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1946 NEW ZEALAND
THE FOOD AND AGRICULTURE ORGANIZATION REPORT OF THE NEW ZEALAND REPRESENTATIVE ON THE SPECIAL MEETING ON URGENT FOOD PROBLEMS, HELD AT WASHINGTON, 20-27 MAY, 1946
Presented to both Houses of the General Assembly by Leave
New Zealand Legation, "Washington, 8 D.C., 14th June, 1946. The Right Hon. the Minister of External Affairs, Wellington, New Zealand. Sir,— . , I have the honour to append hereto a report on the special meeting on urgent food problems, convened by the Food and Agriculture Organization of the United Nations, and held in Washington, 20-27 May 1946. This Conference was the outcome of discussions in the United Nations Assembly in London, where a resolution was unanimously passed requesting international organizations concerned with food and agriculture to intensify efforts to obtain as full information as possible on the-world food position and' the future prospects in order to assist Governments in determining their short- and long-term policy. It was suggested that the initiative in this task should be taken by.the Food and Agriculture Organization. When this special meeting was first proposed it was contemplated that it should be confined to a few specially selected countries, among whom it was not contemplated that New Zealand should be included. After this Legation had reported to you on this aspect of the matter, your desire for representation was conveyed to the Director-General of FAO and we were accordingly extended a formal invitation on 15 May. I should add that similar action was taken by a number of other countries and the final membership was very much larger than originally proposed. The following countries were ultimately represented at the Conference — namely, Australia, Brazil, Canada, Chile, China, Cuba, Czechoslovakia, Denmark, France, Greece, India' The Netherlands, New Zealand, Norway, Peru, Poland, South Africa, Siam, the United Kingdom, and the United States—and representatives were also appointed from the following organizations: UNRRA, United Nations, EECB, Combined Food Board, International Labour Office, and the International Bank. The New Zealand representation at the Conference was originally comprised of Sir Carl Berendsen and Mr. R. W. Marshall. Subsequently, Miss B. A. Foster, of the Legation staff, was added in a secretarial capacity, and when in the course of the Conference it developed that three separate and
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distinct Committees would be established and that they would meet at the same time in different premises, Mr. J. S. Scott, of the New Zealand Supply Mission, was added to the delegation. The Hon. Clinton Anderson, United States Secretary of Agriculture, was elected Chairman of the Conference, and at the first plenary session, held on Monday, 20 May, the Agenda of the Conference was approved as follows: I. (a) The implications of the factual picture that has been prepared by working groups drawn from the organizations dealing with the food crisis. (&) Means whereby FAO, with the co-operation of other organizations and Governments, can keep the situation under continuous review and report to Governments concerned on changes in harvest prospects in any part of the world, and any other factor affecting the production or distribution of food, so that the necessary action can be taken with the minimum of delay. 11. (a) Measures that can be taken to husband the food available from the 1946 and 1947 harvests and to ensure that it is used to the best advantage. (b) Measures to ensure maximum output from the 1947 harvest in all countries. 111. The desirability of making recommendations to Governments regarding a four- or five-year plan, designed to carry the world through the present crisis and to assist in effecting a smooth transition from emergency measures to a permanent world food policy. Three Committees of the whole Conference were established, and each of the three separate subjects outlined in the Agenda was referred to one of the Committees respectively. At the initial Plenary meetings a number of statements were made, of which two, those made by the Hon. Clinton Anderson and Mr. Herbert Hoover, are attached. I took occasion to call attention to the of omitting any such important primary producing and exporting country as New Zealand from any such discussion. The reports of each Committee are embodied in the general report of the Conference, but the following special comments by the New Zealand delegation are attached:— COMMITTEE I.—WOULD FOOD APPRAISAL (Miss B. A. Foster) With regard to paragraph (a) of the Committee's Agenda, working groups of the FAO and other organizations had prepared for the consideration of the Committee a preliminary appraisal of the world food situation. (A copy of this appraisal is attached (see Appendix I hereto) and a number of very voluminous supporting documents are being forwarded to you by surface mail [noi printed].) In spite of its limitations and shortcomings, this appraisal was considered by the Committee as something new in the field of economic intelligence. It is the first attempt that has been made to assess future trends in the world food situation on so comprehensive a scale. The Committee was in general agreement with the conclusions reached in the appraisal, but it felt that it was not in a position to consider in detail the data presented in the report and in the technical supplements attached. However, it did draw attention to the fact that the forecasts of food-supplies assumed " reasonably favourable " weather conditions until the 1946 harvest, and that the situation might turn out to be Worse than the report indicated. The Committee also noted that the report assesses the order of magnitude of the food deficits in the main importing areas on a regional basis, but it does not estimate the requirements or exportable surpluses of individual countries or make forecasts of effective demand.
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The Committee was of the opinion that such surveys are essential in any approach to the current food crisis, and recommended:— (a) That an international food, agriculture, and fisheries service should be created to which should be entrusted the task of preparing such appraisals, providing complete and accurate information about the current aspects of the world food situation, and keeping the situation under continuous review. (b) That the Director-General of FAO should be requested to establish this service, to be called the " FAO Research and Information Service," as a matter of immediate urgency; and that the personnel of the Service should be recruited on a wide geographical basis, in order to include individuals with special knowledge of different regions. (c) That the FAO Research and Information Service should publish its first appraisal of the world food situation, in sequence with the appraisal presented to this meeting, between 1 and 15 September, 1946. By that time the size of the 1946 harvest in the Northern Hemisphere will be approximately known and this should make it easier to forecast trends in the world food situation during the ensuing year. (d) That, in order to improve the accuracy of this appraisal, Governments should be asked to comment on figures and estimates included in the Appraisal of the World Food Situation, 1946-47, of 14 May, 1946, with which they are specially concerned. (&) That subsequent appraisals should be made quarterly at least as long as the world food situation remains serious, the same procedure being followed with regard to obtaining .comments from Governments as is suggested in (cZ). The Committee recommended the following with regard to the functioning of the Research and Information Service:— (a) That the methods of establishing and running the Research and Information Service should be worked out by FAO itself. (b) That FAO should acquaint Governments as to the kind of information required; this will include estimates and forecasts of food production and utilization, data about stocks and rations, and all other material, published or unpublished, relevant to the emergency food situation. (c) That FAO should, in consultation with the international allocating body, request Governments to arrange for the collection and rapid transmission to FAO of the information needed by the Research and Information Service. (d) That contact between the FAO Research and Information Service and the appropriate agencies in the countries concerned should be established. (e) That the assistance of intergovernmental and governmental agencies at present engaged in making studies of various aspects of the world food situation should be sought by FAO. (/) That, since in the collection and analysis of statistical material questions will arise from time to time which cannot be settled at the headquarters of the FAO Service, arrangements should be made for members of the Service to visit countries for the clarification of the problems, adjustment of difficulties, &c. (g) That, to ensure that satisfactory information, prepared on a uniform basis, is made available to Governments, the Service should undertake any necessary analysis of relevant material. In cases in which Governments are not in a position to transmit timely and adequate data, the Service should make the best possible estimates for inclusion in its appraisals.
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As no comprehensive international system for reporting on the world food situation and future trends in respect of food-supplies existed, it was felt that the FAO Research and Information Service could materially assist the International Emergency Pood Council. However, as the first report of the proposed Service will not be issued until the middle of September, it is doubtful whether it will be of any use in making current allocations. COMMITTEE lI.—CONSERVATION AND EXPANSION OF SUPPLIES (Mr. J. S. Scott) (See Appendix II for text of Committee's report) The work of Committee 11, which dealt with conservation and expansion of supplies, was divided for discussion as follows: — (ai) A review of the 1946-47 position, with recommendations for utilizing the 1946 harvest supplies in such a way as to avoid repetition during 1947 of the shortage and famine which occurred in 1946. (&) Consideration of the measures which can be adopted to make the 1947 harvest as large as possible and thereby increase the food-supplies available during the year 1947^18. (c) Preparation of proposals regarding the principles which may be adopted in the procurement, collection, allocation, and distribution of foodstuffs in short supply. It was recognized that very little could be done by producers to increase the 1946 harvest in the Northern Hemisphere, but steps could be taken to ensure that this harvest is utilized to the maximum extent in the provision of food for human consumption. It was stressed particularly no country should, with the harvesting of the 1946 crop, assume there was no longer any 'necessity for further economy. Wheat, of course, was the most discussed subject, and the economy measures dealt with included increasing the extraction rate for flour, the dilution of wheat or flour by other grains and by potatoes, reduction of wastage, possible rationing of bread, control of domestic distribution of wheat and flour, and, most important of all, further curtailment of the feeding of wheat and other grains to live-stock. The position of other foodstuffs was also examined, especially rice, potatoes, fats, sugar, fish, dairy products, and meat. In regard to the 1947-48 harvest the fact was elicited that seeds, fertilizers, and equipment were all urgently needed to assist in increasing supplies of both foodstuffs and feedstuffs, but accompanying these requirements in this, as in other instances, was the need of producers for assurance that any special efforts they may make now to increase output would not be to their detriment in future years when the possibility of surpluses may become an actuality. Discussions and recommendations of more particular interest to New Zealand are dealt with below: — (1) Flour Extraction Rates Some delegates pointed out that the special circumstances of individual countries would make it difficult to secure agreement on any precise figures for extraction rates. In tropical countries the keeping-qualities of flour must be considered; some countries have soft wheat, some have commitments in respect of live-stock products. The Australian representative indicated that if Australia had to adopt a high-extraction rate, resulting in less offals, they
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would lie forced to feed more whole grain to live-stock; countries importing flour, rather than bread grain, have to depend on the milling rates of supplying -countries. It was recommended — (a) That, for the food consumption year 1946-47 extraction rates for wheat and rye should be not less than 85 per cent, in all countries. (b) That in cases where, for special reasons, certain countries will find it impracticable to introduce an extraction rate as high as 85 per cent., the Governments concerned should report the relevant circumstances to the lEFC and indicate what other measures are being taken, as an alternative to raising the extraction rate, in order to achieve comparable economies in the use of food grains. It is hoped that the saving of grain through increased extraction rates may amount to 3,000,000 tons. (2) Industrial Use of Grains Most countries were able to report that considerable reductions had already been effected in the use of food grains for industrial purposes. It was recommended—(a) That during the consumption year 1946-47 the use of grains for beverages and other non-essential purposes be kept at the existing low levels and where possible should be still further reduced. (b) Countries should report to the lEFC what reduction in the use of cereals for this purpose they propose to introduce for 1946-47, indicating the quantity of grains which will be saved by these means and stating the quantities used for the same purpose in 1946-47 and in an earlier year when no restrictions on the use of grains for the purposes were in operation. (3) Regulation and Restriction of the Human Use, of Grain It was the general opinion of the Committee that Governments should retain or develop controls for keeping food-grain consumption at desired levels, and while some countries already have bread rationing in operation, this, particular item brought out very little discussion. It was recommended — That all countries should maintain or adopt measures enabling them to exercise an effective control over the importation, procurement, collection, distribution, and consumption of grain and grain products so that in the event of it being necessary to curtail the usage of wheat and other grains at short notice, the necessary machinery will be in existence and any reduction in consumption can be made immediately. In this connection, countries should consider the advantages of bread rationing, the curtailment of flour issues at source, and other measures so that they can adopt methods of control specially suited to their own circumstances. (4) Addition of Supplements to "Wheat Flour Several European countries instanced forms of dilution which it had been necessary to adopt and most of these were claimed as successful. It was recommended—(a) That wheat flour used in various forms for human consumption should be supplemented, to the extent of not less than 5 per cent., by other grain products, potato flour, fresh cooked potatoes, &c. (b) That, should, any country find it impracticable to add supplements to the extent proposed, the Government concerned should explain the relevant circumstances to the lEFC.
