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A V History of Sugar Marketing

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A V History of Sugar Marketing A V / HISTORY OF SUGAR MARKETING U.S. DEPARTMENT OF AGRICULTURE - ECONOMIC RESEARCH SERVICE - AGRICULTURAL ECONOMIC REPORT NO. 197 ABSTRACT The present U,S, system of regulating the production, importation^ and marketing of sugar is an outgrowth of Government regulation of the sugar trade dating from Colonial times. Similar systems have developed in most other countries, particularly those which import sugar. The U,S. Sugar Quota System has benefited domestic sugar producers by providing stable prices at favorable levels. These prices also have encouraged the production and use of substitute sweeteners, particularly corn sirup and dextrose in certain industries. However, sugar is, by far, the most widely used sweetener in the U.S. and is likely to retain this position. Key Words: Sugar, quota, preference, tariff, refined, raw, sweeterners, world trade, history. PREFACE This report is a product of various studies of the economics of the sugar industry throughout the world, some of them dating from the 1930's. The analysis of events since World War 11 is largely a product of current studies on "The Economics of Marketing of Sugar." Washington, D.C. 20250 February 1971 For saJe by the Supermtendetit of Documents, U.S. Governm^l Priming Offkc Washington, D.C. 20402 - Price 11.25 f^per cover) CONTENTS Page Page Summary v Capital Investments in Puerto Rico 20 I. Introduction 1 Capital Investments in ÏI. Sugar Before the Philippines 20 the Discovery of America 1 The Sugar Trust after 1902 21 Early Sweeteners 1 Corn Sweeteners 21 Origin of Cane Sugar 2 Saccharin 22 Movement Across Northern Africa 2 Tariff Changes Before III. The Colonial Period in World War I 22 the Americas 2 VII. Sugar During World War I 22 Portuguese Colony: Brazil 2 Shifts in Production 22 Spanish Colonies 3 Changes in International Trade 22 British and French Colonies 3 U.S. Entry into the War 24 Trade Restrictions 4 Negotiations for 1917/18 Crop 24 British Mainland Colonies 4 United States Sugar Equalization Sugar and the American Revolution 5 Board 24 IV. Sugar from 1783 to 1864 6 Armistice on November 11,1918 25 U.S. Sugar Tariff 6 Domestic Sugar Controls 25 Production in Louisiana 6 VIII. Price Fluctuations and Marketing Louisiana Sugar 6 Higher Tariffs 26 Nonsugar Sweeteners 7 Price Fluctuations in 1920 26 Starch Sweeteners ................... 7 Cause of the 1920 Price Rise 27 The Beet Sugar Industry 8 The Cuban Sugar Depression V. Developments in the in the 1920's 27 Latter Nineteenth Century 9 Protectionist Policies in Decline and Recovery in Louisiana 9 Importing Countries 31 Reciprocity with Hawaii 9 U.S. Tariffs and Sugar Production 31 Introduction of Beet Flexible Tariffs in the United States 33 Sugar in the United States 9 Refiners' Loss of Protection Imports and Tariffs 10 in 1930 33 Sugar Refining 11 Cuban Attempts to The Sugar Trust 12 Maintain Sugar Prices 34 European Sugar Bounties 13 Early International Efforts U.S. and English Imports to Control Sugar 35 of Beet Sugar 14 The Chadbourne Negotiations 36 Brussels Convention 15 First International Sugar Agreement 36 Developments in the Corn U.S. and Cuban Sugar Wet Milling Industry 15 Developments, 1920-33 37 VI. Changes in U.S. Sugar Developments in Corn Sweeteners 37 Trade Following the Spanish-American Saccharin 37 War, 1900-15 16 IX. Sugar Quotas Prior to World War II 39 Changes in Tariff Duties 16 The Sugar Act of 1934 39 Changes in Production 16 The Sugar Act of 1937 42 Sugar Consumption 17 Results of the Sugar Quota Laws 42 Changes in Sources of Imports 18 Reciprocal Trade Agreements 45 Reciprocity with Cuba 18 The Sugar Institute 45 Economic Effects, 1904-09 18 The International Sugar Economic Effects After 1909 19 Agreement of 1937 46 New Capital Investments in Cuba 20 The Philippine Independence Act 47 iii Page Page X. Sugar During World War II 48 XIII. The International Sugar Position at Outbreak Agreement After World War II 77 of War, September 1939 48 Principal Features of the Events Before Pearl Harbor 48 1953 Agreement 77 Sugar Production During the War 49 The 1956 Protocol 78 Goals for Sugarcane and Sugarbeets 49 The 1958 Agreement 78 Government Control of Sugar Prices 50 The 1969 Agreement 78 Returns to Growers of Achievements of the International Sugarcane and Beets 51 Sugar Agreement 79 Sugar Allocation Among the Allies 53 XIV. World Sugar Production and Trade 81 Sugar Allocations Within the World Sugar Production Since 1948 81 United States 53 Nouth America 83 Sugar Rationing 54 South America 84 Government Purchases of Europe 84 Sugar and Molasses 59 Asia 85 Purchases from Cuba 59 Africa 85 Purchases from Puerto Rico, Oceania 85 Dominican Republic, and Haiti 60 International Trade in Sugar 85 Effects of the Sugar Program 61 World Sugar Trade Pattern 91 Nonsugar