ceilings committed under the AoA (100 per cent) have comeunder repeated pressure for reductions at subsequent multilateraltrade negotiations, particularly from the U.S.'^

U.S. agro-trade intere.sts in the Caribbean are considerable,much greater than the size ofthe region might suggest. The U.S.runs a large agro-trade surplus to CARICOM and its agro-exportsthere have grown significantly since the early 1990s, reachingroughly US$900 m in 2004 (a year in which the total U.S. agro-trade surplus dipped to US$7.3 b. after hovering between US$11and US$15 b from 1998 to 2003). In the broader Caribbean, theU.S. agro-trade surpkis has been further boo.sted since 2002 by thepartial circumvention of the Cuban embargo for agriculturalcommodities.'^ An official at the Jamaican Ministry of Agriculturecharacterized U.S. agricultural interests as aiming "to feed theCaribbean." and this aggressiveness is plain to see in the CaribbeanBasin Agricultural Trade Office (www.cbato.fas.usda.gov) oftheU.S. Foreign Agricultural Service (FAS) as well as in recent issuesofthe FAS monlhiy AgE.xporieriV/ds 2004b).'^

Even Haiti, with its large agrarian population and limitedpurchasing power, is becoming increasingly dependent on foodimports. Under IMF direction in 1994. Haiti reduced its tariffs onimported rice — the primary food staple produced in the country— from 35 to 3 per cent, and both rice and total imports more thandoubled in the ensuing decade.'^ The downside of gains in overall

' ' Bolh al the WTO and for ihe Free Trade Area of ihe Americas (from personalcorrespondenee wilh ofiieials involved in CARICOM's negotiations)."' Cuba's food markei i.s an iniporiant largei for ihe U.S. agriculiurai sccior. whichhas been the most influential voice in ihe U.S, calling for an end lo trade sanctionsthere.'̂ The PAS is a specialized agency which integrates marketing, credit, and tradepolicy tools for US agro-exporlers. The eover of AgE.xporier of ihe October 2002theme issue on the Caribbean implores ihat is "Not Jusi a Pretly Place" bul "HasMultiple Markets lor U,S. Agriculture" (FAS. 2002). while a November 2001AgE.xporter article proclaims "Li>calion. Location. Location: The Caribbean Presentsan Opportunity Close at Hand" (Marlinez)."* Haiti's rice imporls averaged LiS$45.7 m from 1990 to 1994, and rose toUS$105,279 m in 2(KU, A condition of Aristide's relum lo power in 1994 aller the

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food supply in Haiti is the affect rising imports have had ondomestic producers. A recent Oxfam report notes that "today threeout of every four plates of rice eaten in Haiti comes from the US."and juxtaposes the rising profits of U.S. agribusiness giant RicelandFoods, a chief beneficiary of this trade, with the fact that "localfarmers' livelihoods have been devastated and rice growing areasnow have among the highest levels of malnutrition and poverty" inthe country (Green).

While the U.S. breadbasket export strategy was originally builton grains and oilseeds, since the 1980s the large increases havebeen in valued-added products, including meat and dairy, as well asfresh fruits and vegetables, and these are the areas where futuregrowth is projected.''* The grain-oilseed-livestock complex is at theheart of CARICOM's food import patterns, with cereals, oilseeds,meat, dairy and egg products accounting for roughly have of allfood imports. As Figure 2 illustrates, the region has also increas-ingly internalized one element of this complex: industrial broilerchicken production (though most associated inputs are imported).

These import and production trends are connected to a majordietary transition in the region. Meat, historically a rare item formost people, has moved to the centre of Caribbean diets. Forinstance, per capita chicken consumption in Barbados is twice thatofthe industrialized world (Craigwell and Moore). Although manyhouseholds within CARICOM still face serious problems of foodinsecurity, outside of Haiti the predominant dietary trend over the

first coup against him was Ihat his government implement IMF-prescribed economicre forms.''' The biggest trend in ihe siriicture of US agro-e\ports in the 1 ysOs and 199()s is thedecreasing relative importance ol' grain and feed exports and ihe rising relativeimportance of 'higher value' meal and animal products (increasing from 9 to 20 percent of total exports over these decades), US meal produclion increased by 48 percenl between 1980 and 1998. led by a boom in potiltry (which grew by 1.̂ 5 percent,pailly spurred by govcmmeni programs), and encouraged by an almost 8(H) percentincrease in meal exports (which accounted lor nearly .̂ 1 pereeni ofthe total increasein meat prodtiction). Frtiiis and vegetables have also become an increasinglysignilicanl part of ihc ILS, export piclure. growing from 6 to 14 per ccnl of lota!exports over ihe 1980s and I99()s (USCB 20()0). Liberalization does, however, posea dilemma for the U.S. wilh certain fruits and vegetables (as well as products suchas fruit juices, sugar, and lobaeco) where il is both a major producer and importerFor these sectors threatened by import competition tl..S. markets remain heavilyprotected, cxcepi in ihe ofT-seasons.

