Food security of the Russian Federation. Doctrine of food security of the Russian Federation. Goals and objectives of food security

In order to implement the state economic policy in the field of ensuring food security of the Russian Federation, aimed at reliably supplying the country's population with food, developing domestic agro-industrial and fishery complexes, promptly responding to internal and external threats to the stability of the food market, effective participation in international cooperation in the field of food security , I decree:

Ensure the annual preparation of reports to the President of the Russian Federation containing analysis, assessment and forecast of food security of the Russian Federation.

3. Federal government bodies and government bodies of the constituent entities of the Russian Federation shall be guided by the provisions of food security of the Russian Federation in practical activities and in the development of regulatory legal acts relating to ensuring food security of the Russian Federation.

1. This Doctrine represents a set of official views on the goals, objectives and main directions of state economic policy in the field of ensuring food security of the Russian Federation.

This Doctrine develops the provisions of the national security of the Russian Federation until 2020, approved by the President of the Russian Federation on May 12, 2009 N 537, relating to food security of the Russian Federation, taking into account the norms of the Russian Federation for the period until 2020, approved by the President of the Russian Federation on July 27, 2001 ., and other regulatory legal acts of the Russian Federation in this area.

2. Food security of the Russian Federation (hereinafter referred to as food security) is one of the main directions of ensuring the country’s national security in the medium term, a factor in preserving its statehood and sovereignty, an important component of demographic policy, a necessary condition for the implementation of a strategic national priority - improving the quality of life of Russian citizens by guaranteeing high standards of life support.

In accordance with the provisions of the national security of the Russian Federation until 2020, the national interests of the state in the long term include, among other things, increasing the competitiveness of the national economy, transforming the Russian Federation into a world power, whose activities are aimed at maintaining strategic stability and mutually beneficial partnerships in a multipolar world.

The strategic goal of food security is to provide the country's population with safe agricultural products, fish and other products from aquatic biological resources (hereinafter referred to as fish products) and food. The guarantee of its achievement is the stability of domestic production, as well as the availability of the necessary reserves and reserves.

Timely forecasting, identification and prevention of internal and external threats to food security, minimizing their negative consequences through the constant readiness of the system for providing citizens with food products, the formation of strategic food reserves;

Achieving and maintaining physical and economic accessibility for every citizen of the country of safe food products in volumes and assortments that comply with established rational standards for food consumption necessary for an active and healthy lifestyle;

4. This Doctrine is the basis for the development of regulatory legal acts in the field of ensuring food security, development of the agro-industrial and fishery complexes.

This Doctrine takes into account the recommendations of the Food and Agriculture Organization of the United Nations on the maximum share of imports and stocks of food resources, and also defines the basic concepts used in the field of ensuring food security.

5. Food independence of the Russian Federation - sustainable domestic production of food products in volumes not less than the established threshold values of its share in the commodity resources of the domestic market for the relevant products.

Food security of the Russian Federation is the state of the country's economy, in which the food independence of the Russian Federation is ensured, the physical and economic accessibility for every citizen of the country of food products that meet the requirements of the Russian Federation on technical regulation is guaranteed, in volumes not less than the rational standards for food consumption necessary for active and healthy lifestyle.

Food security indicator is a quantitative or qualitative characteristic of the state of food security, allowing one to assess the degree of its achievement based on accepted criteria.

Food security criterion is a quantitative or qualitative threshold value of a characteristic by which the degree of food security is assessed.

Rational norms for food consumption - a diet presented in the form of a set of products, including food products in volumes and ratios that meet modern scientific principles of optimal nutrition, taking into account the established structure and dietary traditions of the majority of the population.

APPROVED
By Presidential Decree
Russian Federation
from ________№_______

DOCTRINE
FOOD SECURITY
RUSSIAN FEDERATION

1. GENERAL PROVISIONS

The Doctrine of Food Security of the Russian Federation (hereinafter referred to as the Doctrine) is a set of official views on the goals, objectives, and main directions of state policy to ensure the country's food security.

The Doctrine develops the provisions of the State Strategy for Economic Security of the Russian Federation, approved by Decree of the President of the Russian Federation of April 29, 1996 No. 000, the Concept of National Security of the Russian Federation, approved by Decree of the President of the Russian Federation of December 17, 1994 No. 000 (as amended by Decree of the President of the Russian Federation dated January 10, 2000 No. 24), the provisions of the Maritime Doctrine of the Russian Federation for the period until 2020, approved by the President of the Russian Federation on July 27, 2001, are taken into account.

The doctrine is the basis for the development of regulatory legal acts in the field of ensuring food security of the Russian Federation, development of the agro-industrial and fishery complexes.