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(5) Wastage It was recommended — That all countries should immediately undertake special campaigns,, adjusted to the particular situation in each country and making use of all available administrative and education resources, to reduce waste of food in all forms, including:— (a) "Waste on farms. (b) Waste due to infestation of stored foods by rats, mice, insects, and mites, and mould fungi. (c) Waste by consumers in homes, institutions, and public eating places. It was suggested that vigorous efforts might reduce wastage in 1946-47 by 1,000,000 tons. (6) Live-stock Feeding This item was discu'ssed at great length, and a sub-committee composed of members from Australia, Canada, France, The Netherlands, the United Kingdom, and the United States prepared a draft recommendation for consideration. The representatives of France and the Netherlands made strong pleas for re-establishment of their live-stock, and while this desire of these and other war-devastated countries was fully appreciated, the countries exporting grain felt that it would be most difficult to justify reductions in their live-stock so that additional grain could be made available to other countries which were building up their live-stock. The French representative recommended that FAO suggest live-stock numbers for each country, but this did not find agreement in the Committee. Pigs and poultry came in for themost criticisms, and it was pointed out that in both Australia and New Zealand the most numerous and important live-stock —sheep and cattle —werefor the most part pasture-fed. It was recommended—(«i) That each country should take such measures as in its particular circumstances are best fitted to secure that during the crop year 1946-47 (i) bread grain is not fed to live-stock except where, owing to the special circumstances of a particular country, no food would be gained by enforcing such a prohibition; (ii) the maximum use is made of pasture, hay, straw, and other bulky fodder and waste products; (iii) dairy cows producing milk wholly for general human consumption l and draught animals receive priority in any necessary feeding of coarse grains; (iv) second priority should be given to the maintenance of a nucleus of high-quality breeding-stock of all kinds; (v) the feeding of grain to other stock, especially pigs and poultry, be reduced to the minimum; (vi) adequate publicity be employed to encouragethe adoption by producers of the policies referred to above; (&0 That special attention be given to securing that the 1946 harvest isnot dissipated, in the early months after it has been reaped, by live-stock feeding, contrary to the recommendations in (a) above. The Committee considered that "the above objects could best be secured by price policy, by control (and, where practicable, rationing) of concentrate feed, by salvage and distribution of unavoidable waste suitable for stock feeding, and by information services and publicity methods; (c) That price policy should aim at encouraging (i) the sale of §rops and milk for direct human consumption as against live-stock products other than milk; (ii) the feeding of meat-producing animals to produce the maximum quantity of meat, in relation to the amount of grain fed, without undue regard to quality; and (iii) the slaughter of stock which cannot be economically fed. The Committee considered that if concentrate feed rationing and
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the international allocation of feed grains for food are to be effective _ they must be combined with control of the retention and disposal of the rationed and allocated commodities, whether imported or home-produced; (d) That each country should encourage by publicity the salvage of unavoidable waste products such as swill and should institute or maintain a system of collection and sterilization of such products and their distribution to live-stock producers; O) That each country should encourage the production of feed crops on land not suited to bread grains or other essential food crops; (/) That each country should at such times and in such forms as may be requested by lEFC supply to it information in regard to the feeding of grain to live-stock and the extent to which and the methods by which such country is carrying out the above recommendations, or information as to why a particular recommendation is inapplicable to its case, and finally should report to lEFC as early as possible what additional quantity of grain it can arrange to make available for human consumption in 1946-47 as a result of implementing the recommendations listed above; and ( g ) That FAO assemble and make available to member Governments technical information in its possession in regard to possible economies in the feeding of live-stock. (7) Fats The grave shortage of fats of both animal and vegetable origin in prospect for 1946-47 could, it was suggested, be lessened by diverting quantities from industrial uses and improving the technique of extraction processes. It was recommended — That Governments make arrangements to divert as much oil and fat as is feasible from the production of toilet soap, paint, varnish, and other nonfood products to the production of foodstuffs and that they report to the lEFC on the economies thus programmed. (8) Dairy Products The Committee felt that, in view of its recommendation on the substantial decrease in the use of grain for feedstuffs, little increase in the total supplies of milk could be expected in 1946-47. The United Kingdom representative suggested a reduction in the amount of whole milk fed to calves. The representative of UNRRA indicated that skim-milk cheese would be acceptable in any quantity, and an increase in production of dried skim-milk was also discussed,. It was recommended — (a) That dairy cows should have prior claims on any available supplies of feeding-stuffs and that emphasis should be placed on the production of •milk for sale for general human consumption. (&) That Governments develop programmes to obtain a substantial diversion of skim-milk from animal feeding to human consumption in various forms. (c) That FAO should make a study of the question of increasing the production of skim-milk products, and the marketing problems involved, in both their short-term and long-term aspects.
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(9) Food and Agricultural Policy Full appreciation was expressed of the various measures taken by the Governments of individual countries to husband the available supplies of scarce foodstuffs, but it was pointed out by several members, notably Australia, Canada, and the United States, that much of the action was possible only because of special war powers, which had a restricted period of application." The Committee, while fully aware that it should give no impression of an attempt to influence the constitutional procedures of any country, felt that such special powers should be continued meantime wherever possible. It was recommended — That no material relaxation should be made in these economy measures, and that during the emergency period, where necessary, the Governments concerned should seek the necessary constitutional or legislative authority for maintaining them. The following discussions and recommendations have reference to the 1947-48 consumption year and therefore deal to an extent with longer-term problems, rather than those immediate problems relating to the period: — (1) Acreage of Food Crops Discussion on this item was very general and the representatives of various countries indicated how they proposed to increase production of bread grains in 1947—48 —some by directions to producers, some by guaranteed prices, and some by revision of price differentials to encourage wheat-produc-tion. It was regarded as important that details of proposed production programmes be supplied to FAO as early as possible. (2) Agricultural Supplies Again on this item the discussion was quite general, but the fact was recognized that mere increase in acreage would not ensure maximum production unless producers could secure auxiliary materials —sowing, cultivating, and harvesting machines, with tools and spares, tractors, pesticides, fertilizers. It was recommended that fertilizers should be used for the production of essential foodstuffs before attention was given to other crops and that countries should report to the lEFC as to their fertilizer control and distribution policies and the crops on which such fertilizers are being used. (3) Seeds In view of the importance that a shortage of suitable seeds should, not limit the planting programmes of any country, all Governments were urged to co-operate in providing adequate quantities of suitable seed at the necessary dates. It was stressed that importing countries must notify their requirements as early as possible. (4) Fats It was regarded as likely that the scarcity of feedstuffs would result in a shortage of animal fats continuing through 1947-48. Export supplies of vegetable fats, particularly from Far Eastern sources, have shown a decided drop, and the lack of transportation facilities and of consumer goods were cited as contributing factors. The recommendation of most interest to New Zealand reads: that in order to increase supplies of marine oils during the period of the emergency, the Governments signatory to the International
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Whaling Agreement should (i) ensure a- rapid increase in the'number of factory ships and other equipment; (ii) seriously consider modifying the said Agreement in ways which will facilitate more abundant catches; ana (iii) co-operate in the provision of technical personnel and equipment m order to obtain the maximum increase in all waters where whaling is permitted. (5) Dairy Products, Meat, and Eggs It was fully appreciated that the shortage of feeds-tuffs must reflect on live-stock policies to be followed during the period of the emergency, and there was a definite agreement that the world demand for live-stock products could not be met in 1947-48. It was recommended — («.) That dairy cattle producing milk for general human consumption should have first priority in the allocation of available feed-supply, owing to "the nutritional importance of milk. (6) That the remaining supply of feed should be so distributed as to secure the maximum output of live-stock products, taking into account the needs of economic rehabilitation and the geographic and other circumstances of each country. Underlining most of the Committee's discussions on the possibility of increased production were the fear of surpluses when the period of emergency had passed and the part which incentives and price policy could play in expanding production. While national guarantees of price stability would create a feeling of confidence, it was felt that these need to be supplemented by international measures to serve the same need. It was recommended — O) That FAO be asked as a matter of urgency to study the problems of agricultural surpluses and the means which might be employed to dispose of them, bearing in mind the principles enunciated at the Hot Springs Conference, and consulting such other United Nations agencies as may be concerned. (&) That, in order to allay, as far as possible, the fears of producers respecting future surpluses, FAO be asked to report its findings to the next session of its Conference. (c) The FAO study the international aspects of the problems of securing reasonable and stable returns to agriculture in ways consistent with technological developments and a flexible world economy and that FAO report its findings at as early a date as possible to its member Governments. While the Committee recognized that it was not concerned with intergovernmental machinery for procurement and allocation of foods in short supply, it did feel that consideration should be given to the principles to be adopted, and accordingly a very wide and interesting discussion took place on the principles of collection, procurement, allocation, and distribution. The representative of India made a statement on the broad principles regarded as essential in making allocations, and with few changes these were written into the final report. The United Kingdom representative stressed the fact that the machinery . for allocation and distribution must not be made too rigid and that, in the field of international procurement, co-ordinated buying should be continued, every attempt being made to eliminate disorderly competitive buying by countries short in food supply.
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The United States representative stressed that importing countries must provide an adequate control over the distribution and use of supplies which will stand the scrutiny of the exporting countries. The representative of UNKRA indicated that the cessation of lend-lease, mutual aid, and shipping controls had made their task more difficult, while contracts between exporting and importing countries also added to their difficulties. The representative of Cuba brought up the point of prices in the importing countries being controlled, and considered that if these were permitted to rise unduly, producers in exporting countries may become discouraged. This had particular reference to sugar being exported at a fixed price but sold in some importing countries at greatly inflated prices. The Greek representative was anxious to ensure that importing countries should not be able to get supplies allocated by some international authority, in addition to supplies from countries which may not recognize such authority. All representatives stressed the importance of early and accurate notification to lEFC of supplies available for allocation, this information being revised without delay as might be found necessary. Member countries of the lEFC should accept the full responsibility of implementing recommendations to which they have agreed. While the Committee did not consider that a rigid formula for allocations would be appropriate, it was recommended that the lEFC should be guided, inter alia, by the following:— (а) The comparative needs of different countries from the nutritional standpoint; (б) The levels of pre-war consumption in the different claimant countries; (c) The need to maintain emergency subsistence levels of consumption in importing countries ; (d) The extent and duration of undernutrition, whether due to circumstances produced by the war, such as occupation or devastation, the effects of drought, or other causes leading to food shortage; (0) The extent to which the Governments of importing countries are effectively carrying out policies to secure maximum food-production, and, the efficient procurement and utilization of available supplies for consumption by human beings; (/) An attempt should be made to co-ordinate the allocation of supplies of the different foods, which should not be considered individually and in isolation; (g) While account should be taken of the desirability of maintaining or re-establishing normal trade between different countries, consideration of urgent need should be paramount—it is more important to provide food for starving people than to maintain or re-establish trade relations between different countries; (h) Financial difficulties should not be allowed to hamper arrangements for providing food to countries in the most urgent need,; (1) In connection with the allocation of fertilizers, food, and machinery, due weight should be given to the return contribution which countries can make to supplies for allocation of foods of which there is a world shortage; (j) The quantities of food available in each country should be reported to the lEFC, together with information as to the basis on which the figures have been calculated; and (k) Account should be taken of the facilities possessed by countries for processing certain foods.
