Childs et al. - 2009 - Factors behind the rise in global rice prices in 2
Childs et al. - 2009 - Factors behind the rise in global rice prices in 2
Childs et al. - 2009 - Factors behind the rise in global rice prices in 2
You also want an ePaper? Increase the reach of your titles
YUMPU automatically turns print PDFs into web optimized ePapers that Google loves.
United States<br />
Department<br />
of Agriculture<br />
RCS-09D-01<br />
May <strong>2009</strong><br />
A Report from <strong>the</strong> Economic Research Service<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Rise <strong>in</strong><br />
Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008<br />
www.ers.usda.gov<br />
Nathan <strong>Childs</strong><br />
nchilds@ers.usda.gov<br />
James Kiawu<br />
jkiawu@ers.usda.gov<br />
Contents<br />
Introduction . . . . . . . . . . . . . . . 2<br />
Both Long- and Short-Term<br />
<strong>Factors</strong> Caused <strong>the</strong> Increase<br />
<strong>in</strong> Rice P<strong>rice</strong>s . . . . . . . . . . . . . . . 4<br />
Export Bans and Restrictions<br />
Were Among Short-Term<br />
<strong>Factors</strong> . . . . . . . . . . . . . . . . . . . . 6<br />
Long-Term <strong>Factors</strong> Included<br />
High Income Growth<br />
<strong>in</strong> Asia . . . . . . . . . . . . . . . . . . . 16<br />
Conclusion . . . . . . . . . . . . . . . . 24<br />
References . . . . . . . . . . . . . . . . 25<br />
Approved by USDA’s<br />
World Agricultur<strong>al</strong><br />
Outlook Board<br />
Abstract<br />
Glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s rose to record highs <strong>in</strong> <strong>the</strong> spr<strong>in</strong>g of 2008, with trad<strong>in</strong>g p<strong>rice</strong>s<br />
tripl<strong>in</strong>g from November 2007 to late April 2008. The p<strong>rice</strong> <strong>in</strong>crease was not due to<br />
crop failure or a particularly tight glob<strong>al</strong> <strong>rice</strong> supply situation. Instead, trade restrictions<br />
by major suppliers, panic buy<strong>in</strong>g by sever<strong>al</strong> large importers, a weak dollar, and<br />
record oil p<strong>rice</strong>s were <strong>the</strong> immediate cause of <strong>the</strong> <strong>rise</strong> <strong>in</strong> <strong>rice</strong> p<strong>rice</strong>s. The 2007-08 <strong>rice</strong><br />
p<strong>rice</strong> <strong>in</strong>crease followed p<strong>rice</strong> spikes for major agricultur<strong>al</strong> commodities such as wheat,<br />
corn, and soybeans. The primary cause of <strong>the</strong> <strong>rise</strong> <strong>in</strong> p<strong>rice</strong>s for <strong>the</strong>se commodities from<br />
2006-08 was ris<strong>in</strong>g glob<strong>al</strong> <strong>in</strong>comes, di<strong>et</strong>ary changes, <strong>in</strong>creased use of biofuels, tight<br />
gra<strong>in</strong> supplies, and <strong>in</strong>creased participation <strong>in</strong> futures mark<strong>et</strong>s by nontradition<strong>al</strong> <strong>in</strong>vestors.<br />
Because <strong>rice</strong> is critic<strong>al</strong> to <strong>the</strong> di<strong>et</strong> of about h<strong>al</strong>f <strong>the</strong> world’s population, <strong>the</strong> rapid<br />
<strong>in</strong>crease <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s <strong>in</strong> late 2007 and early 2008 had a d<strong>et</strong>riment<strong>al</strong> impact on<br />
those <strong>rice</strong> consumers’ well-be<strong>in</strong>g. Although <strong>rice</strong> p<strong>rice</strong>s have dropped more than 40<br />
percent from <strong>the</strong>ir April 2008 highs, <strong>the</strong>y rema<strong>in</strong> well above pre-2007 levels.<br />
Keywords: Rice, <strong>rice</strong> p<strong>rice</strong>s, exports, biofuels, food <strong>in</strong>flation, trade restrictions, glob<strong>al</strong><br />
stocks, energy p<strong>rice</strong>s, futures mark<strong>et</strong>s, f<strong>in</strong>anci<strong>al</strong> crisis, glob<strong>al</strong> supply, food p<strong>rice</strong>s<br />
Acknowledgments<br />
The report was improved by <strong>in</strong>put from Eric Wailes, University of Arkansas; Bobby<br />
Coats, Arkansas Cooperative Extension Service; Mike S<strong>al</strong>assi, Louisiana State University;<br />
Bill Chambers, Farm Service Agency, USDA; and Andy Aaronson, World Agricultur<strong>al</strong><br />
Outlook Board, USDA. Speci<strong>al</strong> thanks go to ERS colleagues Ron Trostle and<br />
Paul Westcott for <strong>the</strong>ir substantive contributions. Priscilla Smith and Cynthia A. Ray<br />
provided editori<strong>al</strong> and design support.