Goals and objectives of the food security doctrine of the Russian Federation

Food security is an integral part of the country’s national security, the preservation of its statehood and sovereignty, the most important component of demographic policy, the life support system, a necessary condition for ensuring health, physical activity, longevity and a high quality of life of the country’s population.

The strategic goal of food security in the Russian Federation is to reliably provide the country's population with safe and high-quality agricultural and fishery products, raw materials and food. The guarantee of its achievement is the stability of domestic production, as well as the availability of the necessary reserves and reserves.

The main objectives of ensuring food security of the Russian Federation (hereinafter referred to as food security), regardless of changes in external and internal conditions, are:

Achieving and maintaining physical and economic accessibility for every citizen of the country of safe and high-quality food products in volumes and assortment in accordance with established rational consumption standards necessary for an active, healthy lifestyle;

Sustainable development of domestic production of basic types of food, sufficient to ensure the country's food independence;

Ensuring the safety and quality of consumed food products;

Preventing internal and external threats to food security, minimizing their negative consequences through the constant readiness of the system for providing citizens with food during natural disasters and other emergencies and the formation of strategic reserves of high-quality and safe food products.

2. THE CONCEPT OF FOOD SECURITY, BASIC TERMS AND DEFINITIONS

In the 21st century, the role of Russia is increasing as a state with significant reserves, agricultural potential and aquatic biological resources not only for the production of food resources for its own consumption, but in the future - for the supply of certain types of food to the foreign market.

4. INDICATORS AND CRITERIA OF FOOD SECURITY

To assess the state of food security, the following system of indicators is used:

in the sphere of consumption:

Level of economic accessibility of basic food products;
- level of physical accessibility of basic food products;
- level of disposable resources of households by population groups;
- level of consumption of basic types of food per capita, including through domestic production;
- food consumption by specific population groups;
- the proportion of the population for which consumption of basic food products is below rational standards;
- volumes of targeted assistance to the population;
- the share of imported and domestic food products identified as not meeting the requirements of technical regulations and other provisions of the legislation of the Russian Federation;
- daily calorie intake of a person;
- the amount of proteins, fats, carbohydrates, vitamins, macro- and microelements consumed by a person per day;
- food inflation.

in the field of production and national competitiveness:

Volumes of production of agricultural and fishery products, raw materials and food per capita;
- the share of domestically produced food products in the total volume of commodity resources of the domestic market for the corresponding products;
- level of support for producers of agricultural products, raw materials and food in rubles per ruble of products sold;
- productivity of land and other natural resources used in agriculture;
- state of soil fertility of agricultural lands.

in the field of organization and management:

In order to increase the availability of food for all groups of the population, decisions must be made:

On the formation of mechanisms for providing targeted assistance to population groups whose income level does not allow them to provide adequate nutrition;
- on approval of a system of interrelated indicators that ensure the safety and quality of food products, including products made from raw materials obtained using genetically modified organisms;
- on the development of unified requirements for control systems at food enterprises, harmonized with the recommendations of international organizations, the transition of the food industry to an integrated state system of safety control and quality monitoring.

Developing a healthy diet will require:

Development of fundamental and applied scientific research on medical and biological assessment of the quality and safety of new food sources and ingredients, introduction of innovative technologies, including bio- and nanotechnologies, technologies for organic production of food products and food raw materials, increasing the production of new fortified, dietary, functional food products;
- development of educational programs for the population on the problems of healthy nutrition as an essential component of a healthy lifestyle with the involvement of the media, creation of special training programs;
- development and implementation of a set of measures aimed at reducing the consumption of alcohol and other alcohol-containing products.

In the sphere of production and circulation of agricultural and fishery products, raw materials and food, measures will have to be taken aimed at:

Optimization of intersectoral economic relations that would stimulate the growth of the rate of expanded reproduction, attracting investments and introducing innovations in agriculture and fisheries;
- stabilization of the price situation and the formation of pricing mechanisms based on indicative prices for main types of products;
- improving the lending support system in order to ensure the availability of short-term and investment loans for the majority of commodity producers;
- creating conditions for realizing the economic potential of zones of rapid economic growth with agro-industrial and fishery specialization in the constituent entities of the Russian Federation, taking this factor into account when forming a promising settlement system;
- promoting the development of integration and cooperation in the production, processing and sale of agricultural and fishery products, raw materials and food;
- accelerated development of the domestic market infrastructure;
- development and implementation of technological modernization programs, development of new technologies that ensure increased labor productivity and resource conservation in agriculture, fisheries, and the food industry;
- formation of a common food market and a single commodity distribution network within the customs union;
- improvement of state trade policy, regulation of markets for agricultural and fishery products, raw materials and food, including procurement for government needs, ensuring increased demand for domestically produced products.

