1000 words analysis
Gender equality, food security and the sustainable development goals Bina Agarwal1,2
Available online at www.sciencedirect.com
ScienceDirect
Abstract
This paper examines the potential and limitations of SDG 5
(Gender Equality) in helping to achieve household food
security. The potential lies in the attention it pays to women’s
access to land and natural resources, which can significantly
enhance women’s ability to produce and procure food. Its
limitations lie in a lack of attention to the production constraints
that women farmers face; its failure to recognise forests and
fisheries as key sources of food; and its lack of clarity on which
natural resources women need access to and why. Moreover,
other goals which bear on food security as important providers
of nutrition, such as SDG 15 as it relates to forests and SDG
14 as it relates to fish resources, make no mention of gender
equality, nor does SDG 13 (Climate action) recognise the
vulnerabilities of women farmers. A bold interpretation of SDG
5 and establishing synergies with other SDGs could provide
ways forward. This includes not only SDGs which recognise the
importance of gender equality, such as SDGs 1, 2, and 13 on
poverty, hunger, and climate change respectively, but also
SDGs 14 and 15 whose silence on gender could prove
detrimental not just to attaining food security, but also to
furthering their stated objectives of resource conservation.
Addresses 1Global Development Institute, University of Manchester, Manchester
M13 9PL, United Kingdom 2 Institute of Economic Growth, University Enclave, Delhi 110007, India
Corresponding author: Agarwal, Bina (bina.india@gmail.com)
Current Opinion in Environmental Sustainability 2018, 34:26–32
This review comes from a themed issue on Sustainability Science
Edited by Ken E Giller, Ira Martina Drupady, Lorenza B Fontana &
Johan A Oldekop
For a complete overview see the Issue
Available online 21st September 2018
Received: 27 November 2017; Accepted: 16 July 2018
https://doi.org/10.1016/j.cosust.2018.07.002
1877-3435/ã 2018 Elsevier B.V. All rights reserved.
Introduction Since the late 1970s, we have seen the launch of several
initiatives to monitor the development performance of
countries, by quantifying their progress in various dimen-
sions of human well-being. UNDP’s Human Development
Current Opinion in Environmental Sustainability 2018, 34:26–32
Report and the World Bank’s World Development Report,
both produced annually, are among the best known of these
initiatives. In the 2000s, however, there was a notable move
beyond evaluative statistics to setting globally agreed-upon
timebound goals of development. The eight Millennium
Development Goals (2000–2015) were a start, but the
United Nations’ Sustainable Development Goals (SDGs)
launched in 2016 constitute the most ambitious attempt to
date. Presented as ‘a universal call to action to end poverty,
protect the planet, and ensure that all people enjoy peace
and prosperity’, the SDGs combine economic, social and
environmental dimensions, with a particular emphasis on
social inclusion. The 17 Goals and 160 Targets are to be
achieved by 2030. Identified through a long process of
interaction between international organisations, govern-
ments and civil society, they reflect both the ambition of
this multi-scale endeavour and the compromises that arise
in building consensus among diverse actors.
This paper focuses on SDG 5 — which aims at Gender
Equality — to address the question: can this Goal help
ensure household food security? The concept of food
security is of course complex, and would encompass
not only food availability in an aggregate sense but also
its distribution among people, and not only caloric ade-
quacy but also nutritional sufficiency. The diversity of
food produced or procured also matters, as does the
environmental sustainability of food production systems.
To what extent can SDG 5 help fulfil these objectives?
I argue that SDG 5 holds substantial potential but also has
serious limitations on these counts. The potential lies in its
focus on two elements which have a critical bearing on
household and national food security: women’s access to
land and property, and their access to natural resources.
Secure land rights can enhance the productivity of women
farmers whose proportions are growing with the feminisa-
tion of agriculture, and also improve intra-household nutri-
tional allocations since owning property increases women’s
bargaining power within families. Access to natural
resources, such as forests and fisheries, can provide impor-
tantadditional sourcesofnutritionaldiversity, sincewomen
are the main gatherers of food from forests and the principal
producers in small-scale and inland fisheries. This potential
could be extended by teaming up with Goals 1 and 2
(ending poverty and hunger respectively).