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COMMITTEE lII.—FUTURE MACHINERY (See Appendix 111 for text of Committee's report) It was clear that Committee 111, charged with considering the future of the Combined Food Board, would be clearly the most important. It was .arranged that both Mr. Marshall and I should attend all meetings of this Committee. There was from the commencement general agreement that the structure of the Combined Food Board, which was established for war purposes and which had done quite admirable work during the war, was clearly inadequate to cope equitably and efficiently with the present crisis. Indeed, the members of the Combined Food Board themselves (United Kingdom, United States, and Canada) produced proposals for a new body which formed the basis of the Committee's discussion and were on the whole approved substantially as introduced. Briefly, it was decided to broaden the base of the world distributing .authority by establishing an International Emergency Food Council with a Central Committee to conduct the work of the Council during such time as the Council is not in session and commodity Committees very much on the •Combined Food Board plan to deal with specified commodities. The full text of the Committee's proposals as approved by the final plenary session of the Conference is as follows: — The Committee is convinced that the present food emergency will continue for some considerable time and that adjustments are required to the existing international machinery for dealing with foodstuffs in short supply. The Committee has had before it proposals presented by the three member •Governments of the Combined Food Board —i.e., the United States, the United Kingdom, and •Canada. It has discussed these proposals and suggestions made by other Governments and international •organizations and Recommends to all the Governments concerned That there be established an International Emergency Food Council, which shall be constituted as follows : (1) Functions and Duration The functions of the Council shall be : (а) To consider, investigate, inquire into, and formulate plans with regard to any question in respect of which the member Governments have, or may have, a common concern relating to the supply and distribution, in or to any part of the world, of foods, agricultural materials from which foods are derived, and equipment and non-food materials ancillary to the production of such foods and agricultural materials, and to make recommendations to the member Governments in respect of any such question. In particular, as regards recommendations for the international distribution of food, feedingsifcuffs, essential seeds, chemicals used in agriculture, and fertilizers in short supply it shall be the object of the Council to put forward recommendations with respect to which international differences have been reconciled to the maximum degree possible. (б) To work in collaboration with others of the United Nations (and with other international bodies) toward the best utilization of their food resources and, in collaboration with the interested nation or nations, to formulate plans and recommendations for the most effective use of their food resources during the present emergency. The Council shall be entitled to receive any information available to members of the Council relating to any matter with regard to which the Council is competent to make recommendations to these Governments, and, in principle, the entire food resources of the member Governments will be deemed to be matters about which the fullest information will be interchanged. The Council shall continue for the duration of the shortage of basic foodstuffs. Its life shall in the first instance extend until 31st December, 1947, subject to consideration before that date as to -whether, as a result either of an easing of the supply situation or of United Nations organizational developments in the field of food and agriculture, the work of the Council can be terminated before 31st December, 1947. (2) Membership Membership in the International Emergency Food Council shall be open to the representative of any Government during such time as it is represented on any Commodity Committee of the Council (see " 5 Commodity Committees ").
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(3) Central Committee To ensure the efficient operation of the Council, a Central Committee shall be established with the following functions : {a) To consider issues of principle raised in commodity Committees ; (b) To assist in case of need in the reconciliation of international differences which may arise in the commodity Committees ; (c) To co-ordinate the operations of the commodity Committees and, in so far as possible, to secure uniformity of procedure ; and (d) To be responsible in the interval between sessions of the Council for carrying out the functions of the Council and in particular transmitting agreed recommendations from the commodity Committees to the Governments concerned. (4) Membership of the Central Committee The number of members of the Central Committee, the method of their election, and terms of office shall be determined by the Council. The membership shall include the present members of the Combined Food Board. (5) Commodity Committees The Council shall establish commodity .Committees which shall have initial responsibility for preparing agreed recommendations regarding the procurement, international distribution, and shortterm adjustments in the production of the commodities dealt with by them. These Committees shall have under continuing consideration the extent to which recommendations regarding these matters which have been accepted by Governments are being effectively carried out by those responsible. In the first instance the commodity Committees shall be those at present existing within the Combined Food Board. They shall initially have the same membership, but it shall be the policy of the Council to ensure that the membership of each Commodity Committee includes representatives of those countries which have an important interest in the international trade of the commodity in question. The commodity Committees shall consider and periodically report to the Central Committee whether in their view the conditions of supply and demand of the commodity in question make it desirable to terminate individual commodity Committees. (6) Relation between the Council and FAO In order to co-ordinate the activities of FAO and the Council, the two organizations shall maintain the closest co-operation. FAO shall be entitled to send representatives to participate in all meetings of the Council and its Central and commodity Committees. The Council shall invite FAO to provide through its Research and Information Service for the collection and preparation of data on the world position of the basic foodstuffs, feedingstuffs, essential seeds, chemicals used in agriculture, and fertilizers, including data on the basic minimum requirements of different countries during the present emergency, and their total nutritional position. (7) Relation between the Council and UNRRA UNRRA shall be closely associated with the Council and shall be entitled to send representatives to participate in all meetings of the Council and its Central and commodity Committees. (8) Secretariat The Council shall appoint a Secretary-General to be nominated by FAO and an international, secretariat to work under his direction and responsible solely to the Council. The Central Committee shall make arrangements for securing the personnel to staff the secretariat on a full-time loan basis, in so far as possible from FAO. (9) Procedures The Council shall adopt its own rules of procedure. It shall meet as required in accordance with those rules. It may set up any committees required for the performance of its functions. Periodic reports, will be published regarding the activities of the Council and its commodity Committees. (10) Responsibilities of Members In accepting membership in the Council and its Committees, Governments shall make it clearthat they accept the responsibilities which membership entails. These responsibilities shall include — (a) The assurance of full co-operation in the purposes of the Council; (b) The prompt provision of full information regarding the availability and utilization of supplies and the relevant conditions governing their disposal and utilization; and (c) An undertaking that each member country will put itself in a position to implement' aIL recommendations which it has accepted, seeking special national action when necessary.
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The Committee further recommends — That the Governments ofjthe United States, the United Kingdom, and Canada arrange without delay for a meeting of the Combined Food Board to which shall be invited representatives of the Governments eligible for membership in the proposed] International Emergency Food Council in order that this Council may be organized. The original Agenda for Committee 111 included study of a long-term plan, and the Committee passed the following resolution: — The Committee, convinced that present emergency action in the field of food and agriculture should be carried on further by providing at an early date for longer-term machinery to deal with certain practical international problems connected therewith, Requests the Director-General of FAO — (1) To submit to the Conference of FAO at its next session a survey of existing and proposed intergovernmental organizations designed to meet longterm problems concerned with the production, distribution, and consumption of food and agricultural products, including the risk of accumulating surpluses. (2) To make proposals to the Conference on any extension of the functions of existing organizations or on any new organizations which the survey may indicate as necessary. (3) In preparing such proposals to bear in mind—- (<») The necessity of securing the widest possible co-operation between nations and between the intergovernmental agencies concerned with increasing the production and consumption of food and agricultural products; (b) The need for effective measures to prevent a recurrence of shortages or the accumulation of surpluses of food and agricultural products and for dealing with such shortages or surpluses should they develop; and (c) The proposals made by the representatives of Governments and organizations during the course of the special meeting; (4) In carrying out the above request, to maintain close contact with the other intergovernmental organizations concerned, and especially the Economic and Social Council of the United Nations. The Committee recommends— That any conclusions of the Conference of FAO concerning the extension of the functions of existing organizations or the establishment of new organizations should be referred to the United Nations in order that guidance may be obtained on the proper relations which should be established and maintained between the various existing or proposed bodies in this field. There can be little doubt that the new body now proposed is a distinct improvement on the existing arrangement, but it must be recognized that it is an improvement with very distinct limitations. The fact that the distributing authority now rests on a much broader basis will, it is believed, give added authority to its decisions and added efficiency to its discussions. But in the broad result the power of deciding the destination of foodstuffs will still remain where, in essence, it has always lain—namely, with the country producing and owning the surplus. Supplying countries and importing countries will have the fullest opportunity of expressing their views, and the new organization should provide every possible facility for reconciling those views. But in a situation where starvation threatens so many peoples it can scarcely be expected that commodity Committees or the Central Committee or the Council itself will be able to agree upon the most equitable distribution of
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foodstuffs in short supply, and there will probably be many eases in the future, as there have been in the past, where, in the absence of agreement, the matter is, in the last resort, decided by the producing country. There was a disposition amongst a number of delegates to suggest that at a time such as this there should be some paramount authority accorded to the distributing body. It was quite clear there was never at any time a possibility of carrying a resolution giving actual authority to the new Council or to any other body against the will of the producing country, and it was generally recognized that the agreement actually come to, that every country joining this new body should undertake to implement all recommendations " which it has accepted," was, indeed, the utmost that could be achieved. But a special point was made: that members by joining this new organization would be understood to pledge themselves to givei careful and impartial consideration to the problems involved and to accept their full share of the responsibility for meeting the present world crisis. One aspect that was recognized as probably inevitable was this: that as each commodity Committee is in terms of the agreement to include those countries principally concerned, with the production or utilization of that commodity, a considerable expansion of the commodity Committees may be expected. This will no doubt be good in one sense and possibly bad in another, inasmuch as it might tend to make these Committees unwieldy, but it was generally agreed that this risk must be accepted. This raises also the question of the representation of New Zealand on these commodity Committees. Though we hold an outstanding position amongst the world's producers of dairy products and of meat, we are not, for reasons which were good at the time, represented on, the Dairy Committee or the Meat Committee. I entirely agree with your view that in circumstances as they are to-day we should properly be so represented, and the appropriate steps will be taken accordingly. It will be observed that membership of the lEFC is accorded only to those countries represented on commodity Committees. Our qualification for membership rests on the ground of our seat on the Seeds Committee. From the point of view of our membership of the Council, we should have some more broader and more lasting qualification than our membership of the Seeds Committee. But, in any case, I wish to repeat and to stress the fact that, just as was the situation under the Combined Food Board, the new lEFC will have no real powers of enforcement. There can be no allocations other than those voluntarily accepted by its members individually, and with the quite legitimate hesitations of Governments to accept drastic alterations in such matters as normal markets, long-term contracts, bilateral or multilateral agreements, and price factors, it cannot be expected that the new Council will have an easy task to perform. But it does beyond question provide an opportunity for a considerable number of the nations of the world to discuss the proper distribution, during the. present crisis, of those foodstuffs of which there is such tragic shortage. The recommendations of each of the three Committees were approved without substantial alteration at the final plenary session, which was held on Monday, 27 May, and in accordance with the expressed intention all countries represented at the Conference have been invited to attend a meeting of the Combined Food. Board to be held on the 20 June with a view to establishing forthwith the new body recommended by the Conference.
