How trust is lost: the Food Systems Summit 2021 and the delegitimation of UN food governance

Abstract

Social movements see participation formats of international organizations (IOs) with suspicion. They increasingly retreat from cooperation to contest IOs from the outside, because they fear co-optation without real policy impact. However, the Food and Agricultural Organization (FAO) was an exception to this trend because its opening up was seen as long-term dialogue facilitating discussions about the nature of food production, and because it created credible institutional mechanisms that were trusted by activists to give influence to farmers and peasant movements. Therefore, the food sovereignty movement participated within the FAO framework in a remarkably institutionalized way throughout the 2010s. But in 2019, when the United Nations (UN) announced to hold a food systems summit (United Nations Food Systems Summit (UNFSS)), this changed dramatically. The food sovereignty movement, many non-governmental organizations (NGOs), and eventually scientists, decided to boycott the summit, instead organizing an alternative Peoples’ Summit, and withdrawing from long-held institutional roles in the FAO. How can this be explained? This article traces the process from the announcement of the UNFSS to its implementation, stressing how institutional trust was damaged by several decisions in the process that undermined the good faith of activists. As we show in detail, the circumvention of established institutional mechanisms, and the feeling of betrayal on the side of the movement, was decisive for losing institutional trust. Importantly, a mixture of substantive and institutional changes in the context of UNFSS not only undermined the movement’s trust into the integrity and ability of the summit organizers, but thereby also provoked movement efforts to delegitimize UN food governance at large.