Yet there are limitations, since some key related Goals —
in particular SDG 15 (Life on land) as it relates to forests,
and SDG 14 (Life below water) as it relates to marine and
www.sciencedirect.com
Gender equality, food security and the sustainable development goals Agarwal 27
coastal ecosystems — make no mention of gender equal-
ity in access to these resources, nor does SDG 13 (Climate
action) recognise the particular vulnerabilities of women
farmers. Indeed there is little recognition in these SDGs
that forests and fisheries are significant sources of food
and nutritional diversity, or that women play an important
role in procuring from them. Moreover, SDG 5 itself
provides no clarity on which natural resources it seeks
women’s access to and how. Much will therefore depend
on whether the gender equality goal can create synergies
with other relevant SDGs, and whether these other
SDGs, in turn, recognise that they need a focus on gender
equality for achieving their own stated objectives. These
links between SDG 5 and other SDGs which are detailed
below have not been explored earlier from the perspec-
tive of food security and natural resources. But first
consider what roles women play in food provisioning.
Women and food provisioning Roles and constraints
Women play a central role in household and national food
security, as food producers, household food managers, and
consumers.
As producers, women constitute a substantial and growing
proportion of agricultural workers, as more men than
women tend to leave the agricultural sector first. In
2012, 43 per cent of all farm workers in Asia and
47 per cent in Africa were female, with percentages close
to 50 or higher in Southeast and East Asia (http://faostat.
fao.org). In some of the world’s major rice producing
regions, half or more of the agricultural work force is thus
female. And these proportions have been growing glob-
ally, except in northern Europe, leading to a gradual
feminisation of agriculture [1]. In addition women pro-
vide most of the labour time for food processing and
preparation [2].
Table 1
Gender inequality in land access: developing countries
Region and country Indicator
South Asia
Nepal Percentage landowning HHs in which women o
India: Karnataka state Percentage rural landowners who are women (2
Africa
Kenya Women as a percentage of registered landhold
Ghana Percentage HHs where women own land (1991
Ten countries (average)a Percentage of women owning land, solely or jo
Latin Americab
Peru Women owning land (solely or jointly) as a perc
Mexico Women owning land (solely or jointly) as a perc
Paraguay Women owning land (solely or jointly) as a perc
Notes: HH, households. a The countries are Burkina Faso, Burundi, Ethiopia, Lesotho, Malawi, Rwa
based on the Demographic and Health surveys in these countries. For ass b For assumptions underlying the calculations, see Deere and Leon [4].
www.sciencedirect.com
Women’s ability to contribute effectively to agriculture,
however, depends crucially on their access to land, which
is the most important productive resource for farmers. But
they are seriously disadvantaged in this respect due to
male bias in inheritance laws, in social norms which
restrict effective implementation of these laws, in land
markets, as well as in government land distribution
schemes [3,4]. Although country-level gender-disaggre-
gated data on land ownership is limited and varies across
regions, Table 1 gives some illustrative figures. We note
that in Nepal women owned land in only 14 per cent of all
landowning households, according to its 2001 census. For
India, there are no reliable country-level data on women’s
land ownership, but regional surveys find low levels even
in the less gender-biased southern states: for example,
only 20 per cent of rural landowners in Karnataka are
women. And of India’s operational holdings (namely land
cultivated but not necessarily owned) – only 12.8 per cent
are cultivated by women, covering just 10.4 per cent of
cultivated area (Agricultural Census 2010-11 [5]). In
Ghana, women own land in just 10 per cent of households;
in Kenya, only 5 per cent of registered landholders are
female; and information collated for ten other African
countries by Doss et al. [6] shows that, although on
average 39 per cent of the sampled women own land,
only 12 per cent are sole owners (the figures are 48 and
31 respectively for men). Latin America similarly shows a
wide gender gap, with just 22–30 per cent of landowners
being women, varying by country. Moreover, the control
that women owners can exercise over land (e.g. rights to
lease, mortgage, sell, or use as collateral) is more restricted
than men’s [3,7].