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The success of the new body will depend essentially on the extent to which Governments concerned are prepared to implement the proposals made by the "Conference and endeavour, so far as possible, to pool their resources at this time of crisis for the common good. T,o a considerable extent also the success of the new body will depend upon the capability and knowledge ot the staff with which it is provided and on the delegates who will attend its meetings. It is believed that the lEFC will be able to retain the services ot some of the key members of the staff of the Combined Food Board, and as it must necessarily work in close co-operation with the FAO a considerable portion of its staff will be seconded for the purpose from that orgamzation It is worth noting in this connection that at present the start ot rAU is generally understood to be no more than adequate for its own purposes and clearly insufficiently strong to undertake with success that large and expert body of work which it contemplates. It is not impossible, therefore, that any over-ambitious programme now to meet the present crisis might well have the effect of prejudicing the long-term operations for which FAO was established. The position of the London Food Council and also of the commodity Committees which previously sat in London will no doubt be clarified at an early stage of the operations of the lEFC, but it would seem probable that the importance of the London bodies must diminish, and that to a substantial extent the work they have performed will now be transferred to Washington. I have, &c., C. A. Berendsen. APPENDIX I—APPRAISAL OP THE WORLD POOD SITUATION, 1946-47* (1) Introduction This is an appraisal of the world food situation for 1946-47 which the Food and Agriculture Organization has prepared for the special meeting on urgent food problems. This is a preliminary appraisal which can indicate only the general outline and magnitude of the problems ahead. Current estimates of acreages and live-stock numbers are at best informed forecasts, while crop yields, especially of the crops recently planted, cannot be accurately estimated until August or September or, in the case of the Far Eastern rice crop, the closing months of 1946. As a basis for estimating food deficits or shortages under emergency conditions, an expert Nutrition Committee has advised that food-supplies per caput daily at the retail stagef should not be allowed to fall below 2,000 calories for any sizable segment of the population in continental Europe. Ihe corresponding figure for the Far East, allowing for differences m age distribution size, climate, &c., is about 1,600 calories. To allow for disparities m consumption within countries, national averages must, of course, be several hundred calories above the " emergency subsistence level. A higher "temporary maintenance" level is also given to be used in preference wherever it is at all possible. Although this level is 300 calories a day
* The estimates and other material upon which this appraisal is based are described m detail in a series of technical supplements covering nutrition, continental Europe, the Far East, commodities, fisheries, agricultural rehabilitation, fertilizer, and wastage. This statement is a revision of the o7£ oase ot hom , f _ Mowing to household waste, however, actual " intake " of calories is always somewhat less than amounts supplied at retail.
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higher than the emergency level, it is still well below any health standard. A summary of the report of the Nutrition Committee is included in the last section of this report. (2) The World Pood Balance It is clear that a critical world food shortage will continue at least until crops are harvested in 1947, even assuming average or somewhat better than average weather for the rest of 1946 and 1947*. Some increases in production are in prospect for 1946 as compared with 1945 in both continental Europe f and the Far Eastt However, production in continental Europe generally, as well as rice-production in the Far East, will still be well below the pre-war level. The aggregate shortages in these two great areas will exceed the supplies available for shipment from the exporting areas§. Meanwhile, world stocks of food have been seriously depleted in order to meet the current crisis. Thus even though some crop improvement in is prospect, assuming average weather, the incidence of any widespread drought in the months immediately ahead might well be even more disastrous than the effects of the droughts which developed in 1945 and early in 1946. (a) The Situation in Continental Europe Total indigenous production of food for the 1946-47 consumption year is estimated as sufficient to supply about 2,100 calories a head daily at the retail stage in continental Europe and French North Africa. For continental Europe as a whole, such a food output may be estimated at around 90 per cent, of pre-war, in terms of calories, compared with about 80 per cent, produced in 1945-46. Preliminary estimates are:— Indigenous Production, 1946-47: Calories per Countries. Person per Day. Denmark, Sweden . . . . . . ) 4 , 9 Bnn Hungary, Yugoslavia, Romania .. \ OV€ ' Czechoslovakia, Bulgaria, Poland . . . . 2,400-2,800 France, Spain, Switzerland, Finland . . 2,000-2,200 French North Africa, Italy, Portugal . . ) 1 ~ nfl , Qt - n Netherlands, Norway, Germany . . \ ' ' 0 Greece, Austria, Belgium . . . . Below 1,600 In making these estimates, weather conditions to date have been taken into account, and reasonably satisfactory weather conditions have been assumed for the remainder of the season. Such forecasts are, of course, hazardous so early in the year, especially for areas such as the Danube Basin, where
* Sizable quantities of wheat from the new harvest should be available from July onwards, but the current emergency situation in the Far East will continue at least until the bulk of the new rice crop becomes available from November onwards or, in some areas, until wheat is harvested early in 1947. f The term " continental Europe " as used here and throughout the rest of this statement is to be understood to mean continental Europe excluding the U.S.S.R. J The term "Ear East" as used here and throughout the rest of this statement covers India, Ceylon, Siam, Burma, French Indo-China, Malaya, the Netherlands East Indies and Philippine Islands, Japan, Korea, and China (including Formosa and Manchuria). § Estimates of supplies available for shipment from exporting areas as used in this statement are obviously not firm estimates. Weather, prices, financial arrangements and in many cases foodmanagement policies relating to consumption rates and amounts of cereals fed to live-stock, will all affect the amounts which are eventuallv moved.
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-extreme fluctuations in yields occur. It should also be noted that the food •estimates are predicated on enforcement of high extraction rates and in the Danube Basin countries on a utilization of maize for food much higher than before the war, assuming that the decline in live-stock numbers has increased quantities of maize available for human consumption. Population in the countries covered is estimated at about 350,000,000 (including 20,000,000 for North Africa) as of 1 January, 1947. As a basis for comparison, pre-war consumption is estimated to have averaged about 2,500 calories a head daily in Mediterranean Europe, 2,700 in the Danube Basin and Poland, 2,850 in all the rest of continental Europe, and 2,300 in French North Africa, or about 2,750 calories for continental Europe as a whole (alcoholic beverages excluded). Should the production estimates given be realized, imports of foodstuffs •equivalent to about 16,000,000 metric tons of wheat would be required to bring the average consumption of continental Europe to about 90 per cent, and of French North Africa (where pre-war consumption was relatively low) to about 95 per cent, of the pre-war level. Or assuming that sufficient meats, fats and oils, and sugar were available to bring consumption for these commodities to about 80 per cent, of their pre-war per caput level, some 12,500,000 metric tons, or about 450,000,000 bushels of wheat (assuming at least 85 per •cent, extraction), would be required. These estimates are not statements of " requirements," but they do give some idea of the magnitude of the aggregate deficit which may be expected in continental Europe and French North Africa in Assuming the volume of imports discussed above, average consumption could -be raised to a level ranging from 2,250 calories per caput daily in the European-Mediter-ranean area to 2,550 calories or above in western Europe. With these national averages, non-farm consumption in all of the European countries could attain at least 1,900 calories or more, which would mean non-farm consumption in some countries still under the emergency subsistence level. But even assuming imports sufficient to support these average consumption rates, the urban food situation over wide areas in continental Europe will again be disastrous in the spring of 1947 unless live-stock feeding is held to a minimum and supplies are evened out not only as between different consumer classes, but also over the year—i.e., consumption rates during the first half of 1946-47 are not allowed to rise above rates which can be maintained (luring the second. (b) The Situation in the Far East "With average yields, an increase over 1945 of about 7 per cent., or 8,000,000 metric tons, in production of paddy (unhusked) rice in the Far East may be realized in 1946, but the bulk of this rice will not be harvested until November onwards, and the estimates are still some 10 per cent., or 14,000,000 metric tons, short of the pre-war level. Even under favourable conditions, supplies of new rice available for shipment from the exporting countries (Burma, Siam, and French Indo-China) are estimated at not more than 2,500,000 metric tons of paddy for 1946-47, as compared with the average of over 10,000,000 metric tons moved from these countries and Korea and Formosa in the pre-war period, 1935-39. Current reports indicate that the wheat and other grain crops now being harvested in India are short. Meanwhile, in China production of coarse grains (cereals other than rice and wheat) is also short, and there is no reason to believe that wheat yields are more than average, while acreage may well 'be under the pre-war level.
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Attempts to calculate food deficits or shortages for this broad area, which accounts for over 50 per cent, of the world's population, or some 1,150,000,000 people, are hazardous indeed. But the additional bread grain which will be needed during the twelve months commencing 1 July, after allowing for the use of accumulated stocks and imports of rice from the Americas and Egypt, is estimated at about 10,000,000 metric tons, or 375,000,000 million bushels, wheat equivalent (assuming 90 per cent, extraction). These estimates are not statements _of " requirements " or_ forecasts of effective demand, but rather are indications of the imports which would be needed to offset about one-half of the difference between indigenous grain supplies and the amounts required to bring per caput grain consumption back to the pre-war level. However, even 1 the pre-war diet over most of the Far East was too low for promoting health and working efficiency. So far as can be estimated, some 25,000,000 tons (wheat equivalent) of cereals or other staple foods would be needed to raise diets to their full pre-war level m 1947, after allowing for the estimated increases in the rice crop which will be harvested late in 1946. (c) Supplies for Export Supplies of the several foodstuffs available from the exporting countries as a whole are not likely to be any greater in 1946-47 than the amounts actually moved in 1945-46 unless effective measures are taken to reduce amounts used in these countries, either for feed or human consumption, or for both. Supplies of wheat available for export shipment from the four chief exporters are likely to be smaller, while supplies of other foodstuffs available for shipment to continental Europe or the Far East are likely to be not much different from amounts available in 1945-46. Assuming average weather, something over 18,000,000 metric tons, or about 675,000,000 bushels, of wheat should be available for shipment from the four chief exporting countries in 1946-47, although the actual amount might easily range from as little as 550,000,000 bushels (15,000,000 metric tons) to as much as 800,000,000 bushels (22,000,000 metric tons), depending upon yields, differences in domestic utilization, and the extent to which stocks are rebuilt. Some wheat may be available for export from other sources —chiefly the Danube Basin and the U.S.S.R. —but such exports are uncertain and are unlikely to exceed about 2,000,000 metric tons, or 75,000,000 bushels at best. Substantial increases in European production are in prospect, but over against this there is the question whether existing grain economies can be maintained, the increased need for supplementary grain in the Far East, and the fact that world wheat stocks are now low, stocks in the four chief exporting countries having been reduced by about one-half, or around 11,000,000 metric tons, during 1945-46. While other commodities must also be considered, especially for certain areas or consumer groups, wheat is obviously the key commodity in the international distribution of food. Altogether, some 18,000,000 to 20,000,000 metric tons of wheat may be available for shipment from the four chief exporting countries and other sources in 1946-47, whereas actual needs for imports of bread grains are conservatively estimated at about 30,000,000 metric tons (wheat equivalent) . # The eventual gap between amounts available and
* The 30,000,000 metric tons is arrived at by allowing about 12,500,000 tons for continental Europe, about 1,000,000 tons for the Far East, and not less than 8,000,000 tons for the other countries or areas—the United Kingdom and Eire, Brazil and other Latin-American countries, Africa, and the Near East.
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amounts needed will depend, of course, upon yields, upon the economies in the use of bread grains which are enforced in both the exporting and the importing countries, and upon the extent to which the coarse grains—indigenous and imported—may be used as food in 1946-47.* Current indications are that world supplies of fats and oils will be no greater in 1946-47 than in lncreases in production of supplies for .export are in prospect for some areas, and demobilization is continuing to result in some savings, but these are about offset by decreases in' other areas and by the fact that 600,000 metric tons of the fats and oils consumed in 1945 were drawn from stocks in the United Kingdom and the United States of America. However, an increase in supplies of fats and oils from the liberated areas in the Pacific and Far East should develop in 1947, although not materially so until the last half. Supplies of cane-sugar available for shipment from the producing areas are likely to be about 20 per cent., or 1,200,000 metric tons (refined basis), greater in 1946-47 than in 1945-46. Supplies of rice available for export from the Americas and Egypt will apparently run about 1,500,000 metric tons of rough rice equivalent, or somewhat greater than for 1945^6. Supplies of meat and manufactured dairy products available for shipment from the Americas, Australia, and New Zealand in 1946-47 are not likely to be any greater than in 1945-46. An estimate of the amounts of food which may be available for shipment from the exporting countries, considering supplies of fats and oils, sugar, meat, dairy products, rice, and, wheat as a total, has not been worked out. It is clear, however, that for all these foodstuffs together the difference between export supplies and amounts needed in the deficit areas will certainly be greater than the 10,000,000- to 12,000,000-ton gap indicated earlier for bread grains (as measured in terms of wheat equivalent). And it equally follows that the eventual gap will depend upon yields actually realized, upon the economies in the use of the several foodstuffs which are enforced in both the exporting and the importing countries, and upon the extent to which coarse grains are used for food in 1946-47. t (3) The Fisheries Situation With the reconversion of fishing-craft which had been appropriated for military service, the introduction of some new boats, more labour, and some increases in supplies of materials such as fishing gear and salt, it is anticipated that fish-production in 1946-47 will be substantially greater in the European area than in 1945-46.