In the field of improving the organization and management of food security, it is necessary:

To improve the regulatory legal framework for the functioning of the agro-industrial and fishery complexes, based on the main directions and mechanisms for the implementation of the Doctrine;
- monitor, forecast and control the state and prospects for achieving and maintaining a given level of food security;
- assess the stability of the country’s economy to changes in world food markets and natural and climatic changes;
- assess the sustainability of the food supply of cities - megacities and regions dependent on the supply of imported food products;
- to create state information resources in the field of ensuring the country’s food security.

The food security system of the Russian Federation is determined by federal laws, decrees and orders of the President of the Russian Federation, decrees and orders of the Government of the Russian Federation, as well as decisions of the Security Council of the Russian Federation.

Government of the Russian Federation:

Pursues a unified state policy in the field of ensuring food security;
- organizes monitoring and control of the implementation of measures to ensure food security of the Russian Federation;
- takes measures to achieve and maintain food security thresholds for the main types of agricultural and fishery products, raw materials and food;
- takes measures in accordance with the established procedure in cases of emergency situations;
- coordinates the activities of executive authorities in the field of ensuring food security.

State authorities of the constituent entities of the Russian Federation in interaction with state authorities of the Russian Federation:

Implement a unified state policy in the field of ensuring food security, taking into account regional conditions;
- develop and adopt regulatory legal acts of the constituent entities of the Russian Federation on issues of ensuring food security;
- form and maintain the necessary food supplies and reserves in the constituent entities of the Russian Federation;
- ensure monitoring of the state of food security on the territory of the constituent entities of the Russian Federation.

The Security Council of the Russian Federation considers, within the framework of national security, strategic issues of food security to ensure it, prepares recommendations for the implementation by federal executive authorities and executive authorities of the constituent entities of the Russian Federation of the functions assigned to them in this area of activity.

The implementation of the provisions of the Doctrine will ensure food security of the Russian Federation as an important component of national security, predict and prevent emerging threats and risks to the country's economy, increase its sustainability, create conditions for the dynamic development of the domestic agro-industrial and fishery complexes, and improve the well-being of the population.

Ministry of Agriculture together with other departments, public unions and associations, developed a draft of a new Doctrine of Food Security. As reported by " Agroinvestor» representative of the Ministry of Agriculture, the project is being approved by the federal executive authorities, after which it will be submitted to the government.

The doctrine was developed taking into account the “changed external and internal conditions” of the functioning of the agro-industrial complex, including the introduction of sanctions against Russia, accession to the WTO and the deepening of integration processes in the EAEU. “The doctrine places emphasis on strengthening the country’s food security, replacing imported products on the domestic food market and increasing Russia’s self-sufficiency in basic types of food products,” said a ministry representative. In particular, the document proposes to introduce an indicator of self-sufficiency, calculated as a percentage of the volume of domestic production to the value of domestic consumption. Upon its implementation, export development will be possible. The list of main products will be supplemented with vegetables and melons, fruits and berries, as well as seeds of main crops.

At the same time, experts propose to significantly change approaches to food security. The Moscow School of Management Skolkovo, together with the Center for Agricultural Policy of the Institute of Economics and Economy of the Russian Presidential Academy of National Economy and Public Administration, industry unions and experts, has prepared proposals noting that the problem of import substitution and food independence of the country has been generally solved. “The threshold values established by the doctrine for the share of domestic products in the total volume of commodity resources of the domestic market have been achieved or exceeded for all products, except milk and table salt,” states the appeal sent to the government, the presidential administration, Ministry of Agriculture(Agroinvestor has a copy).

In this regard, experts consider it necessary to significantly revise the goals and objectives of the doctrine and the main directions for their implementation, taking into account new challenges and changed conditions. One of its main principles should be “the responsibility of the state for ensuring a guaranteed level of food well-being of the population.” Among other things, experts consider it necessary to adjust national standards for food consumption, which are now overestimated in volume due to the decrease in physical activity of the population, and to more detail them in terms of taking into account microelements, vitamins, nutrients, etc. On the other hand, Particular attention must be paid to the poorest segments of the population. “The consequences of poor nutrition for these people, and even more so for children from poor families, are a serious threat to the country. One of the ways to solve this problem is to organize domestic food assistance,” the letter states.

Targeted food assistance to socially vulnerable populations is a good tool for increasing domestic consumption, comments Konstantin Korneev, executive director of Rincon Management. In this case, people could spend the subsidies to buy domestic food products. At the same time, according to him, in order for products to be purchased more often, it is also necessary to keep the price affordable, and this is only possible with proper cost management. Since effective demand has fallen, producers must focus on household incomes and what people can afford to buy.