Sweeteners During XV. Postwar Trends in the World War II 62 United States Sugar Industry 94 Postwar Recovery 64 Trends in U.S. Sugar Supply XI. U.S. Sugar Quotas after 1947 64 by Sources Since 1948 94 The Sugar Act of 1948 64 Beet Sugar 94 The 1951 Amendments 67 Mainland Sugarcane 98 The 1956 Amendments 68 Hawaii 99 Changes in Sugar Quotas, 1960-61 68 Puerto Rico 99 Sugar Act Amendments of 1962 69 Raw Sugar Prices in the United Sugar Act Amendments of 1965 72 States and the World Sugar XIL Government Regulation of the Sugar Markets 99 Industry by Countries Other Than the Prices and Distribution of Refined United States 72 Sugar in the United States 102 United Kingdom 73 Price Movements for Sugarbeets France 74 and Sugarcane 103 West Germany 74 XVI. Nonsugar Sweeteners: Italy 74 Recent Developments 106 Belgium and Luxemburg 74 Trends in the Use Netherlands 74 of Starch Sweeteners 106 European Economic Community 75 Recent Price Trends USSR 75 for Caloric Sweeteners 112 Japan 75 Trends in the Use India 76 of Noncaloric Sweeteners 112 Cuba 76 XVII. Retrospect and Prospect 115 Philippines 76 Bibliography 118 Australia 76 Appendix A 122 Brazil 77 Appendix B 125 IV SUMMARY It took about 2,000 years for the production of of beet sugar in Europe largely as a result of sugar sugar, which originated in India, to move westward shortages during the Napoleonic wars. The new source of across much of Asia and North Africa and become sugar greatly reduced the market for cane sugar and led established in Spanish and Portuguese islands in the to economic depression in many sugarcane producing Atlantic Ocean off the coast of Africa. However, the areas throughout the world. establishment of sugar production in these islands shortly before the discovery of America facilitated the The structure of the United States sugar industry speedy introduction of sugarcane to the New World. The was altered greatly by events following the development of sugar production in the Western Spanish-American War. Sugar from the Philippines and Hemisphere, more than any other event, marked the Puerto Rico was allowed duty-free entry into the United beginning of present-day methods of sugar production States and imports from Cuba were granted a 20 percent and trade. reduction from the rate applicable to other nations. Aside from precious metals, sugar was the first commodity shipped in commercial quantities to Sugar shortages during World War I led to a large European countries with colonies in the New World, and increase in output in countries exporting cane sugar, sugar colonies became valuable possessions of the European countries controlling them. Since each particularly Cuba. England shifted from a free trade country attempted to control the trade with its colonies position in sugar to one of protection for its domestic so as to benefit its own nationals in Europe and this was industry and preference for its colonies. The United not always beneficial to the colonists, disputes became States doubled its import duty on sugar and, in 1934, fairly common and much smuggling developed. This was followed this with a quota system. An international particularly notable with respect to English colonies. sugar agreement was adopted in 1937, following a series Those on the mainland of North America where little or of earlier efforts to establish some international control no sugar was produced were anxious to trade their own over the sugar trade. In modified form these features still surplus products for sugar and molasses produced in the remain in effect. Caribbean in Spanish and French as well as English colonies. The tariff and other trade restrictions Protection, which since the end of World War II has established by England were greatly resented in the led to somewhat higher sugar prices in the United States mainland colonies and this was a factor leading to the and most other sugar importing nations, has also Revolutionary War. encouraged the production of nonsugar sweeteners and of Ironically, one of the first Acts of the United attempts to produce sugar from sources other than States Congress, after the adoption of the Constitution, sugarcane and sugarbeets. The most important of these was to place an import duty on sugar as a means of competitors are the starch sweeteners, commonly known raising revenue for the Government. Following the in this country as corn sirup and dextrose. The Louisiana purchase, the tariff also had the effect of noncaloric sweeteners, saccharin and cyclamate have also protecting the newly established sugar industry in increased greatly in importance. The most promising southern Louisiana. During the 40 years or so before the new sources of sugar appear to be the sweet sorghums Civil War, Louisiana supplied a substantial part of the and corn stalks of a variety which produced very few relatively small quantity of sugar consumed in the kernels.
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