* An additional saving, perhaps a very substantial one, might also be realized by reducing cereal wastes due to insects, mites, rodents, and mould fungi. In this connection a section of a recent report summarizing the estimates and recommendations of an expert committee on wastage is included in the supplementary series as Technical Supplement 8. f In the case of the Americas, Australia, and New Zealand, the calculations summarized in this statement are based chiefly upon an appraisal of supplies which may be available for export shipment. In the case of the United States, one of the significant factors in determining the amounts of wheat available for shipment in 1946-47 will be the amounts fed to live-stock. Supplies of meat and of dairy products (especially of dry skim and perhaps of condensed and evaporated milk) available for shipment from the United States in 1946-47 will depend chiefly upon the pricing and procurement policies followed. That is, the current consumer demand in the United States is more than sufficient to absorb all of the meat and milk now being produced, and this situation seems likely to continue through 1946-47.
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It can be expected that the average per unit catch will now be significantlyhigher than in the years immediately before the war because of enforced conservation during the war in such areasi as the North Sea and the Western Pacific. In fact, boats now operating in the North Sea have already found this to be true. Facilities of such devastated countries as Poland, Greece, Yugoslavia, and Italy still need to be rehabilitated, but it should be borne in mind that these countries have always depended on imports to a great extent to augment their own catch. Some 180,000 metric tons, or 400,000,000 lb./ of pickled herring may be available for export in 1946—47 from such countries as Norway, Iceland, the United Kingdom, Holland, Newfoundland, and Canada, and almost double this quantity could be supplied, provided the necessary financing and procurement arrangements were carried through. Supplies of salted cod and related species available for export from the 1946 catch are now estimated at about 140,000 metric tons, or something over 300,000,0001b., dry-salt basis, which is about double the supply available from the 1945 catch. Supplies of canned fish available for export are estimated at about 220,000 metric tons, or slightly under 500,000,000 lb., for 1946-47, which is not greatly different from 1945-46. Prior to the war, Japan was the largest fish-catching country in the world as well as the largest exporter of canned fish, but her fishing-fleets have been greatly depleted. The scope of Japanese fishing operations is rigidly controlled by the occupation authorities, and efforts are being made to make the Japanese at least self-sufficient. It is not expected, however, that Japan will have any supplies available for export in 1946-47. (4) Fertilizer Preliminary estimates of the amounts of chemical fertilizers which may be available for crops to be harvested in 1947 indicate that there may be fairly substantial increases for all three plant nutrients as compared with the amounts applied to crops to be harvested in 1946; but there will still be a deficiency of some 30 per cent, in the supplies of nitrogen and soluble phosphates and some 5 per cent, in the supplies of potash, judging from the requests of countries now before the Committee on Fertilizers of the Combined Food Board. Fertilizer allocations (of the Combined Food Board) for 1945-46 and estimates for 1946-47, together with the pre-war data, are summarized in the following table:—■
The and 1946-47 figures are subject to revision, especially in the case of phosphate,, for which the 1946-47 figures are based largely on the demand for and estimated production of phosphate rock. - To reach the estimated production levels for 1946-47, favourable conditions will have to be prevalent throughout the world. For instance, it has been assumed that. Germany will produce 200,000 tons and Japan 260,000 tons of nitrogen. It is doubtful if these figures will be realized. Similary, for
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— Pre-war Production. j Allocations, 1945-46. j Estimates for 1946-47. | Production. Demand. Million Metric Tons. Nitrogen (N) 2-2 1-6 2-4 3-3 Phosphoric Acid (P a O 5 ) .. . . .. 3-4 3-1 41 5*5 Potash (KgO) ... 2-4 21 3-2 3-3
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potash-production to reach 3,200,000 tons of K,O for 1946-47, Germany's output during the coming year will have to be 1,500,000 tons, a figure that may be altogether too optimistic. * Substantial increases in nitrogen output could be realized if the nitrogenproduction capacity in Germany and Japan were fully used. Some 400,000 tons to 500,000 tons more nitrogen per annum could also be produced it the full synthesizing capacity of the United States Government nitrogen plants were utilized; but, before this could be done, additional equipment and additional facilities for converting the raw ammonia to fertilizer material would have to be installed. In general the fertilizer picture indicates that supplies will be short m. every major producing area in the world, with the demands or stated requirements of the United States and Canada being more nearly met than those for any other sizable area in 1946-47. Stated United Kingdom and European demands for 1946-47 for the threeplant nutrients are substantially above pre-war levels. It is extremely doubttul that these demands can be met. One of the chief problems is the extent to which the fertilizer industry in Germany will be rehabilitated. Supplies ot basic slag, which before the war was a very important source of agricultural phosphate in Europe, are also expected to continue to be extremely short through 1946-47. In Australia, New Zealand, and the Union of South Africa it is phosphates that are chiefly required. Before the war the phosphate rock deposits, at Nauru and Ocean Islands were by far the most important sources o± phosphates for Australia and New Zealand. Owing to war damage, the output of rock from these two sources will be only a fraction of what.it was before the war. Thus these two countries are obliged to continue presenting heavy claims on other supply areas. In China, Egypt, India, Korea, and the Netherlands East Indies, nitrogen, is the great problem. With negligible indigenous production of this plant nutrient, these countries have to depend on what exporting countries can spaie them. Importation of large quantities of the three plant nutrients into Japan is considered necessary by the United States of America controlling authorities. (5) Agricultural, Rehabilitation Very large areas of the world have been greatly disturbed in their normal food-production by the exhaustion and devastation of the war. In maiiy other sections agriculture is so poorly developed or poverty so interferes with the use of satisfactory production methods that just as much eftort must be given to increasing production as in the war-devastated countries. All ot the low-producing areas must be given consideration in any organized ettort to improve food-production and nutritional standards. The liberated nations have pressed vigorously for the prompt rehabilitation of agriculture by requests. for seed, fertilizer, farm machinery, live-stock, food-processing equipment, boats and gear for fishing, and tools and equipment for forestry, and they are now pressing for advice and the services of technical personnel. At the same time, recovery of the capacity to produce depends on many factors besides the obvious ones of restoring people to their farms and supplying them with machinery, seeds, fertilizer, &c. Some favoured areas received normal supplies and encouragement during the war; others were raided repeatedly and deprived of their live-stock, machinery, seed, and fertilizers, their technical and local leadership, and evdn their farm people.
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Emergency policies of limiting production in large areas to cereals and potatoes, accompanied by the drastic restrictions and reductions in live-stock numbers and the excessive slaughter of animals in famine areas, have left agriculture in many countries seriously handicapped. The action of the United Nations in providing funds for immediate relief and for rehabilitation work has prevented untold suffering and will materially assist in the restoration of food-production. It must be recognized, however, that the need for rehabilitation is confined neither to the countries in which TJNRRA is now operating nor to the limited period during which that organization is expected to function. Continuing agricultural improvement is necessary in all war-devastated and underdeveloped countries if the world's production possibilities are to be fully realized. (6) Emergency Calorie Intake Requirements An expert Nutrition Committee recently convened by FAO has advised that an intake of 1,900 calories a head daily represents a minimum subsistence level in European countries " needed to prevent the most serious undernutrition and the danger of civil unrest." This conclusion is based on both nutritional principles and recent experience. This intake level is equivalent to about 2,000 calories at the retail stage, but owing to inequalities in food distribution —for example, differences in consumption in rural and urban areas —the calorie intake of some sections of the population is likely to fall below the danger point if the national average supply of calories per caput is less than 2,200 at the retail level. Every effort must therefore be made, on nutritional grounds, to provide sufficient food imports to raise the national average number of calories available per caput to 2,200 in countries whose indigenous food supplies are inadequate for this purpose. The nutrition experts have also advised that calorie intake per caput for subsistence may be somewhat lower than 1,900 calories a day in Eastern and tropical countries generally. This conclusion is based on the smaller average size of the people in these countries, differences in age distribution and in climate, and various other circumstances. The subsistence level of calorie intake suggested is 1,500 to 1,600 a head daily. With comparatively good distribution, the national average figure which must be reached, to prevent sections of the population falling below the subsistence point would be about 1,900 calories at the retail stage. If total food-supplies are to be sufficient to maintain the national average figure at this level, substantial food imports must move into a number of the smaller countries or areas in the Far East. Disparities in consumption in India and China are great because of their large area, differences in regional dietary habits, transport difficulties, &c.; hence, even though daily calories available per caput at the retail level were in the neighbourhood of 1,900 or above, these countries would probably still need considerable help in order to satisfy the urgent needs of various areas. The populations of India and China together amount to perhaps 850,000,000 people. A temporary maintenance level of calorie intake of 2,200 a head daily in European countries has been put forward by the Nutrition Committee. Here again allowance must be made for " spread," and unless the national average at the retail stage is at least 300 calories above this, the intake of considerable sections of the population is likely to be below 2,200. At this level of consumption, consideration should be given to the question of increasing protein intake. While " temporary maintenance " consumption is far from satisfactory, it will, in comparison with " emergency subsistence " consumption, allow for better growth of children, improvement in general health, and an increased
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output of work. The corresponding level of consumption in Eastern and tropical countries may be somewhat reduced for the reasons stated in the preceding paragraph. The Nutrition Committee was strongly of the opinion that consideration should be given to the nutrition requirements of countries in allocating foodsupplies, and it hasi suggested methods which will facilitate the application of nutritional principles in deciding allocation policies. A technical report embodying all the conclusions of the Committee will be available at the meeting. APPENDIX lI.—REPORT OF COMMITTEE II: CONSERVATION AND EXPANSION OF SUPPLIES Introduction 1. The Committee has divided its work as follows: (a) A review of the 1946-47 position, with recommendations for utilizing the 1946 harvest supplies in such a way as to- avoid repetition during 1947 of the shortages and famine which occurred in 1946. (b) Consideration of the measures which can be adopted to make the 1947 harvest as large as possible and thereby increase the food-supplies available during the year 1947-48. (c) Preparation of proposals regarding the principles which may be adopted in the procurement, collection, allocation, and distribution of foodstuffs in short supply. 2. So far as the 1946-47 position is concerned, it is recognized that no further efforts on the part of producers can increase the 1946 harvest in the Northern Hemisphere with respect to acreage or the growth of crops. The utmost that can be done is to ensure that the harvest is utilized to the maximum extent in the provision of food for human beings. The " Appraisal of the World Food Situation, indicated that during that year there will be a gap of not less than 10,000,000 tons of food, in terms of wheat equivalent, between supplies and requirements. It is to be observed that crops will not be harvested in the Southern Hemiphere and in the East until the beginning of 1947, so that it is difficult to estimate their size at the present time. The gap can be closed only if economies in the consumption of grains are enforced throughout the whole of the crop year. Nothing could be more disastrous than for countries to assume that, once the 1946 harvest has been gathered, there is no longer any necessity for further economy, and the grain from the 1946 harvest can be used without restriction for consumption by human beings and animals. 3. Economies can be effected by such measures as increasing the extraction rate for flour, the dilution of wheat or flour by other grains and by potatoes, the rationing of bread, the control of the domestic distribution of flour, and various other measures. It is clear, however, that such expedients will not fill a gap of the order of 10,000,000 tons. 4. Of all the measures which can contribute toward this end, the most important is the further curtailment of the use of wheat and other grains for the feeding of animals. 5. The Committee has also examined the position in regard to other foodstuffs (particularly rice, potatoes, pulses, fats, sugar, fish, and dairy products) and makes recommendations regarding the production and utilization of these foodstuffs. 6. So far as the 1947 harvest is concerned, the Committee submits a. number of detailed proposals for increasing the supplies of food products. Fertilizers, seeds, and equipment are all urgently needed. Producers need