Another important principle of the new doctrine should be the development of trust and cooperation between participants in the country’s food market, as well as with partners from other countries, the authors of the proposals are confident. The basis of government regulation should be ensuring the sustainability of business models and guaranteeing entrepreneurial freedom. “The doctrine should contain key areas of deregulation to ensure maximum efficiency and competition along the entire chain,” the authors of the proposals are confident. At the same time, it is necessary to develop mechanisms for identifying and eliminating bottlenecks that hinder the development of the sector, including in related industries. “The basis for solving the problem of food security in the future will be the most efficient components of the production and distribution infrastructure,” experts believe.

Experts and Ministry of Agriculture agreed that the new doctrine needs to reflect the high import dependence of the Russian agro-industrial complex in terms of material and technical resources, including in the field of breeding, genetics, plant protection products, feed additives, and technological equipment. “Even today, the Russian economy’s import dependence on resources for the agricultural sector is much higher than on food products,” the authors of the letter point out. At the same time, they note the gaps and backwardness of the education and science systems and the lag in the digitalization of agriculture and the entire food chain, which may in the future lead to “new forms of technological dependence on developed countries.”

The current Doctrine of Food Security in Russia was approved by presidential decree in January 2010 and is valid until 2020. As a criterion for assessing food security, it uses the share of domestic products in the total volume of the domestic market. Including the threshold value for grain is set at no less than 95%, sugar - no less than 80%, vegetable oil - no less than 80%, meat and meat products - no less than 85%, milk and dairy products - no less than 90%, fish products - no less than 80%, potatoes - no less than 95%, table salt - no less than 85%. According to the Ministry of Agriculture, over the past eight years, almost all of these indicators have been achieved, with the exception of milk (82.4% in 2017) and salt (63.6%). Moreover, in 2017, the norms of per capita consumption recommended by the Ministry of Health were achieved or exceeded, except for milk (28% behind), as well as fruits (38%) and vegetables (20%). Including egg production last year amounted to 305 pieces. per person with a consumption rate of 260 pieces, bread products - 118.3 kg with a rate of 96 kg/person, vegetable oil - 14.2 kg with a rate of 12 kg/person, meat and meat products - 75.7 kg with a rate of 73 kg /person

Decree of the President of the Russian Federation dated January 30, 2010 No. 120

“In order to implement the state economic policy in the field of ensuring food security of the Russian Federation, aimed at reliable provision of the country’s population with food, the development of domestic agro-industrial and fishery complexes, prompt response to internal and external threats to the stability of the food market, effective participation in international cooperation in the field of food security, I decree:

1. Approve the attached Doctrine of Food Security of the Russian Federation.

2. To the Government of the Russian Federation:

develop and approve an action plan for the implementation of the provisions of the Doctrine of Food Security of the Russian Federation;
ensure annual preparation of reports to the President of the Russian Federation containing analysis, assessment and forecast of food security of the Russian Federation.

3. Federal government bodies and government bodies of the constituent entities of the Russian Federation shall be guided by the provisions of the Doctrine of Food Security of the Russian Federation in practical activities and in the development of regulatory legal acts relating to ensuring food security of the Russian Federation.”

I. General provisions

1. This Doctrine represents a set of official views on the goals, objectives and main directions of state economic policy in the field of ensuring food security of the Russian Federation.

This Doctrine develops the provisions of the National Security Strategy of the Russian Federation until 2020, approved by the Decree of the President of the Russian Federation of May 12, 2009. No. 537, concerning food security of the Russian Federation, takes into account the norms of the Maritime Doctrine of the Russian Federation for the period until 2020, approved by the President of the Russian Federation on July 27, 2001, and other regulatory legal acts of the Russian Federation in this area.

In accordance with the provisions of the National Security Strategy of the Russian Federation until 2020, the national interests of the state in the long term include, among other things, increasing the competitiveness of the national economy, transforming the Russian Federation into a world power, whose activities are aimed at maintaining strategic stability and mutually beneficial partnerships in a multipolar world .

3. The main objectives of ensuring food security, regardless of changes in external and internal conditions, are:

timely forecasting, identification and prevention of internal and external threats to food security, minimizing their negative consequences through the constant readiness of the system for providing citizens with food products, the formation of strategic food reserves;
sustainable development of domestic production of food and raw materials, sufficient to ensure the country's food independence;
achieving and maintaining physical and economic accessibility for every citizen of the country of safe food products in volumes and assortments that meet established rational standards for food consumption necessary for an active and healthy lifestyle;
ensuring food safety.

4. This Doctrine is the basis for the development of regulatory legal acts in the field of ensuring food security, development of the agro-industrial and fishery complexes.