Introduction<br />
In 2000/01, glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s—not adjusted for <strong>in</strong>flation—were <strong>the</strong> lowest<br />
s<strong>in</strong>ce <strong>the</strong> early 1970s, primarily due to a huge buildup <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> stocks <strong>in</strong><br />
<strong>the</strong> second h<strong>al</strong>f of <strong>the</strong> 1990s. Ch<strong>in</strong>a accounted for <strong>al</strong>most <strong>al</strong>l of <strong>the</strong> buildup<br />
<strong>in</strong> glob<strong>al</strong> <strong>rice</strong> stocks. Beg<strong>in</strong>n<strong>in</strong>g <strong>in</strong> 1999/2000, Ch<strong>in</strong>a implemented gra<strong>in</strong><br />
policies to reduce its excessive stocks. By early 2004, with glob<strong>al</strong> stocks at a<br />
more norm<strong>al</strong> level relative to use, glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s began to slowly <strong>in</strong>crease.<br />
Start<strong>in</strong>g <strong>in</strong> early 2006, glob<strong>al</strong> commodity p<strong>rice</strong>s, <strong>al</strong>ready mov<strong>in</strong>g upward,<br />
began ris<strong>in</strong>g at a faster pace as energy p<strong>rice</strong> <strong>in</strong>creases accelerated and<br />
<strong>the</strong> v<strong>al</strong>ue of <strong>the</strong> dollar began decl<strong>in</strong><strong>in</strong>g more quickly. However, <strong>rice</strong> p<strong>rice</strong><br />
<strong>in</strong>creases lagged <strong>beh<strong>in</strong>d</strong> p<strong>rice</strong> <strong>in</strong>creases for most o<strong>the</strong>r major agricultur<strong>al</strong><br />
commodities—primarily corn, wheat, and soybeans—and was <strong>the</strong> last of<br />
<strong>the</strong>se four major glob<strong>al</strong> agricultur<strong>al</strong> commodities to experience a p<strong>rice</strong><br />
<strong>in</strong>crease. From January 2006 to October 2007, glob<strong>al</strong> corn and wheat p<strong>rice</strong>s<br />
more than doubled, while <strong>rice</strong> p<strong>rice</strong>s <strong>in</strong>creased just 12 percent.<br />
In Asia, where 90 percent of glob<strong>al</strong> <strong>rice</strong> consumption occurs, a long-term<br />
shift to more diverse di<strong>et</strong>s among high- and middle-<strong>in</strong>come consumers has<br />
caused per capita <strong>rice</strong> consumption to decl<strong>in</strong>e. This decl<strong>in</strong>e slowed <strong>the</strong> pace<br />
of p<strong>rice</strong> <strong>in</strong>creases for <strong>rice</strong>. In contrast to <strong>rice</strong>, per capita meat and dairy<br />
consumption has been boosted by ris<strong>in</strong>g <strong>in</strong>comes <strong>in</strong> Asia. This change <strong>in</strong><br />
consumption contributed to <strong>the</strong> sharp <strong>rise</strong> <strong>in</strong> feed gra<strong>in</strong> and oilseed p<strong>rice</strong>s <strong>in</strong><br />
2006 and 2007. Addition<strong>al</strong>ly, growth <strong>in</strong> biofuels added to <strong>the</strong> boost <strong>in</strong> feed<br />
gra<strong>in</strong> and oilseed p<strong>rice</strong>s. For wheat—a major food gra<strong>in</strong>—adverse wea<strong>the</strong>r<br />
<strong>in</strong> sever<strong>al</strong> primary grow<strong>in</strong>g areas <strong>in</strong> 2006/07 and 2007/08 resulted <strong>in</strong> belownorm<strong>al</strong><br />
glob<strong>al</strong> production. The lower production levels contributed to <strong>the</strong><br />
sharp <strong>in</strong>crease <strong>in</strong> glob<strong>al</strong> wheat p<strong>rice</strong>s <strong>in</strong> 2007 and early 2008. Macroeconomic<br />
factors, such as <strong>the</strong> decl<strong>in</strong><strong>in</strong>g dollar and a shift of funds from equities and re<strong>al</strong><br />