Women also have poor access to credit, irrigation, ferti-
lizers, technology, information on new agricultural prac-
tices, and marketing infrastructure [7,11]. These disad-
vantages multiply if we factor in climate change, since any
technical advances in, say, heat resistant or water
Percentage Source
wn land (2001) 14.0 Allendorf [8]
010-11) 20.0 Swaminathan et al. [9]
ers (c. 2002) 5.0 Deere and Doss [10]
–2) 10.0 Deere and Doss [10]
intly 39.0 Doss et al. [6]
entage of all land owners (2000) 25.3 Deere and Leon [4]
entage of all land owners (2000) 22.4 Deere and Leon [4]
entage of all land owners (2000) 30.2 Deere and Leon [4]
nda, Senegal, Tanzania, Uganda, and Zimbabwe. The calculations are
umptions underlying the calculations, see Doss et al. [6].
Current Opinion in Environmental Sustainability 2018, 34:26–32
28 Sustainability Science
3 Of the estimated 1.6 million deaths that take place annually from
inhaling fuel smoke from cooking indoors, 60 per cent are of women
([24]:28).
conserving crop varieties, or in practices for adaptation
and mitigation, are less likely to reach them. This does
not portend well for foodgrain availability, especially in
South Asia and sub-Saharan Africa where the yields of all
major foodcrops are predicted to decline drastically with
climate change [12]. Globally, even without climate
change, exceptional efforts will be needed to feed the
world population, which is expected to reach 9.8 billion
by 2050, as projected by the United Nations Department
of Economic and Social Affairs. With climate change, if
food output lags behind population, per capita calories
available in developing countries in 2050 are likely to be
lower than in 2000, resulting, by some estimates, in 20 per
cent higher child malnutrition than without climate
change [12]. As agriculture gets feminised, the burden
of adapting to or mitigating the adverse yield effects will
fall increasing on women, who have fewer resources at
their command for this purpose. Women’s efforts to adapt
to climate change could also lead them to shift to less
labour intensive but also less bio-diverse or nutritious
crops [13], even as the importance of nutrition-sensitive
agriculture is becoming increasingly evident [14].
In terms of consumption, any reduction in household
food availability with climate change, not just in calories
but also in proteins and minerals, is likely to affect
women and girls more than men and boys, given
intra-family inequality in food distribution. In the
1970s and 1980s, these inequalities were observed not
only in anthropometric and malnourishment indices but
even in direct measures of caloric intakes in poor house-
holds, and in the quality of food consumed by both the
poor and the rich [1,15]. Today the evidence on caloric
intakes is more mixed, but other gender disadvantages
persist, as observed in South Asia in terms of undernour-
ished and underweight children [16,17]. Moreover, glob-
ally, an estimated 613 million women today are anaemic,
especially but not only when pregnant and lactating [18].
And in societies where women are expected to eat last,
they are more likely to be affected if leftover food
becomes toxic as temperatures rise with climate change.
Higher temperatures will also extend women’s labour
time for food processing and preservation. And gender
inequalities, cross-cutting with poverty and social
inequalities such as of caste, ethnicity or race, will tend
to compound these effects. Based on FAO’s Food Inse-
curity Experience Scale Survey of 2014–15, UN
Women’s calculations show that in two-thirds of
141 countries, a larger proportion of women than men
report food insecurity, with women in sub-Saharan Africa
being the most vulnerable [19].
This vulnerability could be reduced to some extent, if
women as family food managers had more autonomy in
making decisions on intra-household food distribution, an
aspect which is found to be affected especially by
inequalities in asset ownership. For instance, child
Current Opinion in Environmental Sustainability 2018, 34:26–32
survival, nutrition and health are found to be notably
better if the mother has assets and income, than if the
father alone has the same [20,21]. Hence a move to
greater gender equality in access to productive assets
such as land can also enhance women’s effective control
over food distribution within the home, and benefit them
and their children as consumers.