Food security of the Russian Federation is the state of the country's economy, in which the food independence of the Russian Federation is ensured, the physical and economic accessibility for every citizen of the country of food products that meet the requirements of the legislation of the Russian Federation on technical regulation is guaranteed, in volumes not less than the rational standards for food consumption necessary for active and healthy lifestyle.

Food security indicator is a quantitative or qualitative characteristic of the state of food security, allowing one to assess the degree of its achievement based on accepted criteria.

Food security criterion is a quantitative or qualitative threshold value of a characteristic by which the degree of food security is assessed.

Economic accessibility of food is the possibility of purchasing food products at prevailing prices in volumes and assortments that are no less than established rational consumption standards, ensured by an appropriate level of income of the population.

Physical accessibility of food is the level of development of the commodity distribution infrastructure, at which in all populated areas of the country it is possible for the population to purchase food products or organize meals in volumes and assortment that are not less than the established rational standards for food consumption.

6. Based on the requirements of food independence, the main sources of food products are products of agriculture, forestry, fishing, hunting, and the food industry. Agriculture, fisheries and the food industry play a decisive role in ensuring food security.

Strengthening and developing cooperation with international and regional organizations, establishing mechanisms for interstate dialogues and developing relations with leading states of all regions of the world on food security issues in accordance with the Foreign Policy Concept of the Russian Federation meet the national foreign policy and economic interests of the country.

Accession to the World Trade Organization on terms that meet the national interests of the Russian Federation will also help strengthen the country's food security.

II. Indicators of food security of the Russian Federation and criteria for their assessment

7. To assess the state of food security, the following system of indicators is used:

a) in the sphere of consumption:

disposable household resources by population group;
provision of space for trade and catering per 1000 people;
food consumption per capita;
volumes of targeted assistance to the population;
daily caloric intake of a person;
the amount of proteins, fats, carbohydrates, vitamins, macro- and microelements consumed by a person per day;
consumer price index for food products;

b) in the field of production and national competitiveness:

volumes of production of agricultural and fishery products, raw materials and food;
import of agricultural and fishery products, raw materials and food;
budgetary support for producers of agricultural and fishery products, raw materials and food per ruble of products sold;
productivity of land resources used in agriculture;
volumes of sales of food products by trade and public catering organizations;

c) in the field of management organization:

volumes of food from the state material reserve, formed in accordance with regulatory legal acts of the Russian Federation;
stocks of agricultural and fishery products, raw materials and food.

8. To assess the state of food security, the share of domestic agricultural, fishery and food products in the total volume of commodity resources (taking into account carryover stocks) of the domestic market for the relevant products is determined as a criterion, having threshold values in relation to:

grains - at least 95 percent;
sugar - at least 80 percent;
vegetable oil - at least 80 percent;
meat and meat products (in terms of meat) - no less than 85 percent;
milk and dairy products (in terms of milk) - at least 90 percent;
fish products - at least 80 percent;
potatoes - at least 95 percent;
table salt - at least 85 percent.

III. Risks and threats to ensure food security of the Russian Federation

9. Ensuring food security is associated with risks that can significantly weaken it. The most significant risks fall into the following categories:

macroeconomic risks caused by a decrease in the investment attractiveness of the domestic real sector of the economy and the competitiveness of domestic products, as well as the dependence of the most important sectors of the economy on foreign economic conditions;
technological risks caused by a lag behind developed countries in the level of technological development of the domestic production base, differences in food safety requirements and the organization of a system for monitoring their compliance;
agroecological risks caused by unfavorable climate changes, as well as the consequences of natural and man-made emergencies;
foreign trade risks caused by fluctuations in market conditions and the use of government support measures in foreign countries.

10. The presence of the listed risks creates threats to food security, which can lead to non-compliance with the threshold values of the food security criterion. The sustainable development of the country's economy requires the implementation of government regulation measures to overcome:

low level of effective demand of the population for food products;
insufficient level of development of the domestic market infrastructure;
price imbalances in the markets of agricultural and fishery products, raw materials and food, on the one hand, and material and technical resources, on the other;
insufficient level of innovation and investment activity in the production of agricultural and fishery products, raw materials and food;
reduction of national animal and plant genetic resources;
shortage of qualified personnel;
differences in the standard of living of urban and rural populations;
artificial competitive advantages of foreign products, formed through various measures of government support for food production in foreign countries.

IV. Main directions of state economic policy in the field of ensuring food security of the Russian Federation

11. Taking into account the risks and threats to food security, state economic policy in the sphere of its provision, an integral part of which is state agricultural and maritime policy, should be implemented in the following main directions.

In the area of increasing the economic accessibility of food for all groups of the population, special attention will have to be paid to the implementation of measures aimed at reducing poverty, providing priority support to the most needy segments of the population who do not have sufficient funds to organize a healthy diet, as well as to organize a healthy diet for pregnant and lactating women women, children of early, preschool and school age, healthy nutrition in social institutions (hereinafter referred to as social nutrition).