estate <strong>in</strong>to commodities <strong>al</strong>so contributed to ris<strong>in</strong>g glob<strong>al</strong> commodity p<strong>rice</strong>s.<br />
Then, <strong>in</strong> late October 2007—follow<strong>in</strong>g trade restrictions implemented by<br />
Vi<strong>et</strong>nam and India, two major <strong>rice</strong>-export<strong>in</strong>g countries—<strong>rice</strong> p<strong>rice</strong>s began to<br />
move upward at a faster pace. By late December 2007, glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s had<br />
<strong>rise</strong>n 10 percent <strong>in</strong> just 2 months. U.S. and glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s rose sharply to<br />
record highs <strong>in</strong> <strong>the</strong> spr<strong>in</strong>g of 2008. Rice p<strong>rice</strong>s rose when <strong>the</strong> export restrictions<br />
were extended and addition<strong>al</strong> exporters, <strong>in</strong>clud<strong>in</strong>g Cambodia and Egypt,<br />
announced restrictions. Thailand’s high-qu<strong>al</strong>ity 100 Percent Grade B longgra<strong>in</strong><br />
milled <strong>rice</strong>—a benchmark for glob<strong>al</strong> trad<strong>in</strong>g p<strong>rice</strong>s—exceeded $1,000<br />
per ton <strong>in</strong> late April 2008, more than double <strong>the</strong> p<strong>rice</strong>s <strong>in</strong> early February and<br />
triple <strong>the</strong> p<strong>rice</strong>s of November 2007. U.S. p<strong>rice</strong>s soared as well, with U.S.<br />
long-gra<strong>in</strong> milled <strong>rice</strong> for export quoted at a record $948 per ton <strong>in</strong> late April<br />
2008, up more than $400 per ton from early February and more than double<br />
November 2007 p<strong>rice</strong>s. U.S. and glob<strong>al</strong> p<strong>rice</strong>s rema<strong>in</strong>ed at record levels for<br />
nearly a month before beg<strong>in</strong>n<strong>in</strong>g to decl<strong>in</strong>e (fig.1). Despite <strong>the</strong> decl<strong>in</strong>e, p<strong>rice</strong>s<br />
rema<strong>in</strong> well above pre-spike levels.<br />
After rema<strong>in</strong><strong>in</strong>g at record levels for about a month, glob<strong>al</strong> and U.S. <strong>rice</strong><br />
p<strong>rice</strong>s began to decl<strong>in</strong>e <strong>in</strong> late May and early June 2008, as panic buy<strong>in</strong>g<br />
ceased and Vi<strong>et</strong>nam announced it would resume mak<strong>in</strong>g commerci<strong>al</strong> s<strong>al</strong>es<br />
by <strong>the</strong> end of June. By mid-December 2008, Thailand’s trad<strong>in</strong>g p<strong>rice</strong>s had<br />
2<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Figure 1<br />
Thailand’s <strong>rice</strong> p<strong>rice</strong>s nearly tripled from November 2007 to May 2008<br />
Dollars/ton<br />
1,200<br />
1,000<br />
800<br />
600<br />
U.S. long-gra<strong>in</strong>, number 2, 4 percent<br />
400<br />
200<br />
Thailand’s 100 percent, grade B<br />
0<br />
Aug Aug Aug Aug Aug Aug Aug Aug Aug Aug Aug<br />
1998 99 2000 01 02 03 04 05 06 07 08<br />
Note: April <strong>2009</strong> p<strong>rice</strong>s are mid-month.<br />
Sources: Thailand’s p<strong>rice</strong> quotes, U.S. Embassy (Bangkok, Thailand) agricultur<strong>al</strong> counselor,<br />
Weekly Rice P<strong>rice</strong> Update; U.S. p<strong>rice</strong> quotes, Creed Rice Mark<strong>et</strong> Report.<br />
dropped more than 45 percent from <strong>the</strong> April-May records and U.S. p<strong>rice</strong>s<br />
had decl<strong>in</strong>ed about 33 percent. From late December 2008 through mid-March<br />
<strong>2009</strong>, Thailand’s p<strong>rice</strong>s streng<strong>the</strong>ned—largely due to government policies—<br />
while U.S. p<strong>rice</strong>s cont<strong>in</strong>ued to decl<strong>in</strong>e.<br />
Rice is critic<strong>al</strong> to <strong>the</strong> di<strong>et</strong> of about h<strong>al</strong>f <strong>the</strong> world’s population, so <strong>the</strong> rapid<br />
