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Canadian Foreign Aid Policy Agenda Setting: Examining Canada's 2009

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Canadian Foreign Aid Policy Agenda Setting: Examining Canada's 2009 Kai-Hsin Hung January 2016 Major Research Paper The Road to Zero Hunger: A Case Study of Canada’s Policy Agenda-Setting for Global Food Security API 6999 Professor Marc Saner Abstract The emergence of food security as one of Canada’s top international development priorities in 2009 was an important shift in Canadian foreign aid policy, which begs the question of how the policy came into being and how this change can be explained. This paper will focus on the agenda-setting aspects of Canadian foreign aid policy by using the exemplar case study of the policy agenda-setting process that shaped Canada’s 2009 Food Security Strategy. Agenda-setting is the process of moving a problem to the attention of government so that solutions can be considered. Understanding policy agenda-setting is crucial to steering policy-making and informing decisions in response to ever increasingly complex and interconnected global challenges. Moreover, this case study is based on information obtained from in- depth interviews, official reports and documents obtained through ATIP. John Kingdon’s agenda-setting framework provided the theoretical lens for this research and NVivo was used for the text analysis. This research identified nine key factors, in which problem framing, policy considerations, and politics, as well as the role of evidence, and values relate to power and social change in the context of Canada’s approach to addressing global food insecurity. The case history aims to provide new details and perspectives to those who were paying close attention to the 2007-2009 policy agenda-setting process, while the nine key factors and the opening of the policy window by key actors provide insights to future policy analysis and development. The Road to Zero Hunger Kai-Hsin Hung - GSPIA MRP, 2016 Copyright © Kai-Hsin Hung, Ottawa, Canada. 2016. This work is licensed under the Creative Commons Attribution-NonCommercial-ShareAlike 4.0 International License. To view a copy of this license, visit http://creativecommons.org/licenses/by-nc-sa/4.0/ For further information please contact Kai-Hsin Hung: [email protected] Page 2 of 67 The Road to Zero Hunger Kai-Hsin Hung - GSPIA MRP, 2016 Acknowledgements Funding for this research was provided by the Social Sciences and Humanities Research Council of Canada, the Ontario Ministry of Training, Colleges and Universities, the Graduate School of Public and International Affairs, the Faculty of Social Sciences and the Faculty of Graduate and Postdoctoral Studies at the University of Ottawa. I am indebted to my supervisor, Marc Saner for trusting me to find my own path and his continuous support of my Master’s research. His guidance, immense knowledge, constructive feedback, amiable nature and encouragement were invaluable. Thank you to Blane Harvey, formerly at IDRC for his guidance during the early stages of this research. I am also grateful to Susan Spronk and Pierre Beaudet at the School of International Development and Global Studies. I am extremely thankful to them for their commitment to students and social justice, as well as the encouragement they gave me. Also, I would like to acknowledge Carl Grundy-Warr at the National University of Singapore for sparking my interest in the places, people and politics of the South. Many thanks to the many dedicated professors and my accomplished colleagues in the Graduate School of Public and International Affairs and the Institute of the Environment for challenging me intellectually and motivating me over the last two years. Also, I would like to thank the talented and hardworking colleagues of the Permanent Mission of Canada to the Food and Agriculture Agencies of the United Nations in Rome, whom I had the great privilege to work with as an intern during the writing of this research. I also thank my sisters and parents for their many years of unconditional support and freedom. I am also grateful to my partner who supported me through this venture. Lastly, I am truly grateful to the have had the chance to pursue higher post- secondary education and for the many formative opportunities and brilliant people who have made it a worthy journey. I’m not a master but I found comfort in the following quote by Stephen McCranie: “The master has failed more times than the beginner has even tried.” Page 3 of 67 The Road to Zero Hunger Kai-Hsin Hung - GSPIA MRP, 2016 Key words Food security, agenda-setting, Kingdon model, public policy, policy window, food crisis, official development assistance, foreign aid Acronyms AAFC Agriculture and Agri-Food Canada AFSI L’Aquila Food Security Initiative ATIP Access to Information and Privacy CCA Canadian Cooperative Association CFA Comprehensive Framework for Action CFGB Canadian Foodgrains Bank CGIAR Consultative Group for International Agricultural Research CIDA Canadian International Development Agency1 CIFSRF Canadian International Food Security Research Fund CSO Civil society organization DFATD Department of Foreign Affairs, Trade and Development2 DFAIT Department of Foreign Affairs and International Trade1 DFO Department of Fisheries and Oceans FAO Food and Agricultural Organization of the United Nations FSPG Food Security Policy Group G8 Group of Eight GDP Gross Domestic Product HLTF United Nations System High Level Task Force on Global Food Security Crisis IDRC International Development Research Centre IFAD International Fund for Agricultural Development IFPRI International Food Policy Research Institute LIFDC Low-Income Food Deficit Countries MDG Millennium Development Goals MEA Multilateral Environmental Agreement NFIDC Net Food Importing Developing Countries NGO Non-governmental organizations ODA Overseas Development Assistance OECD Organisation for Economic Co-operation and Development OECD-DAC OECD-Development Assistance Committee UN United Nations SDG Sustainable Development Goals WDR World Development Report WFP World Food Programme WFS World Food Summit 1 CIDA was merged with the DFAIT to form the DFATD in June 2013. 2 DFATD was renamed Global Affairs Canada or GAC in November 2015. Page 4 of 67 The Road to Zero Hunger Kai-Hsin Hung - GSPIA MRP, 2016 TABLE OF CONTENTS PART I: INTRODUCTION ....................................................................................................................... 6 Historical Context .................................................................................................................................... 6 Canada’s Commitments & the 2009 Food Security Strategy .................................................................. 7 Research Question ................................................................................................................................... 9 PART II: THEORETICAL FRAMEWORK & METHODOLOGICAL APPROACH .................... 10 Kingdon’s Agenda-Setting Framework ................................................................................................. 10 Research Methodology .......................................................................................................................... 11 PART III: RESULTS ............................................................................................................................... 16 Problems Stream .................................................................................................................................... 16 Policies Stream ...................................................................................................................................... 26 Politics Stream ....................................................................................................................................... 36 Policy Entrepreneurs .............................................................................................................................. 41 PART IV: ANALYSIS & DISCUSSION ................................................................................................ 43 The Strategy’s Three Paths of Action .................................................................................................... 43 Untying Food Aid & Defusing Opposition ............................................................................................ 45 Ideological Undercurrents ...................................................................................................................... 47 PART V: CONCLUSION ........................................................................................................................ 50 The Policy Window & Key Factors ....................................................................................................... 50 Looking Forward ................................................................................................................................... 52 BIBLIOGRAPHY ..................................................................................................................................... 56 APPENDICES ........................................................................................................................................... 62 Appendix I: African Countries Particularly Vulnerable to the Food Crisis ........................................... 62 Appendix II: Domestic Food Grain Price Changes for Selected Countries (in percent) ....................... 63 Appendix III: Top 20 Beneficiaries of Canadian Overseas Development Assistance in 2008-2009 .... 64 Appendix IV: Former CIDA Priority Sectors from 1995-2009 ............................................................
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