In terms of the physical accessibility of food products, it is necessary to develop interregional integration in the field of food markets and food supply, more effectively use mechanisms to support regions located in areas of insufficient food production or find themselves in extreme situations, increase transport accessibility of remote regions for a guaranteed and relatively uniform food supply to their population, create conditions for increasing the number of commercial infrastructure facilities and public catering of various types.

In terms of the formation of the state material reserve, the nomenclature of the corresponding material assets and the norms for their accumulation must be determined.

12. To ensure food safety, it is necessary to monitor compliance with the requirements of the legislation of the Russian Federation in this area of agricultural, fishery and food products, including imported ones, at all stages of their production, storage, transportation, processing and sales. It is necessary to exclude the uncontrolled distribution of food products obtained from genetically modified plants using genetically modified microorganisms and microorganisms that have genetically modified analogues.

There is a need to continue to harmonize food safety indicators with international requirements based on fundamental research in the field of nutrition science.

It is necessary to improve the food safety control system, including the creation of a modern technical and methodological base.

13. In the field of production of agricultural and fishery products, raw materials and food, efforts should be concentrated in the following areas:

increasing soil fertility and productivity, expanding agricultural crops at the expense of unused arable land, reconstruction and construction of reclamation systems;
accelerated development of livestock farming;
expansion and more intensive use of the potential of aquatic biological resources and new technologies for their industrial cultivation;
creation of new technologies for deep and complex processing of food raw materials, methods of storage and transportation of agricultural and fishery products;
development of the scientific potential of the agro-industrial and fishery complexes, support of new scientific directions in related fields of science and implementation of measures to prevent the outflow of highly qualified scientific personnel;
increasing the pace of structural and technological modernization of the agro-industrial and fishery complexes, reproduction of natural and environmental potential;
development of a system for training and advanced training of personnel capable of implementing the tasks of an innovative model for the development of agro-industrial and fishery complexes, taking into account the requirements of food security;
improving the mechanisms for regulating the market for agricultural and fishery products, raw materials and food in terms of increasing efficiency and eliminating price imbalances in the markets of agricultural and fishery products and material and technical resources;
increasing the efficiency of government support, paying special attention to creating conditions for the financial stability and solvency of commodity producers.

14. In the field of sustainable development of rural areas, the following areas should be developed:

social development of rural and coastal fishing settlements;
increasing financial support for the implementation of social programs in rural and coastal fishing villages;
monitoring the level of unemployment and the level of real income of the rural population;
diversification of rural employment.

15. In the field of foreign economic policy, it is necessary to ensure:

prompt application of customs and tariff regulation measures for the purpose of rationalizing the ratio of exports and imports of agricultural and fishery products, raw materials and food;
active use of protective measures in the case of growing imports of agricultural and fishery products, raw materials and food, as well as in cases of dumping and the use of subsidies in foreign countries for their export;
effective operation of the sanitary, veterinary and phytosanitary control system, taking into account international rules and standards;
a gradual reduction in the dependence of the domestic agro-industrial and fishery complexes on the import of technologies, machinery, equipment and other resources.

16. The formation of foreign economic policy should be carried out in compliance with food security criteria.

V. Mechanisms and resources to ensure food security of the Russian Federation

17. Mechanisms for ensuring food security are established in the relevant regulatory legal acts that determine the conditions for the functioning of the country’s economy and its individual sectors, and are provided with financial resources from the federal budget and the budgets of the constituent entities of the Russian Federation.

Measures and mechanisms to ensure food security are aimed at reliably preventing internal and external threats to food security and should be developed simultaneously with government forecasts of the country’s socio-economic development.

The Government of the Russian Federation ensures the annual development of balances of resources and use of the main types of agricultural and fishery products, raw materials and food.

18. In order to increase the availability of food for all groups of the population, the following decisions must be made:

on the formation of mechanisms for providing targeted assistance to population groups whose income level does not allow them to provide adequate nutrition;
on approval of a system of interrelated indicators that ensure the safety of food products, including products made from raw materials obtained using genetically modified organisms;
on the development of unified requirements for control systems at food enterprises and harmonized with the recommendations of international organizations, the transition of the food industry to a comprehensive safety control system.

19. Formation of a healthy diet will require:

development of fundamental and applied scientific research on medical and biological assessment of the safety of new food sources and ingredients, introduction of innovative technologies, including bio- and nanotechnologies, technologies for organic production of food products and food raw materials, increasing the production of new fortified, dietary and functional food products;
development of educational programs for the population on the problems of healthy nutrition as an essential component of a healthy lifestyle with the involvement of the media, creation of special training programs;
development of social nutrition standards and implementation of measures to support it;
development and implementation of a set of measures aimed at reducing the consumption of alcohol and other alcohol-containing products.