Natural resources and food security
Apart from crops, women contribute to food systems
through forests and fisheries. This also helps enhance
the diversity and nutritional quality of diets, especially
but not only of poor families. An estimated one in
6 persons globally depends on forests, particularly for
supplementary food, including about 60 million indige-
nous people who are almost wholly forest dependent (see
[22] for a global collation of evidence on the importance of
forests for food). Forests also provide green manure,
fodder for animals, and various other inputs for small-
holder agriculture. Women and girls undertake much of
the gathering of forest products, especially food, firewood
and fodder [23]. Firewood remains the single most impor-
tant cooking fuel in large parts of the developing world
[24], and adequate cooking energy is an essential element
in food security. In the immediate short-term, increasing
women’s access to fuelwood by ensuring their access to
forests and village commons in sustainable ways, can
notably reduce energy poverty [23], although over time
a shift to cleaner fuels is necessary, given the seriously
health-damaging effects of unprocessed biofuels which
disproportionately affect women and children [24].3 How-
ever, women’s say in the management and use of forests
remains greatly restricted by male-biased rules and social
norms [23].
Similarly, seafood contributes substantially to nutrition. A
billion people are estimated to depend on seafood as their
primary source of protein, and 25 per cent of the world’s
total animal protein comes from fisheries [25]. Although
women constitute 46 per cent of workers in small-scale
fisheries and 54 per cent in inland fisheries [26], marine
products are harvested mainly by men, with women
constituting only 12 per cent of all fishers and fish farmers
globally ([27]: 108; see also, [28]). It is aquaculture,
however, which is fast-growing and expected to contrib-
ute more than half of all fish consumed by 2020 ([29]:19).
The expansion of inland aquaculture — an important part
of which falls in women’s domain — could provide a more
sustainable form of fish production than open sea fishing,
and can even help to conserve depleting marine resources
[30]. Ironically this receives no mention in SDG 14, just as
women’s stake in forests receives no mention in SDG 15.
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Gender equality, food security and the sustainable development goals Agarwal 29
Overall, therefore, while women are central actors in food
provisioning, and their involvement will increase with
time, they are stymied by serious resource and social
constraints.
The potential and limitations of SDG 5 Potential
To what extent does SDG 5 address these constraints?
The two key targets relevant to this discussion, 5.a and
5.5, are given in Box 1. To begin with, we note that SDG
5 pays serious attention to women’s access to land. This
offers a substantial opportunity, unlike the narrowly-
defined Millennium Development Goals which took
little account of women’s access to resources. In principle,
women can obtain land via three main sources: the family
(especially through inheritance or gift), the market, and
the State. Target 5.a privileges the family as the primary
source, since it explicitly mentions only inheritance laws
and not State policies. This limits its scope. But since
farm land is largely owned privately in most developing
countries (in India 86 per cent of arable land is in private
hands), gender equality in the ownership of family land
could provide security of tenure to large numbers of
women farmers. This would be an important step towards
increasing farm productivity and hence food security, by
providing foodcrops for direct consumption and/or
income for buying food. Also it could indirectly improve
food security for children, given the noted link between
the mother’s assets and child survival, nutrition and
health.
Second, Target 5.a mentions women’s access to financial
services. Affordable credit would help women farmers
invest in necessary inputs. There are, in fact, notable
examples of government efforts at linking women farmers
to subsidised formal credit, such as the National Bank for
Agriculture and Rural Development in India which pro-
vides such links to those forming Joint Liability Groups.
In some states, such as Kerala, many thousand women
farming collectively have taken advantage of this scheme,
which (among other measures) has facilitated substantial
improvements in their productivity and profits [31,32].
Box 1 SDG 5: some key targets
Goal 5: Achieve gender equality, and empower women and girls
everywhere
Target 5.a
Undertake reforms to give women equal rights to economic
resources, as well as access to ownership and control over land and
other forms of property, financial services, inheritance and natural
resources, in accordance with national laws
Target 5.5
Ensure women’s full and effective participation and equal opportu-
nities for leadership at all levels of decision-making in political,
economic and public life
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Third, Target 5.a emphasises the need to increase
women’s access to natural resources. Although it does
not specifically mention forests, fisheries, or irrigation
water, it provides an important opportunity to focus on
these sources of food, if policy makers and practitioners
interpret it in those terms.
Fourth, Target 5.5 emphasises women’s equal and effec-
tive partnership in public life. Although the focus here is
on State institutions such as legislatures and village
councils, it could be extended to cover community insti-
tutions such as forest management groups and water
users’ associations which are found to be particularly
effective in natural resource management [23,33]. Hence,
as with Target 5.a, Target 5.5 can prove to be an ally in
enhancing food security if countries are willing to broaden
its interpretation.