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-reassurance that the special efforts they may make- now to increase output will not be to their detriment in years to come when the possibility of surpluses may become a real danger. 7. Recommendations on all these matters are included m this report. 8. A separate section of the Committee's report deals with the principles and policy to be adopted by individual countries and by the International Emergency Food Council (which we understand is being proposed by Committee III) 'in regard to the production, collection, procurement, allocation, and distribution of foodstuffs. This Committee has not concerned itself with the machinery to be established for carrying out such principles and policy. But the principles and policy to be adopted by the International Emergency Food Council (lEFC) bear directly upon the other measures suggested by the Committee for securing the maximum utilization of the 1946-47 crop and the greatest possible output from the 1947 crop. 9. If the measures recommended in this report are adopted forthwith and applied consistently throughout 1946-47, a repetition of the hardship and privation of 1945-46 can be greatly alleviated and the first, steps taken toward the achievement of an improvement in the levels of consumption and nutrition in the less fortunate countries of the world. Part I. —1946-47 Consumption Year (1) Flour Extraction Rates' The Committee recommends—(a) That for the food consumption year 1946-47 extraction rates for wheat and rye should be not less than 85 per cent, in all countries. (&•) That in 'cases where, for special reasons, certain countries will find it impracticable to introduce an extraction rate as high as 85 per cent, the Governments concerned should report the relevant circumstances to the lEFC and indicate what other measures are being taken, as an alternative to raising the extraction rate, in order to achieve comparable economies in the use of food grains. (2) Rice-milling The Committee recommends — That in the consumption year 1946-47 all rice should, be milled as lightly as possible, in order to make maximum quantities available for human consumption. (3) Industrial Uses of Grains' The Committee recommends — (a) That during the consumption year 1946-47 the use of grains for beverages and other non-essential purposes be kept at the existing low levels, and where possible should be still further reduced; and (&) The countries should report to the lEFC what reduction m the use of cereals for this purpose they proposed to introduce for 1946-47, indicating the quantity of grain which will be saved by these means, and stating the quantities used for the same purpose in 1946-47 and in an earlier year when no restrictions on the use of grains for these purposes were in operation. (4) Regulation and Restriction of the Human Use of Grain The Committee recommends — That all countries should maintain or adopt measures enabling them to exercise an effective control over the importation, procurement, collection, distribution, and consumption of grain and grain products so that in the
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event of its being necessary to curtail the usage of wheat and other grains at short notice the necessary machinery will be in existence and any reduction in consumption can be made immediately. In this connection countries should consider the advantages of bread rationing, the curtailment of flour issues at source, and other measures so that they can adopt methods of control specially suited to their own circumstances. (5) The Addition of Supplements to Wheat Flour The Committee recommends — (а) That wheat flour used in various forms for human consumption should l)e supplemented, to the extent of not less than 5 per cent., by other grain products, potato flour, fresh cooked potatoes, &c.; and (б) That, should any country find it impracticable to add supplements to the extent proposed, the Governments concerned should explain the relevant circumstances to the lEFC. (6) Live-stock Feeding The Committee recognizes—(■a) That so long as the present world shortage of grain continues it is essential that grain should be used in ways which supply the greatest proportionate energy value in the diet, and that this involves (i) the maximum possible diversion of grain from live-stock to direct human consumption; (ii) the maximum use for animals of pasture and fodder other than grains suitable for human consumption; (iii) in so far as grain is made available for animals, priority in supply for those animals which use grain to the best advantage; (iv) the avoidance of waste caused by inefficient feeding,, particularly by underfeeding and overfeeding; and (&) That when the shortage has been overcome the next step will be to secure the production of a greater variety of foodstuffs and more balanced farming and that short-term objects must be secured with the least possible prejudice to long-term policy and general economic rehabilitation, and that as soon as feed grains are again made available the allocation authority should give special attention to countries in which herds and stocks have been greatly depleted by wax. The Committee accordingly—(a) Recommends that each country should take such measures as in its particular circumstances are best fitted to secure that during the crop year 1946-47 (i) bread grain is not fed to live-stock except where, owing to the special circumstances of a particular country, no food would be gained by enforcing such a prohibition; (ii) the maximum use is made of pasture, hav r straw, and other bulky fodder and waste products; (iii) dairy cows producing milk wholly for general human consumption, and draught animals, receive priority in any necessary feeding of coarse grains; (iv) second priority should be given to the maintenance of a nucleus of high-quality breeding-stock of all kinds; (v) the feeding of grain to other stock, especially pigs and poultry, be reduced to the minimum; (vi) adequate publicity be employed to encourage the adoption by producers of the policies referred to above; (&) Recommends that special attention be given to securing that the 1946 harvest is not dissipated, in the early months after it has been reaped, by live-stock feeding, contrary to the recommendations in (a) above;
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(c) Considers that these objects can best be secured by price policy, bycontrol (and, where practicable, rationing) of concentrate feed, by salvaging and distribution of unavoidable waste suitable for stock-feeding, and by information services and publicity methods; (d) Recommends that price policy should aim at encouraging (i) the :sale of crops and milk for direct human consumption as against live-stock products other than milk; (ii) the feeding of meat-producing animals to produce the maximum quantity of meat in relation to the amount of grain fed, without undue regard to quality; and (iii) the slaughter of stock which cannot be economically fed; (e) Considers that if concentrate feed rationing and the international allocation of feed grains for food are to be effective they must be combined with control of the retention and disposal of the rationed and allocated commodities, whether imported or home produced; (/) Recommends that each country should, encourage by publicity the salvage of unavoidable waste products such as swill and should institute or maintain a system of collection and sterilization of such products and their •distribution to live-stock producers; (g) Recommends that each country should encourage the production of feed crops on land not suited to bread grains or other essential food crops; (h) Recommends that each country should, at such times and in such forms as may be requested by lEFC, supply to it information in regard to the feeding of grain to live-stock and the extent to which and the methods by which such country is carrying out the above recommendations, or information as to why a particular recommendation is inapplicable to its case, and finally should report to lEFC as early as possible what additional quantity of grain it can arrange to make available for human consumption in 1946-47 as a result of implementing the recommendations listed above; and (i) Recommends that FAO assemble and make- available to member ■Governments technical information in its possession in regard to possible economies in the feeding of live-stock. (7) Wastage "The Committee recommends — That all countries should immediately undertake special campaigns, adjusted to the particular situation in each country and making use of all .available administrative and education resources, to reduce waste of food in all forms, including—{a) Waste on farms; (b) Waste due to infestation of stored food by rats, mice, insects, and mites, and mould fungi; and (c) Waste by consumers in homes, institutions, and public eating places. The Committee notes with satisfaction that FAO is already undertaking a study of the problems of food wastages. It emphasizes strongly the importance of making sufficient supplies of fumigants and pesticides available. (8) Stocks The Committee recommends — (a) That Governments reduce their current stocks and, in the case of crop products, their carry-over stocks of all foods to the minimum necessary to maintain regular distribution; and (&) That Governments refrain from any replenishment of stocks during 1946-47 above that minimum level.
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(9) Acquisition and Handling Programmes Large additional quantities of food, especially grain, will have to be mobilized in 1946-47 to closq the gap between supplies and needs. _ It will be extremely difficult to obtain such supplies if action is deferred till later in the consumption year, and there will be danger of distortion of prices unlessi such large supply programmes are carefully co-ordinated. The movement of large additional quantities of grain will create serious problems in transportation to seaboard and in shipping. There are important advantages in storing foodstuffs as near as possible to the points of consumption, provided such stocks can be husbanded by responsible authorities. The Committee recommends — (a) That the IBFC immediately determine how large a quantity of grain will be required to meet the gap, over and above assumed exports. (b) That the lEFC consult with the Governments concerned to secure that the necessary additional quantities of grain are acquired by appropriate agencies immediately after harvest. (c) That steps be taken by Governments, severally or in co-operation, to ensure that prices of these or related products are not upset by these emergency measures. (d) That Governments, when necessary, take special steps to transport to points of shipment or consumption sufficient quantities of food to cover the winter period of interrupted, transportation. (e) That, if necessary, Governments should consider as an emergency measure to ensure the movement of this food the utilization of shipping that might otherwise be out of commission. (/) That the lEFC should immediately ascertain what quantities of what foods could usefully be stored in deficit countries early in the consumption year, and what countries will need to be supplied more regularly through the season. (10) Potatoes The Committee has been reminded of the important role of potatoes in the diets of many peoples, Although no further action can be taken at this stage to increase the 1946 harvest, nevertheless important steps can be taken to make a larger quantity of this foodstuff available for human use. The Committee therefore recommends — (а) That Governments should give consideration to acquiring the crop and to the control of harvesting, distribution, and consumption; (б) That Governments discourage the harvesting of main-crop potatoes before they are fully matured, except in countries producing two or more potato crops annually; (c) That the use of edible potatoes for alcohol and other industrial purposes be drastically curtailed and, where possible, prohibited (where potatoes are still used for these purposes, full information should be supplied to the lEFC); (d) That potatoes be fed to live-stock only in cases where it is impossible to make them available for human consumption; (e) That, where necessary, Governments make special arrangements to provide transportation of potatoes to urban centres before the end of the year in quantities sufficient to last through the cold period;
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(/) That any necessary additions to storage facilities for the above programme be put in hand immediately; and (g) That countries which have surplus potatoes that cannot readily be exported be encouraged to mix potatoes in bread and so free grain for export. (11) Peanuts and Pulses The Committee notes that large quantities of the above products (before or after the extraction of oil) are currently fed to live-stock. It is informed that the residues of peanuts and soy-beans after extraction of oil can be •effectively used in bread and other food products, and it believes it desirable that such uses should be widely encouraged. The Committee therefore recommends — (a) That peas, beans, and other pulses be, as far as possible, diverted from live-stock to human consumption; (b) That soy-bean or peanut-cake, after the extraction of the oil, be -converted on as large a scale as possible to flour or grits for human use; and (c) That Governments encourage the use of these products in the making of bread and other commonly used foodstuffs. (12) Fats' The Committee is aware of the grave shortage of fats of both vegetable .and animal origin in prospect for 1946-47. It believes that supplies for human consumption can be augmented by diverting certain quantities from industrial uses and by improving technical processes with the object of .extracting increased quantities of oil from oil-seeds and nuts. The Committee therefore recommends— That Governments make arrangements to divert as much oil and fat as is feasible from the production of toilet soap, paint, varnish, and other non-food products to the production of foodstuffs and that they report to the lEFC on the economies thus programmed. (13) Sugar The Committee, having regard to the world shortage of sugar in prospect for 1946-47 and probably for longer, recommends — (a) That, so far as is consistent with the internal economy and social conditions of the countries concerned, Governments keep at existing low-levels, And, where possible, further reduce, the use of sugar, sugar-cane juice, or sugar-beet for the production of alcohol and for non-essential industrial uses, and that if in any case this be impracticable it shall be so reported to the lEFC; and (b) That ways be developed of using molasses on a wider scale as human food. (14) Fish The Committee has heard statements concerning some unsold supplies of iish and fish products, mainly in certain European countries. It understands that these are largely the result of inadequate transportation facilities on the European continent. It has heard also that more herring could be caught and & larger proportion of herring catches diverted. from industrial use to human use if secure markets could be found. It has been informed that the EECE has a special Committee studying these problems.