20. In the sphere of production and circulation of agricultural, fishery and food products, measures must be taken aimed at:

optimization of intersectoral economic relations that would stimulate the growth of the rate of expanded reproduction, attracting investments and introducing innovations in agriculture and fisheries;
stabilization of the price situation and the formation of pricing mechanisms based on indicative prices for main types of products;
improving the lending support system in order to ensure the availability of short-term and investment loans for the majority of commodity producers;
creating conditions for realizing the potential of zones of accelerated economic growth with agro-industrial and fishery specialization in the constituent entities of the Russian Federation, taking this factor into account when forming a promising settlement system;
promoting the development of integration and cooperation in the production, processing and sale of agricultural and fishery products, raw materials and food;
accelerated development of domestic market infrastructure;
development and implementation of technological modernization programs, development of new technologies that ensure increased labor productivity and resource conservation in agriculture, fisheries, and the food industry;
the formation of a common food market and a single commodity distribution network within the framework of the customs union of member states of the Eurasian Economic Community;
improving state trade policy, regulating markets for agricultural and fishery products, raw materials and food, including procurement for government needs, ensuring increased demand for domestically produced products.

21. In the field of organizing and managing food security, it is necessary:

improve the regulatory legal framework for the functioning of the agro-industrial and fishery complexes, based on the main directions and mechanisms for implementing the provisions of this Doctrine;
monitor, forecast and control the state of food security;
assess the stability of the country’s economy to changes in world food markets and natural and climatic changes;
assess the sustainability of the food supply of cities and regions dependent on external food supplies;
to create state information resources in the field of food security.

22. The food security system is determined by federal laws, decrees and orders of the President of the Russian Federation, decrees and orders of the Government of the Russian Federation, as well as decisions of the Security Council of the Russian Federation.

23. Government of the Russian Federation:

pursues a unified state economic policy in the field of ensuring food security;
organizes monitoring of the state of food security and control over the implementation of measures to ensure it;
takes measures to achieve and maintain food security thresholds for the main types of agricultural, fishery and food products;
carries out measures in accordance with the established procedure in cases of emergency situations;
coordinates the activities of executive authorities in the field of ensuring food security.

24. State authorities of the constituent entities of the Russian Federation in interaction with federal state authorities:

implement a unified state economic policy in the field of ensuring food security, taking into account regional characteristics;
develop and adopt regulatory legal acts of the constituent entities of the Russian Federation on issues of ensuring food security;
form and maintain the necessary food supplies and reserves in the constituent entities of the Russian Federation;
ensure monitoring of the state of food security on the territory of the constituent entities of the Russian Federation.

25. The Security Council of the Russian Federation considers, within the framework of national security, strategic issues of ensuring food security, prepares recommendations for the implementation by federal executive authorities and executive authorities of the constituent entities of the Russian Federation of the functions assigned to them in this area of activity.

26. Implementation of the provisions of this Doctrine will ensure food security as an essential component of national security, predict and prevent emerging threats and risks to the country’s economy, increase its sustainability, create conditions for the dynamic development of the agro-industrial and fishery complexes, and improve the well-being of the population.

History of creation

In the 1990s, the country faced a food crisis. This happened for various reasons. The agricultural sector at this time became the object of significant transformations and reforms: the dismantling of state and collective farms, privatization programs, a powerful reduction in state support - a state of turbulence and uncertainty led to the collapse of agricultural production, interruptions in the supply of food to cities and poverty of the rural population. Urban residents faced food shortages, rampant price inflation of staple foods, and significant deterioration in nutritional value (Wegren, 2011).

The discussion of the problem of the decline in agricultural production and the concept of food security was initiated by the communists. Several legislative projects were prepared, but the initiative did not reach any specific resolutions. It is interesting that during the period of active discussions on the topic of ensuring food security, two definitions, one might even say two concepts, collided and began to compete. The first is food security as the independence of the domestic market from imported products due to the presence of a hostile environment. The second focused on the affordability of food, which would ensure social stability (Barsukova, Dufy, 2016).

The first concept appealed more to the support of agricultural producers, who actively called for increased government support and protection of the domestic market. The second rather reflected the interests of consumers. The second concept was adhered to by a large number of officials who feared mass discontent among citizens over rising food prices, as well as experts from international organizations who advised the Russian government. As a result, communist deputies were unable to achieve support for the concept of food security aimed at protecting the domestic market and supporting domestic producers.