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Figure 2 CARICOM Meat Production (MT)

4(H),IXK) -1

.•^50,000 -

250,000 -

fc 200.000 -

150.000-

100,000-

50.000 -

Tolal

,̂ ' Poiillry

I % 5 147(1 I Q7,'i 1980 1985 19'M) 1W5 2(HM» 2004

'tlfrom FAOSTATS. 2Ol)5

past three decades is the increase in food availability and shifttowards diets that are heavily laden with saturated fats. Positively,there has been a great decline in protein and energy malnutrition,but the flipside is the significant rise in rates of obesity, heartdisease, diabetes, hypertension, high blood pressure, stroke, andsome cancers (PAHO; Bacallao et al.).^" Both the Caribbean Foodand Nutrition Institute (CFNI) and the Caribbean Cooperation inHealth (CCH) unit ofthe Pan-American Health Organization haveconnected rising levels of chronic disease with dietary patterns, inparticular the steadily rising consumption of animal products and

"̂ Mirroring a global trend, as the World Health Organization recenlly declaredobesity to be a global epidemic.

191

the inadequate consumption of complex carbohydrates {CCH,Sinha). In the mid-1990s, fat intake in most CARICOM countriesfar exceeded recommended levels while most did not even reachhaH their recommended consumption for fruits, vegetables, roots,and tubers (Sinha).

Dietary change in the Caribbean is also connected to powerfulcultural forces. Food is, after all, not only a basic need that has beenlargely commodified. but something that from cultivation topreparation to consumption bears deeply on culture. Thoughimpossible to measure, the spread of U.S. media, advertising, andfast tbod restaurants in the Caribbean has undoubtedly influencedchanging dietary aspirations, especially amongst youth, as havepatterns of short and long term migration and forms of tourismdevelopment. The U.S. FAS clearly sees this as an encouragingdevelopment. An AgE.xporter article insists thai "the permeation ofcultural influences" helps to "make U.S. goods so popular"(Martinez), and an unclassified FAS document (assessing thepotential for agro-export expansion in Jamaica) notes that "fast foodrestaurants are the single largest segment ofthe restaurants sub-sector and provide excellent marketing opportunities for U.S. high-value food products" (FAS 2003: 8).

In addition to increasingly feeding the Caribbean, the U.S. hasalso been instrumental in the multi-lateral context undermining theregion's export base. On behalf of powerful agro-TNCs (Chiquitawas particularly influential) and together with Latin Americanbanana exporting nations. U.S. trade experts successfully argued tothe WTO that the preferential access for ACP bananas in EuropeanUnion markets was an unfair trade practice. Because theseprotected markets had fostered extreme dependencies in theWindward Islands, the sharp descent of banana exports as thedecision has been phased in is very damaging to small fanners there(Myers provides great detail into the history of the now famous'Banana Wars' and the particular problems facing Dominica,St. Lucia, and St. Vincent).

Preferential sugar agreements have also beeti doomed by theWTO. Most of the world's trade in sugar has historically movedthrough various preferential agreements, but this system — uponthe successful challenge of competitive exporters Australia. Brazil,and Thailand — is now in the process of being dismantled. The first

drastic change was signalled by the European Union's announce-ment in 2005 that it would reduce subsidies to its sugar beetproducers and cut the price paid for preferential sugar by 39 percentover 3 years,-'

For CARICOM. which had had originally entered into anagreement with Britain in perpetuity — under terms initiallybeneficial to Britain, but which over time shifted in their favour astheir price was tied to the subsidy-inflated price given to Europeanbeet producers — this decision is being viewed as a betrayal,though appeals have focused on slowing the pace of implemen-tation. These changes could well prove to be the undoing of sugaron any significant scale in most of CARICOM. as uncompetitivesugar producers in the region now have a very small window toadjust. Only Guyana and Belize are anywhere close to being ableto produce at internationally competitive price levels, and the livingconditions for most ofthe region's .sugar workers are already farfrom decent.