Limitations
Notwithstanding its potential, however, SDG 5 also has
serious limitations in its ability to deliver on food security.
To begin with, consider access to farm land. The empha-
sis in Target 5.a, as noted, is mainly on access via inheri-
tance, and hence implicitly access via the family. But
even this access is diluted by the clause ‘in accordance
with national laws’, thus eliding precisely that which
often needs changing, namely making national laws gen-
der equal. Also, social norms and gender biases within
families and communities create serious barriers in the
implementation of women’s legal rights [3,7]. For exam-
ple, it is widely accepted in most communities that
women will join their husbands on marriage, rather than
the reverse. This social norm restricts women’s ability to
claim, control or manage the land they inherit from their
parents. Norms of female seclusion and gender segrega-
tion of public space similarly reduce women’s mobility
and public interactions, and hence their access to the
market place for procuring production inputs, hiring
labour during peak seasons, or selling their produce.
Social norms also restrict women’s access to training
and information on new technologies provided by gov-
ernments. Overcoming the many barriers created by
gendered social norms is likely to prove difficult, although
not insurmountable. But changing social norms is not
factored into SDG targets, and tends to fall largely outside
the purview of government policy. SDG 5, however,
makes no mention even of that which does fall within
the scope of policy, such as support for better implemen-
tation of inheritance laws by spreading legal awareness or
providing legal aid to women contesting their claims;
government land transfers to women under anti-poverty
programmes; and subsidised credit to help poor women
purchase land and farm it productively.
Moreover, for making the land productive, women need
irrigation and other inputs, as well as technical support for
conserving soil and water and moving towards sustainable
Current Opinion in Environmental Sustainability 2018, 34:26–32
30 Sustainability Science
4 Today there are many examples of civil society groups working to
increase women’s access to land. These include WGWLO (Working
Group for Women and Land Ownership) and MAKAAM (an all-India
forum for women farmers’ rights) in India, and ALRD (Association for
Land Reform and Development) in Bangladesh. Globally, the Interna-
tional Land Coalition is a case in point.
farming systems. Target 5.5, as noted, only mentions
financial services, which is just one facilitator, and cannot
cover the other needs on its own.
SDG 5 also fails to explicitly highlight women’s access to
forests and fisheries which, as noted, are important
sources of food. Although it does mention women’s access
to natural resources (Target 5.a), there is no elaboration
on what constitutes natural resources, or ways of accessing
them. In fact, the indicators for monitoring SDG 5 do not
include natural resources at all. Similarly, SDG 5 makes
no mention of the challenges faced by food producers due
to climate change, while SDG 13 which focuses on
climate change pays no attention to the needs of women
farmers.
Ways forward Notwithstanding its limitations, there are at least five
ways in which SDG 5 can help promote food security.
First, by interpreting this Goal as broadly and imagina-
tively as possible. Access to natural resources, for
instance, would need to include access particularly to
forests and fisheries. This will require broadening the
reach of Target 5.5 (which focuses on women’s effective
participation in institutional decision-making) beyond
legislatures and village councils (mentioned in the
SDG 5 indicators), to cover community institutions for
natural resource management. And although none of the
SDGs mention women’s access to a key agricultural
input — irrigation water — this can potentially be taken
up within the mandate of increasing women’s access to
natural resources.
Second, SDG 5 needs to team up with SDGs 1 and
2 which clearly recognise the link between gender
inequality and food security; in fact they do so more
explicitly on some counts than SDG 5 itself. SDG 1
(no poverty) and SDG 2 (zero hunger) are both concerned
with food security, the latter directly and the former
indirectly (poverty is often measured in terms of adequate
caloric intake). Both also recognise that gender inequality
has a bearing on the achievement of these Goals. For
instance, Target 1.4, in addition to focusing on security of
land tenure and credit mentions that by 2030 all men and
women should get appropriate technology; and Target
2.3 highlights the need to ‘double the agricultural pro-
ductivity and incomes of small-scale food producers, in particular women . . . ’ (emphasis added), and ensure
their access to ‘other productive resources and inputs,
knowledge, financial services, markets, and opportunities
for value addition and non-farm employment’. It also
recognises the need for promoting sustainable food pro-
duction systems and resilient agricultural practices.