In 2010, Russian President D. Medvedev approved the “Doctrine of Food Security of the Russian Federation” (Decree of the President of the Russian Federation of January 30, 2010 No. 120). The document elevates ensuring food security of the Russian Federation to the status of national security issues. The adoption of the Doctrine as a whole symbolized the fact that the agricultural sector has the status of a strategic direction and ensures the national security of the country. The document emphasizes that this is not a problem of a particular industry, but a national problem that does not have a narrow departmental localization.

Let's try to answer the question - why did the adoption of the Doctrine suddenly become possible? Firstly, due to the positive trend in the development of Russian agriculture in the 2000s: the beginning of grain exports, an increase in gross agricultural output. Secondly, the successful implementation of the national project "Development of the Agro-Industrial Complex" (2006-2007), which contributed to the rapid development of pig and poultry farming. It is important to note that from 1990 to 2004. Negative dynamics were demonstrated by almost all indicators of agricultural production. (Russian Statistical Yearbook, 2005, p. 437, 447 - 448, 458.)

Table 1

Dynamics of agricultural characteristics in 1990-2004.

Index
Land used for agricultural production, million hectares
Number of cattle, million heads
Number of pigs, million heads
Number of tractors per 1000 ha of arable land, pcs.
Number of grain harvesters per 1000 hectares of arable land, pcs.
Mineral fertilizers per 1 ha of sown area, kg
Share of area fertilized with mineral fertilizers in the entire sown area, %
Organic fertilizers per 1 ha of sown area, t
Share of area fertilized with organic fertilizers in the entire sown area, %
Energy capacity per 100 hectares of cultivated area, l. With.
Electricity consumption for production purposes per employee, thousand kWh

Source: Russian statistical yearbook 2005, pp. 437, 447 - 448, 458.

On the eve of the adoption of the Priority National Project (PNP) "Development of the Agro-Industrial Complex", Russian agriculture was an industry in which the depreciation of production assets exceeded 80%, while the retirement of fixed assets was 1.5-2 times higher than the commissioning of new capacities. The share of investment in fixed capital was only 4% of the total investment in the economy, which is 4.5 times less than in 1991. 56% of the rural population was below the poverty line, and the average monthly salary was 43% of the national level ( Obolentsev 2007, p. 8).

The project brought significant “political dividends” (Barsukova, Dufy, 2016). The point is that attracting attention to the food market and, in general, to the food discourse brought political points to the ruling elite due to a positive shift in the agro-industrial complex.

In a substantive sense, the doctrine includes tasks to ensure the country's food independence, forecasting, identifying and preventing internal and external threats to food security, achieving and maintaining the physical and economic availability of safe food products in the required volume and range. It seems important to emphasize that the Doctrine is aimed at achieving the threshold values for the country’s self-sufficiency in necessary food products. The threshold values for self-sufficiency are as follows: “Grain - at least 95%, sugar - at least 80%, vegetable oil - at least 80%, meat and meat products - at least 85%, milk and dairy products - at least 90%, fish products - not less than 80%, potatoes - no less than 95%, table salt - no less than 85%. (Doctrine of Food Security of the Russian Federation, 2010)

The key points on which the Food Security Doctrine is meaningfully based are:

1. Share of own production of certain types of food;
2. The quality of the food produced;
3. Availability of food for the population, which includes economic (price) and physical (territorial) accessibility; (Barsukova, Dufy, 2016)

This allows us to conclude that the idea of food independence was supplemented with emphasis on food quality and availability. That is, food security must guarantee independence from imports, as well as the economic opportunities of the population to purchase high-quality domestic food directly in their places of residence. At the same time, the concepts of “food quality” and “availability of food for the population” are not operationalized.

However, despite a certain versatility of the Doctrine, the real consequences for agricultural policy had exclusively control and target indicators of market self-sufficiency. (Barsukova, Dufy, 2016)

“Traditionally in Russia, when discussing food security, the issues of producing the required volume of food within the country are put first, rather than ensuring the population’s physical and economic access to food.” (Shagaida, Uzun, 2015, p. 6.)

So, one of the merits of the Doctrine is that it gave agrarian problems the status of national rather than sectoral ones. This added significance to the problems of the agricultural sector as a whole. However, despite the right message, correct wording and new proposals, unfortunately, no concrete actions followed.

The regulatory space turned out to be extremely insensitive to the innovations of the Doctrine: no new mechanisms for monitoring the quality of food products were presented, and no changes in social policy related to ensuring access to basic food products for vulnerable groups of the population followed. All active activities are mainly built around achieving the control and target indicators outlined in the Doctrine. (Barsukova, Dufy, 2016)

Food security of the Russian Federation. Doctrine of food security of the Russian Federation. Goals and objectives of food security

DOCTRINE FOOD SECURITY RUSSIAN FEDERATION

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