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Efforts to increase supplies in the coming season and to the rehabilitation of fishing-fleets,inevitably raise wider Problems of the longerterm prospects of the fishing industry. This is a world-wide problem and one on which many Governments would appreciate some guidance. "The Committee therefore recommends — (a) That the EECE be asked to continue its work concerning fisheries throughout 1946-47; and ? (b) That FAO be asked to undertake a study of the longer-term fisheries problems, including impediments to international trade m fish and Products, the dangers of overfishing, and the possibilities of overinvestment .fishing-fleets and fish-processing facilities. (15) Dairy Products The Committee realizes that during 1946-47 there can be little increase in the total supplies of milk if the Committee's recommendations regarding feedstuffs are implemented. It may, however, be possible to augment supplies by reducing the amount of whole milk fed to calves and by diverting othe milk products from animal to human consumption. This relates particular y to dried skim-milk and skim-milk cheese. The Committee recommends — (a) That dairy cows should have prior claims on any available supplies ■of feedingstuffs and that emphasis should be placed on the production ol milk for sale for general human consumption; (b) That Governments develop programmes to obtain a substantial diversion of skim-milk from animal feeding to human consumption in various forms; and (c) That FAO should make a study of the question of increasing the production of skim-milk products, and the marketing problems involved, m both their short- and long-term aspects. (16) Food and Agricultural Policy The Committee, having noted with appreciation the measures which have already been taken by the various governments to husband the available supplies of scarce foodstuffs, recommends — That no material relaxation should be made in these economy measures, and that during the emergency period, where necessary, the Governments concerned should seek the necessary constitutional or legislative authority for maintaining them. Part 11.—1947-48 Consumption Year (1) Acreage of Food Crops The Committee has noted with satisfaction the measures which have recently been introduced bv various countries for increasing the production of bread grains during 1947. Such measures comprise directions to farmers, guaranteed prices, and revision of price differentials to encourage wheatproduction. The Committee urges that all countries should consider whether by similar measures further increases in the production of bread grains can foe achieved, taking into account special circumstances.
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Countries should further consider which crop under their own particular circumstances (whether grain, sugar-beet, pulses, oil-seeds, or potatoes) will produce the maximum amount of food per acre for general distribution to> consumers and endeavour to adjust their agricultural policies accordingly. In returns to be made to FAO, full information regarding proposed production programmes should be supplied as soon as possible. (2) Rice Rice is a food of the utmost importance, since it is the staple cereal of' Far Eastern countries, whose populations constitute more than half of the world's total population. The decline in production which the war has; brought about in certain countries emphasizes the need to stimulate increase' in production, both in importing countries such as India and China, which produce large quantities of rice for their own consumption, and in theexporting countries. Among the methods of achieving this in the latter is the provision of simple necessities of life which are beyond the cultivator'sability to produce for himself, including cotton textiles and thread, edible oils and fats, medicines, fishing nets and hooks, &c. Such consumer goods, provide an incentive to the cultivator to increase production, and if they are not available money will by itself be no inducement. Agricultural implements,, barges for transport, pumping units, and spare parts for milling machinery are also urgently required to increase production and facilitate distribution.. The Committee recommends — That in order to increase world supplies of rice every effort should be made to supply these needs in rice-producing countries whose overall contribution to world food production can be so great. (3) Agricultural Supplies Recognizing that the mere extention of acreage will not secure maximum production unless special steps are taken to provide producers with auxiliary materials to ensure the greatest yield per acre, the Committee recommends—(ffi) That the farm-machinery industries should be asked for their fullest co-operation in securing the largest possible number of sowing, cultivation,, and harvest machines and, the tools and spare parts for these machines; (&) That, having regard to the importance of tractors, all countries, which have production facilities should be urged to increase their production during the next twelve months and tcT make available for export as . large a number as possible; (c) That the chemical industries should be asked for their utmost help in supplying the maximum quantities of pesticides, including new types'of pesticides recently invented, so that the losses of crops through pests and insects can be kept at a minimum; (d) That every effort should be made to increase the production, to speed up the distribution, and to economize the use of fertilizers, with special attention to arrangements for the maintenance and development of nitrogen plants for the period of the emergency; (e) That priorities should be given to the transportation of fertilizers so that they reach the farms in the appropriate time for dressing and sowing;, and (/) That fertilizers should be used for the production of essential foodstuffs before they are devoted to the production of other crops. Countriesshould report to the International Emergency Food Council as to their fertilizer control and distribution policies and the crops on which fertilizersare being used.
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(4) Seeds Considering the importance of ensuring that shortage of suitable seeds should not limit the planting programmes of any country, the Committee urges all Governments, both importers and exporters of seeds, to co-operate in providing adequate quantities of suitable seed at the necessary dates. To ensure that supplies are available, importing countries must notify their requirements as early as possible. The Committee further urges lEFC to inquire from Governments the extent to which grain-seed stocks have been consumed as food in the present emergency and to consult with Governments on ways of immediately replacing such stocks, if necessary, on a loan or exchange basis, It further recommends that priorities should be given to the transportation of seeds so that they reach farmers in time for seeding and planting. (5) Fats The Committee has reviewed the sources of supply of fats, whether of vegetable, animal, or marine origin. It assumes that the of feedingstuffs will inevitably result in a shortage of animal fats continuing through 1947_48. It notes the heavy fall in export supplies of vegetable fats, particularly from Far Eastern sources. It has been informed also of the disappointing results of the recent whaling season and of the shortage of factory ships. In order to secure all possible action of increased fat-supplies for 1947-48, the Committee recommends — (a) That attention of the appropriate authorities in Far Eastern territories should be called to the need for great efforts to expand the exportable supplies of fats and, oils, and in this connection to the need for rapidly improving transportation facilities and for providing a larger volume of consumer goods; ... (ft) That the authorities responsible for oil-seed-producing territories m Africa should give urgent attention to increasing the flow of consumer goods, especially cotton textiles, in order to stimulate a greater output of oil-seeds; (c) That countries having supplies of cotton-seed should develop programmes for using a larger proportion of the supply for the extraction of oil; and (d) That, in order to increase supplies of marine oils during the period of the emergency, the Governments signatory to the International Whaling Agreement should (i) ensure a rapid increase in the number of factory ships and other equipment; (ii) seriously consider modifying the _said Agreement in ways which will facilitate more abundant catches; and (iii) co-operate in the provision of technical personnel and equipment in order to obtain the maximum increase in all waters where whaling is permitted. (6) Dairy Products,. Meat, and Eggs The Committee realizes that the shortage of feed-supplies will make it especially important for live-stock policies to be carefully conceived. It will not be possible to meet the world's demand for live-stock products in 1947-48. The Committee therefore recommends — (a) That dairy cattle producing milk used for general human consumption should have first priority in the allocation of available feed-supply, owing to the nutritional importance of milk; and (,&) That the remaining supplies of feed should be so distributed as to secure the maximum output of live-stock products, taking into account needs of economic rehabilitation and the geographic and other circumstances of each country.
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(7) Fear of Surpluses The Committee has noted the suggestion that the fear of surpluses might hamper the full co-operation of food producers in production programmes for 1947. Although at the moment farm - prices are, generally speaking, remunerative and although a number of Governments have price-support programmes in operation, nevertheless food-producers in many countries fear that satisfactory prices may not continue beyond the period of shortage. The Committee attaches importance to creating a feeling of confidence in regard to price stability. It believes that ultimately the problem of surpluses can only be resolved within the framework of an expanding world economy, including full employment and maximum industrial production at home, expansion in international trade, the stabilization of currencies, and the resumption of international lending. Nevertheless, national guarantees of price stability need to be supplemented by international measures to serve the same end. The Committee therefore recommends — {a) That FAO be asked as a matter of urgency to study the problems of agricultural surpluses and tha means which might be employed to dispose of them, bearing in mind the principles enunciated at the Hot Springs Conference and consulting such other United Nations agencies as may be concerned and (b) That, in order to allay as far as possible the fears of producers respecting future surpluses, FAO be asked to report its findings to the next session of its Conference. (8) Incentives' amd Price Policy" The Committee appreciates that in the present emergency very great demands are being made upon producers, both to increase production and tochange in some cases the pattern of production in order to meet the special needs of this period. It is confident that producers will continue to respond to all appeals as generously as they have done hitherto. It; believes, however,, that producers have a right to expect fair treatment not only at present, but also in the future. It has already made a recommendation which should give confidence to producers that the problems of eventual surpluses are under active consideration. To those assurances it wishes to add further assurances concerning the returns received by agricultural producers in all parts of the world. It affirms the principle that agricultural producers and, workers are entitled to a fair return for their labour. It urges Governments which have not yet done so to take steps to assure agricultural producers and workers a satisfactory standard of living. But the problem is also an international one. The Committee therefore recommends — That FAO study the international aspects of the problems of securing reasonable and stable returns to agriculture in ways consistent with technological developments and a flexible world economy and that FAO report itsfindings at as early a date as possible to its member Governments. Part lll.—Principles of Collection, Procurement, Allocation, and Distribution op Foods in Short Supply (1) The Committee recognizes that it is not concerned with intergovernmental machinery for procuring and allocating foods in short supply. This falls within the terms of reference of Committee 111. The Committee has, however, considered the principles which should be adopted by whatever body is established for this purpose.