Hence, implementing these SDGs in tandem with Target
5.a could go a long way towards increasing gender equality
in the resources women farmers need for improving their
Current Opinion in Environmental Sustainability 2018, 34:26–32
yields and profits, as well as for adopting practices that are
environmentally sustainable.
Third, SDGs which mention gender, but in a general way,
can be interpreted to focus on specific aspects. SDG 13 on
climate change, for instance, in its Target 13.b, mentions
the need for supporting women (among other groups) to
deal with climate change. This support could be directed
to women farmers in particular. Similarly, SDG 6 on water
and sanitation which mentions gender would have an
indirect impact on nutritional outcomes.
Fourth, it is essential to engender SDGs which have a
critical and direct bearing on food security, but which
ignore gender. Cases in point are SDG 15 as it relates to
forests and SDG 14 as it relates to marine resources.
Neither mentions gender equality of access. In fact, both
focus almost entirely on resource conservation, with little
recognition of their contributions to food chains or to the
incomes of rural households, especially the poor. Since
forests and marine resources are largely common pool
resources, access to them is mainly controlled by their
management committees which determine the rules of
protection and extraction. But the absence of a gender
focus in these Goals misses some key synergies between
gender equality, conservation and food security.
For instance, in India and Nepal, the likelihood of
improved forest conservation is found to be significantly
higher where forest management committees have a
critical mass of 25–33% women, than those which have
few or no women [23]. In the long run, this also increases
the supply of diverse forest products, and women’s access
to these products, thus contributing to food security in
direct and indirect ways. Similar outcomes could be
expected with women’s greater involvement in marine
resource management, beyond inland fisheries which are
already largely in women’s domain. In other words, estab-
lishing a synergy with SDG 5 would help SDGs 14 and
15 achieve their own targets more effectively as well.
Fifth, over the past two decades or more, there have
been many approaches used by civil society and even by
governments to increase women’s access to land and
natural resources, for enhancing their livelihoods and
food security.4 Some have been more successful than
others. Given that civil society representatives were
involved in the framing of the SDGs, seeking their
participation in achieving the Goals could provide
another source of potential synergy for governments
and international organisations. Such a partnership could
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Gender equality, food security and the sustainable development goals Agarwal 31
also focus attention on innovative approaches which
have received inadequate recognition so far, such as
cooperative forms of farming that could prove particu-
larly important for raising the productivity and food
security of women farmers and their families. Some
84 per cent of all farms across 111 countries cultivate
less than 2 hectares ([34]:12), many of them too small to
be viable. Here, group farming, especially by women,
could provide an important way forward. In Kerala
(India), for instance, there are some 62 000 women’s
group farms today, operating under the Kudumbashree
programme. In my recent study covering two districts I
found that these group farms substantially outperformed
male-managed individual family farms, in both per hect-
are annual value of output and profits per farm [32].
Elsewhere, community cooperation in crop planning
across similar agro-ecological regions in India has been
yielding positive results (see [35]).5
Overall, therefore, SDG 5 on gender equality has sub-
stantial potential for improving both household and
national food security, but much depends on how imagi-
natively and broadly governments interpret key ele-
ments, such as equality of access to land, to natural
resources such as forests, fisheries and irrigation water,
and to the control and management of these resources.
Even with this broader interpretation, however, the gen-
der equality goal may have limited impact, unless efforts
are made to establish synergies with other SDGs and draw
in civil society practitioners as partners in the implemen-
tation of key SDGs. This would include not only working
in tandem with SDGs 1, 2, 6 and 13 which highlight
gender as a concern, but also with SDGs 14 and 15 which
so far have failed to recognise their substantial potential in
furthering both gender equality and food security.
Acknowledgement This paper draws partially on the author’s background concept notes written for UN Women’s Research & Data Section 2018 Report: ‘Gender Equality in the 2030 Agenda for Sustainable Development’. I am grateful to Kanika Mahajan and the journal’s two anonymous reviewers for their helpful comments on an earlier draft of this paper.
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- Gender equality, food security and the sustainable development goals
- Introduction
- Women and food provisioning
- Roles and constraints
- Natural resources and food security
- The potential and limitations of SDG 5
- Potential
- Limitations
- Ways forward
- Acknowledgement