Wheat flour and bread have played a central role in Sudan’s political economy throughout the country’s post-independence history. In 2019, increasing bread prices precipitated the protests that ousted the government of Omar al-Bashir. How has Sudan’s recent political transition and economic circumstances impacted distortions within the wheat value chain? What are the policy preferences of relevant stakeholders for improving the affordability of wheat products and the productivity of domestic wheat farmers? This paper addresses these questions by drawing on key informant interviews in Sudan and utilizing a political settlements approach, which captures the underlying distribution of power among elites and citizens. The post-revolution political settlement contains a much broader distribution of power shared between a civilian alliance movement and the military, each of which has distinct interests in the wheat value chain. The paper elucidates the preferences of different stakeholders to address policy distortions and discusses bottlenecks that need to be overcome for those options to be feasible. In doing so, the analysis reveals that, while the policy of subsidizing bread remains contentious, there are broader coalitions for interventions related to regulatory and monitoring reforms, improvements in domestic wheat procurement, enhanced agricultural investments, and targeted cash transfers to cushion subsidy reductions.
Wheat is a strategic and political good in Sudan and has played a central role in the country’s economy during successive regimes. Disruptions in Sudan’s wheat value chain usually leads to shortages of wheat bread, price spikes, and political unrest. With the objective of ensuring sufficient grain supplies for domestic consumption, Sudan’s domestic and imported wheat sectors have been subject to several government interventions over the last decades. Most interventions have focused on and aimed to (i) stimulate domestic production, (ii) ensure a reliable flow of wheat imports to compensate for low domestic wheat production, and (iii) monitor wheat flour and bread distribution processes to limit leakage and wastage. Sudan has two distinct wheat value chains: one for imported wheat and one for domestic wheat. The imported wheat value chain involves three major actors: milling companies, wheat flour agents, and bakeries. The domestic (locally produced) wheat value chain involves four main actors: wheat producers, wheat grain wholesalers, wheat grain retailers, and consumers. To understand the landscape of the wheat sector in Sudan, this report relies on rapid assessment surveys of the main wheat value chain actors. The aim is to closely identify different value chain actors’ distinct roles of the and to explore their linkages. The report evaluates and identifies key bottlenecks that likely cause wheat and bread supply disruptions while also shedding light on untapped opportunities and possible policy options to improve the functioning of Sudan’s wheat sector. We document wheat value chain actors’ policy preferences, which vary depending on whether actors are engaged in the domestic or the imported value chain. The report highlights the differential impact of COVID-19 and related mobility restrictions on wheat value chain members. For example, while wheat production remains mostly unaffected by the outbreak of the COVID-19 pandemic, the marketing, trade, and distribution of wheat and wheat flour has been adversely affected by it.
Despite reforms in early 2021, including a devaluation of the currency and a liberalization of imports, there remain significant distortions in Sudan’s wheat value chain, especially related to subsidized sales prices of flatbread. This flatbread subsidy, a key component of wheat policy, is not well-targeted. Calculations based on 2009 national household survey data and current 2021 prices and wheat supply show that urban poor households annually receive slightly less from this subsidy than urban non-poor households (18,900 and 20,800 SDG/capita). Rural poor households receive only 2,700 SDG/capita. This paper presents the results of several simulations of a partial equilibrium model of Sudan’s wheat economy that are designed to analyze the impacts of recent shocks and various policy options. Model simulations show that increased wheat imports, such as those financed by food aid, add to supplies for processing into wheat flour, flatbread, and other wheat products, resulting in lower prices for consumers and increased consumption, but also disincentives for production. A 300,000 ton increase in wheat imports, as occurred in early 2021, results in an 8 percent increase in wheat consumption and a 35 percent decline in the market price of non-flatbread wheat products. Production falls by 12 percent. Since flatbread prices are unchanged, wheat consumption of the urban poor, for whom flatbread is the major wheat product consumed, increases by only 4 percent. Raising flatbread prices by 30 percent to reduce the size of the fiscal subsidy reduces total consumption of flatbread by 17 percent and sharply reduces wheat consumption and real incomes of the urban poor. All households suffer a loss of 41 to 45 percent in the value of flatbread subsidies received. The urban poor experience the largest decline in total consumption of wheat (14 percent) and in total income (11 percent). (The average total income loss for all households is only 3 percent.) Reducing the flatbread subsidy without a compensating income transfer would significantly reduce the welfare of the urban poor and likely threaten political stability. Our results suggest that a combination of key wheat policies involving high levels of imports – including injection of food aid wheat into the economy in late 2020 – and subsidized flatbread will significantly benefit urban poor households. Nonetheless, the are important data gaps on several aspects of the wheat sector, including no recent nationally representative household expenditure survey data. In addition, greater transparency, including publication of quantities and prices of government purchases, sales of wheat and wheat flour, and quantities and prices of subsidized flatbread across the country has the potential to significantly increase the efficiency of the entire wheat sector. As shown in this paper, Sudan’s wheat policies in recent years, such as increased wheat imports, price subsidies in the wheat value chain, and low prices of flatbread, have in general favored consumers, to the detriment of producers. These interventions in the wheat value chain, especially those related to subsidies on flatbread, have especially large effects on the welfare of urban households, making these policies particularly politically sensitive. However, they have entailed high fiscal costs, threatening macro-economic stability and crowding out other possible investments to promote growth and poverty reduction. Careful policy analysis and ongoing monitoring of outcomes and new developments will be needed to help guide the important choices ahead.