The net outcome of CARICOM's agrarian decline, in tradeterms, is depicted vividly in Figure 3. Further, with diets shifting inways that cannot be sustained by domestic production and withserious threats to the traditional export base still playing out, thisimbalance threatens to widen in the near future in the absence ofconcerted efforts.

Encountering the Global

Though the problems and prospects of Caribbean agriculture remaincrucially woven into the inequitable landscapes ofthe region, theyalso have clear global dimensions. This paper has focused at thismacro-level in the belief that the dynamics globalization are toooften reified, partly by the abstracted logic of liberalization andcomparative advantage, and that by clarifying the pressures drivingmarket integration and the nature of competition it can help todissolve illusions that certain outcomes are inevitable. In this case,when the broader context of agrarian decline in the Caribbean iscoupled with a recognition of agriculture's multi-dimensional

-' Given Ihc polilic-i/alion of sugar wilh Europe, paiposed compensation payiTicnlstor EU sugar heel furmcrs hnve run into ihe hillions of euros. Meanwhile, proposalsill laie 2005 had 40m euros being spread amiingsl all of ihe ACP in compensationtor lost income.

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Figure3 CARICOM Afiro-Trade (US$000,000)-Adjusted liuse Year Prices

4(H) -

2 0 0 -

Imporls

Exports

1970 1975 1980 20(K)

Ik-lived from lAOSTATS. 2()II5

contributions, not only in terms of material production but also — ifwe are speaking about small farming — in the re-production ofdignified livelihoods, then the urgency of encountering theprevailing fatalism becomes more apparent. Fatalism tends toinduce inertia, and when this is shaken and uprooted alternativepolicy responses can seem more tenable.

One very significant example where this occurred was atCancun in 2003 as social movements (e.g. Via Campesina).progressive think-tanks (e.g. Third World Network, Focus onthe Global South), and scholarly research helped to inform andembolden negotiating contingents from Third World countriesabout the problems with the WTO. with agricultural disparities

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providing a key focal point in the de-railing of negotiations(a struggle which continues after the negotiations were quietlyre-railed in 2004). At Cancun CARICOM nations were part of theG-90-(- that arose as a bloc in loose association with the morepowerful Third World grouping, the G-20+ (led by Brazil andIndia), rallying in part around calls for greater 'food sovereignty'.For their small farmers to have a future. CARICOM nations mustcontinue to build alliances that advocate for rights to policymechanisms that can promote food sovereignty, includingdefending bound tariff levels in ongoing trade negotiations (or,more radically, to work towards a de-legitimization ofthe AoAaltogether). They must also use this tariff flexibility morestrategically in the future to protect domestic production againstuneven and dislocating competition {Weis 2004b).

Because food is something through which people encounterproductive relations very intimately, multiple times every day,increased awareness about systemic problems with food production— including the cultural and health issues associated with dietarychange — can have a special role in catalyzing opposition toneoliberal economic prescriptions and invigorating struggles forsocial change. For instance, some of the strongest and mostconsistent calls for policies to support diversified local agriculturalproduction in CARICOM nations have come from health analysts(Bacallao, CCH, Sinha). Food and agriculture might also act as aspur for social change in the Caribbean if new seams for landreform emerge out ofthe region's crises of plantation production.--If hopeful alternatives can be built in these seams, forcing them towiden, it could help to break down a degree of the historically-embedded denial about questions of land and inequality thatadjustment has solidified (Weis 2005, 2004c).

The energy for small farm-centred agrarian change in the regionwill ultimately hinge, in significant measure, on whether local foodcan be centrally re-positioned into Caribbean imaginations about

~ This will demand an as.saiill upon ihc time-warpcd view in the region of sugar associal welfare. A.s C.Y. Thomas, one of the region's mosi eminent dcvclopmenleconomisls. has long been cinphasizing. for sugar to have any future in CARICOMthe focus must shifl towards innovation and value-added processing (including Ihegenoralion of allernalive fuelsl. ralhcr ihan ihc Inidilional etnphases on maintainingjohs (froui the slalel and containing wage costs (in the industry I.

195

society, economy, and culture, and on whether small farmerscan see themselves — and make themselves seen — as a classwith not only a proud past but a potentially vibrant future. Betterunderstanding the global context and how, as McMichael (2000b:132) puts it, "liberalization is by no means a neutral matter ofinstalling a 'level playing field' in the global food economy", is oneimportant step in this struggle.

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