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(2) There are two aspects of procurement, the national and the international. With regard to the former, the Committee recommends that wartime controls should be re-established or maintained as long as shortages continue so that maximum quantities of home-produced and imported grains, and other foods in short supply, should be available for distribution in accordance with Government policy. The Committee is informed that wartime food controls are being maintained! or even re-established in a number of countries. (3) With regard to international procurement, the Committee urges that a system should be developed whereby the disorderly competitive buying by countries of foods in short supply is eliminated and procurement undertaken in a co-ordinated manner to provide fair participation to all claimant countries. This need not necessarily call for the establishment of international trading boards or corporations authorized to purchase surplus stocks, or to obtain supplies for relief or other special purposes. Co-ordinated buying might be continued along the lines which are at present being followed, whereby one organization or one Government acts as purchaser on behalf of other countries, within the framework of the national allocating body. The supplies purchased should be allbcated in accordance with the recommendations of that body and the allocation principles referred to later. (4) The attention of the Committee was drawn to the suggestion that present methods of procurement for export are not fully satisfactory. It recommends that the allocating body should be notified of (a) the total exportable supplies of any given country, and (5) supplies available for allocation. It is the responsibility of countries to see that the latter are made available to the purchasing authority. Should a producing country declare that a particular quantity of any given food represents its exportable surplus for allocation, it is desirable that the declaration be accompanied by information as to how this surplus has been determined. In particular, the country should state what quantities are being retained for home use and the general purpose to which these quantities are being devoted. (5) In implementing the procurement and shipment of allocated foodstuffs, supplying Governments or procurement agents shall to the greatest practicable extent frame their programme in such a way as to assure equity between claimant countries and, in the event of there being a shortfall, endeavour to distribute it proportionately among the several claimants. Further, supplying Governments or procurement agents shall report to the lEFC at frequent intervals on progress in shipments against the allocations of all claimants, and where any particular country has received a disproportionately low share, readjustment should be made in a subsequent period. (6) With regard to the internal collection and procurement of food, the Committee notes that in a number of countries the Boards which have been established to collect the food produced are to be maintained in operation. Reference was made to the procedures in vogue in certain countries by which national bodies undertake the purchase of the entire quantities of certain foods marketed by individual producers. As long as shortages continue, such arrangements should be maintained, and other countries should consider the desirability of adopting similar arrangements so that the maximum quantity of supplies may be directed into the most useful channels and made available for international allocation. (7) It has been stated that food distribution is not adequately controlled in certain important importing countries. Strict controls should be maintained to ensure that where grain is supplied to a claimant country for human consumption it is not diverted for use as feed for animals, and also to ensure that
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home-produced food grains are not used for this purpose. There are, of course, many other aspects of internal food distribution which are of the greatest importance and to which most careful attention must be given by the countries concerned. (8) Whatever allocating body is established, the Committee recommends that it should follow certain general principles in recommending particular allocations. The Committee does not, however, consider that a rigid formula for allocation would be appropriate, since it is important that flexibility should be maintained and allocations adjusted in accordance with the varying circumstances of supply and requirements. The Committee recommends, however, that the allocating body should be guided, inter alia, by the following:— (a) The comparative needs of different countries from the nutritional standpoint; (&) The levels of pre-war consumption in the different claimant countries; (c) The need to maintain emergency subsistence levels of consumption in importing countries; (d) The extent and duration of undernutrition, whether due to circumstances produced by the war, such as occupation or devastation, the effects of drought, or other causes leading to food shortages; {&) The extent to which the Governments of importing countries are effectively carrying out policies to secure maximum food-production, and the efficient procurement and utilization of available supplies for consumption by human beings; (/) An attempt should be made to co-ordinate the allocation of supplies of the different foods, and, the latter should not be considered individually and in isolation; (g) While account should be taken of the desirability of maintaining or re-establishing normal trade between different countries, considerations of urgent need should be paramount—it is more important to provide food for starving people than to maintain or re-establish trade relations between different countries; (h) Financial difficulties should not be allowed to hamper arrangements for providing food to countries in the most urgent need; (i) In connection with the allocation of fertilizers, food, and machinery, due weight should be given to the return contribution which countries can make to supplies for allocation of foods of which there is a world shortage; (j) The quantities of food available in each country, which should be reported to the lEFC together with information as to the basis on which the figures have been calculated ; and (k) Account should be taken of the facilities possessed by countries for processing certain foods. (8) The objective of the new intergovernmental allocating body should be to develop a sense of corporate responsibility between the different countries in respect of the needs of other countries as well as their own. Member countries of the allocating body should accept the full responsibility of implementing the recommendations to which they have agreed. APPENDIX lII.—REPORT OF COMMITTEE 111 Future Machinery Committee 111 considered the existing temporary machinery in the field, of food and agriculture with a view to making recommendations on any extension, modification, and co-ordination needed. In particular, the Committee directed its attention mainly to the emergency machinery for allocation
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of foodstuffs in short supply, and agreed to recommend the establishment of an International Emergency Food Council to replace the Combined Food Board. The Committee agreed that the future of UNRRA was a matter for the Council of that body to decide, but recognized the importance to FAO of certain aspects of UNRRA's work, and recommended that close collaboration be maintained by those two organizations. The Committee recognized the need for providing for longer-term machinery, but decided that it was beyond the competence of the special meeting on urgent food problems to consider in detail any plan for such an organization. The Committee took note of the fact that the Director-General of FAO is examining the need for establishment of a longer-term organization, and requests him to present his findings both to the next Conference of FAO and to the United Nations. I. Recommendation on UNRRA The Committee agreed that the question of the future of UNRRA, established as a temporary organization, was a matter for the UNRRA Council to determine, but recognized that there may still be need for carrying on certain of its functions after its termination. While it will be for the General Assembly of the United Nations to recommend whether any of the specialized agencies shall assume responsibility for these, the Committee wishes to call attention to the interest of FAO in agricultural rehabilitation, and therefore recommends — That FAO and UNRRA should maintain close co-operation and co-ordinate their work in agricultural rehabilitation in order to effect a smooth transition from the short-term programme to the long-term objectives of FAO. 11. Recommendations fob the Formation of an International Emergency Food Council The Committee is convinced that the present food emergency will continue for some considerable time and that adjustments are required to the existing international machinery for dealing with foodstuffs in short supply. The Committee has had before it proposals presented by the three member Governments of the Combined Food Board—i.e., the United States, the United Kingdom, and Canada. It has discussed these proposals and suggestions made by other Governments and international organizations, and recommends to all the Governments concerned — That there be established an International Emergency Food Council, which shall be constituted as follows:■— (1) Functions and Duration The functions of the Council shall be:— (a) To consider, investigate, inquire into, and formulate plans with regard, to any question in respect of which the member Governments have, or may have, a common concern relating to the supply and distribution, in or to any part of the world, of foods, agricultural materials from which foods are derived, and equipment and non-food materials ancillary to the production of such foods and agricultural materials, and to make recommendations to the member Governments in respect of any such question. In particular, as regards recommendations for the international distribution of food, feedingstuffs, and fertilizers in short supply, it shall be the, object of the Council to put forward recommendations with respect to which international differences have been reconciled to the maximum degree possible.
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(&) To work in collaboration with others of the United Nations (and with other international bodies) toward the best utilization of their food resources, and, in collaboration with the interested nation or nations, to formulate plans and recommendations for the most effective use of their food resources during the present emergency. The Council shall be entitled to receive any information available to members of the Council relating to any matter with regard to which the Council is competent to make recommendations to these Governments, and, in principle, the entire food resources of the member Governments will be deemed to be matters about which the fullest information will be interchanged. The Council shall continue for the duration of the shortage of basic foodstuffs. Its life shall in the first instance extend until 31 December, 1947, subject to consideration before that date as to whether, as a result either of an easing of the supply situation or of United Nations organizational developments in the field of food and agriculture, the work of the Council can be terminated before 31 December, 1947. (2) Membership Membership in the International Emergency Food Council shall be open to the representative of any Government during such time as it is represented on any commodity Committee of the Council (see "5. Commodity Committees "). - (3) Central Committee To ensure the efficient operation of the Council, a Central Committee shall be estabished with the following functions : (®) To consider issues of principle raised in commodity Committees. (b) To assist in case of needS in the reconciliation of international differences which may arise in the commodity Committees. (c) To co-ordinate the operations of the commodity Committees and, in so far as possible, to secure uniformity of procedure. (d) To be responsible in the interval between sessions of the Council for carrying out the functions of the Council and in particular transmitting agreed recommendations from the commodity Committees to the Governments concerned. (4) Membership of the Central Committee The number of members of the Central Committee, the method of their election, and terms of office shall be determined by the Council. The membership shall include the present members of the Combined Food Board. (5) Commodity Committees The Council shall establish commodity Committees which shall have initial responsibility for preparing agreed recommendations regarding the procurement, international distribution, and short-term adjustments in the production of the commodities dealt with by them. These Committees shall have under continuing consideration the extent to which recommendations regarding these matters which have been accepted by Governments are being effectively carried out by those responsible. In the first instance the commodity Committees shall be those at present existing within the Combined Food Board. They shall initially have the same membership, but it shall be the policy of the Council to ensure that the
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membership of each commodity Committee includes representatives of those countries which have an important, interest in the international trade of the commodity in question. The commodity Committees shall consider and periodically report to the Central Committee whether, in their view, the conditions of supply _ and demand of the commodity in question make it desirable to terminate individual •commodity Committees. (6) Relation between ths Council and FAO In order to co-ordinate the activities of FAO and the Council, the two •organizations shall maintain the closest co-operation. FAO shall be entitled to send representatives to participate in all meetings -of the Council and its Central and commodity Committees. The Council shall invite FAO to provide through its Research and Information Service for the collection and preparation of data on the world position of the basic foodstuffs, feedstuffs, essential seeds, agricultural chemicals used in agriculture, :and fertilizers, including the basic minimum requirements of different -countries during the present emergency and their total nutritional position. (7) Relation between the Council and JJNRRA UNKRA shall be closely associated with the Council and shall be entitled to send representatives to participate in all meetings of the Council and its Central and commodity Committees. (8) Secretariat The Council shall appoint a Secretary-General to be nominated by FAO and an international secretariat to work under his direction and responsible solely to the Council. The Central Committee shall make arrangements for securing the personnel to staff the secretariat on a full-time loan basis, in so far as possible from FAO. (9) Procedures The Council shall adopt its own rules of procedure. It shall meet as required in accordance with those rules. It may set up any committees required for the performance of its functions. Periodic reports will be published regarding the activities of the Council and its commodity Committees. (10) Responsibilities of Members In accepting membership in the Council and its Committees, Governments shall make it clear that they accept the responsibilities which membership entails. These responsibilities shall include—(«i) The assurance of full co-operation in the purposes of the Council. (b) The prompt provision of full information regarding the availability and utilization of supplies and the relevant conditions governing their disposal and utilization. (c) An undertaking that each member country will put itself in a position to implement all recommendations which it has accepted, seeking special national action when necessary. The Committee further recommends that the Governments of the United States, the United Kingdom, and Canada arrange without delay for a meeting of the Combined Food Board, to which shall be invited representatives of the Governments eligible to membership in the proposed International Emergency Food Council, in order that this Council may be organized.
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111. Recommendations on Longer-term Machinery The Committee, convinced that present emergency action in the field of food and agriculture should be carried on further by providing at an early date for longer-term machinery to deal with certain practical international problems connected therewith, requests the Director-General of FAO—(1) To submit to the next Conference of FAO a survey of existing and proposed, intergovernmental organizations designed to meet long-term problems concerned with the production, distribution, and consumption of food and agricultural products, including the risk of accumulating surpluses. (2) To make proposals to the Conference on any extension of the functions of existing organizations or on any new organizations which the survey may indicate asu necessary. (3) In preparing such proposals to bear in mind—(a) The necessity of securing the widest possible co-operation between nations and between the intergovernmental agencies concerned with increasing the production and consumption of food and agricultural products. (b) The need for effective measures to prevent a recurrence of shortages or the accumulation of surpluses of food and agricultural products and for dealing with such shortages or surpluses should they develop. (c) The proposals made by the representatives of Governments and organizations during the course of the special meeting. (4) In carrying out the above request, to maintain close contact with the other' intergovernmental organizations concerned, and especially the Economic and Social Council of the United Nations. The Committee recommends — That any conclusions of the Conference of FAO concerning the extension of the functions of existing organizations or the establishment of new organizations should be referred to the United Nations in order that guidance may be obtained on the proper relations which should be established and maintained between the various existing or proposed bodies in this field.
Approximate Cost of Paper.—Preparation, not given; printing (1,040 copies), £45.
By Authority: E. V. Paul, Government Printer, Wellington. —1946.
Price is.]
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Bibliographic details
THE FOOD AND AGRICULTURE ORGANIZATION REPORT OF THE NEW ZEALAND REPRESENTATIVE ON THE SPECIAL MEETING ON URGENT FOOD PROBLEMS, HELD AT WASHINGTON, 20-27 MAY, 1946, Appendix to the Journals of the House of Representatives, 1946 Session I, A-01
Word Count
19,623THE FOOD AND AGRICULTURE ORGANIZATION REPORT OF THE NEW ZEALAND REPRESENTATIVE ON THE SPECIAL MEETING ON URGENT FOOD PROBLEMS, HELD AT WASHINGTON, 20-27 MAY, 1946 Appendix to the Journals of the House of Representatives, 1946 Session I, A-01
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