This is an open access title available under the terms of a CC BY-NC 4.0 International licence. It is free to read at Oxford Academic and offered as a free PDF download from OUP and selected open access locations. The current structure of the global food system is increasingly recognized as unsustainable. In addition to the environmental impacts of agricultural production, unequal patterns of food access and availability are contributing to non-communicable diseases in middle- and high-income countries and inadequate caloric intake and dietary diversity among the world's poorest. To this end, there have been a growing number of academic and policy initiatives aimed at advancing food system transformation, including the 2021 UN Food Systems Summit, the Sustainable Development Goals (SDGs), and several UN Climate conferences. Yet, the policy pathways for achieving a transformed food system are highly contested, and the enabling conditions for implementation are frequently absent. Furthermore, a broad range of polarizing factors affect decisions over the food system at domestic and international levels - from debates over values and (mis)information, to concerns over food self-sufficiency, corporate influence, and human rights. This volume explicitly analyses the political economy dynamics of food system transformation with contributors who span several disciplines, including economics, ecology, geography, nutrition, political science, and public policy. The chapters collectively address the range of interests, institutions, and power in the food system, the diversity of coalitions that form around food policy issues and the tactics they employ, the ways in which policies can be designed and sequenced to overcome opposition to reform, and processes of policy adaptation and learning. Drawing on original surveys, interviews, empirical modelling, and case studies from China, the European Union, Germany, Mexico, South Asia, sub-Saharan Africa, and the United States, the book touches on issues as wide ranging as repurposing agricultural subsidies, agricultural trade, biotechnology innovations, red meat consumption, sugar-sweetened beverage taxes, and much more.
Agricultural support policies cost more than US$800 billion per year in transfers to the farm sector worldwide. Support policies based on subsidies and trade barriers are highly distortive to markets and are also regressive as most support is provided to larger farmers. On balance, the incentives this support creates appear to increase greenhouse gas emissions that contribute to climate change. In addition, some subsidies undermine the production of more nutrient-dense commodities that are otherwise critical for the improvement of dietary outcomes. This paper first highlights that better outcomes could be achieved if even a small portion of agricultural subsidies were repurposed into investments in research and development (R&D) dedicated to productivity-enhancing and emission-reducing technologies. This would create multiple wins — mitigating global climate change, reducing poverty, increasing food security, and improving nutrition. Nonetheless, the political economy challenges to doing so are sizeable. Because current support policies are often politically popular and serve well-organized interests, reform is difficult without committed political leadership and multilateral collaboration. Using several case studies of both successful and failed changes of agricultural support policies in China, India, and the EU and the United States, we highlight lessons learned about the political economy constraints on and possibilities for reform.
This paper evaluates spatial market and price transmission in cereal markets in Sudan, focusing on wheat and sorghum, two major cereal crops. We use comprehensive and long-ranging monthly cereal price data and a multivariate vector of error-correction cointegration models (VECM) to characterize both short-term and long-term price transmissions across local cereal markets. We find that among the 15 local wheat markets and 18 sorghum markets we can only detect significant spatial market integration among 7 wheat and 10 sorghum markets. Despite some strong spatial market integration among a few neighboring markets, there is no market integration between several regions. For example, cereal markets in Darfur are not integrated with cereal markets in the rest of the country. Among integrated markets, we observe significant variations in the strength of price transmission elasticities as well as speed of adjustment to longterm equilibrium, which implies that shocks (and price policies) in some markets can affect only some other markets. Most of the strong price transmission and spatial market dependence follow existing trade flows and road networks, insinuating that infrastructural barriers may be obstructing spatial market integration. We also find that markets in production surplus states are less responsive to price changes in neighboring markets than those located in cereal deficit states. Finally, we also observe relatively stronger spatial integration and short-term adjustment in sorghum markets than wheat markets. Shocks to sorghum prices in sorghum producing markets have permanent impact while shocks to wheat prices in wheat producing markets endure transitory effects. These findings have important policy implications for improving the efficiency of cereal markets in Sudan and other similar settings.
This study assesses the political economy of the conflict between the Sudan Armed Forces (SAF) and the Rapid Support Forces (RSF) that brought out in April 2023, resulting in massive violence, displacement, and threats to food security. Based on a series of key informant interviews and other secondary materials, this study identifies that the primary underlying driver of the conflict relates to the rise of competition between the SAF and RSF over productive resources, including within the agri-food system. This scenario has been facilitated by a longstanding lack of scrutiny, accountability, and transparency over the distribution of economic rents and commercial holdings between the two factions. Additionally, the capture of rents from different industries and resources has been a key contributor to the geographic expansion of the conflict. As the conflict continues to rage between the two groups and their associates, it continues to impose considerable impacts on different actors within the agri-food system, posing significant challenges to the planting season and crop production, introducing blockades of trade routes, and a near cessation of agro-processing. We discuss these aspects of the ensuing conflict in view of the uncertainty about political and economic developments and propose policy recommendations for rebuilding Sudan’s agri-food system holistically under different scenarios.
Addressing the urgent need to tackle the global challenges of poverty, inequality, and environmental degradation, this is highly valuable reading for those interested in implementing sustainable development strategies across a variety of contexts.
This report is about a huge contribution to our deepening understanding of what the global economy really means and how it is changing. The report helpfully distinguishes elements of an economy that are tradable and the large set that are non-tradable. Clearly the tradables set is expanding with the support of enabling technology. The report argues that connectivity in the networks that define the evolving architecture of GVCs is important. This Global Value Chain Development Report is the result of intensive and detailed work in assembling and analyzing data on the structure of economies and on how they are linked. It creates a much clearer picture of evolving patterns of independence. It also presents a much clearer picture of comparative advantage. --Publisher description.