<strong>in</strong>crease <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s <strong>in</strong> late 2007 and early 2008 had a d<strong>et</strong>riment<strong>al</strong><br />
impact on those <strong>rice</strong> consumers’ well-be<strong>in</strong>g. The majority of <strong>the</strong>se <strong>rice</strong><br />
consumers live <strong>in</strong> develop<strong>in</strong>g countries, with many spend<strong>in</strong>g at least h<strong>al</strong>f of<br />
<strong>the</strong>ir <strong>in</strong>come on food. The sharp <strong>in</strong>crease <strong>in</strong> <strong>rice</strong> p<strong>rice</strong>s led to panic buy<strong>in</strong>g<br />
by importers, who feared even higher p<strong>rice</strong>s <strong>in</strong> <strong>the</strong> future, and contributed to<br />
food riots <strong>in</strong> develop<strong>in</strong>g countries across <strong>the</strong> globe.<br />
This report will:<br />
• look at <strong>the</strong> <strong>rice</strong> p<strong>rice</strong> <strong>in</strong>crease <strong>in</strong> relation to historic movements <strong>in</strong> <strong>rice</strong><br />
p<strong>rice</strong>s and to p<strong>rice</strong> movements for major traded crops<br />
• discuss <strong>the</strong> immediate factors that drove <strong>rice</strong> p<strong>rice</strong>s to record highs <strong>in</strong> late<br />
2007 and early 2008<br />
• look at <strong>the</strong> long-term factors that s<strong>et</strong> <strong>the</strong> stage for <strong>the</strong> <strong>rice</strong> p<strong>rice</strong> <strong>in</strong>creases<br />
• expla<strong>in</strong> <strong>the</strong> factors that are likely to keep <strong>rice</strong> p<strong>rice</strong>s dur<strong>in</strong>g <strong>the</strong> next<br />
decade at levels above those reported for 2000/01-2006/07<br />
• outl<strong>in</strong>e <strong>the</strong> effects of higher <strong>rice</strong> p<strong>rice</strong>s on consumer well-be<strong>in</strong>g <strong>in</strong> develop<strong>in</strong>g<br />
food-import<strong>in</strong>g countries<br />
• describe <strong>rice</strong> p<strong>rice</strong> movements s<strong>in</strong>ce <strong>the</strong> p<strong>rice</strong> spike<br />
• provide ideas for avoid<strong>in</strong>g p<strong>rice</strong> spikes <strong>in</strong> <strong>the</strong> future.<br />
3<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Both Long- and Short-Term <strong>Factors</strong><br />
Caused <strong>the</strong> Increase <strong>in</strong> Rice P<strong>rice</strong>s<br />
The rapid <strong>in</strong>crease <strong>in</strong> <strong>rice</strong> p<strong>rice</strong>s that occurred <strong>in</strong> late 2007 and early 2008<br />
was not due to poor harvests, an <strong>in</strong>crease <strong>in</strong> demand, or a tight glob<strong>al</strong> supply<br />
situation. In fact, glob<strong>al</strong> <strong>rice</strong> production <strong>in</strong> 2007/08 was <strong>the</strong> highest on<br />
record, and <strong>the</strong> 2008/09 glob<strong>al</strong> crop is estimated to be even larger. Tot<strong>al</strong> <strong>rice</strong><br />
supplies—<strong>al</strong>though not <strong>the</strong> highest on record—<strong>in</strong>creased <strong>in</strong> both years as<br />
well (fig. 2). In addition, glob<strong>al</strong> end<strong>in</strong>g stocks actu<strong>al</strong>ly <strong>in</strong>creased <strong>in</strong> 2007/08,<br />
and are projected to <strong>rise</strong> ano<strong>the</strong>r 10 percent <strong>in</strong> 2008/09.<br />
The 2007/08 glob<strong>al</strong> <strong>rice</strong> stocks-to-use ratio—a gener<strong>al</strong> <strong>in</strong>dicator of mark<strong>et</strong><br />
conditions—was 18.3 percent, up from a year earlier and <strong>the</strong> highest s<strong>in</strong>ce<br />
2003/04. The 2008/09 glob<strong>al</strong> stocks-to-use ratio is projected to <strong>in</strong>crease to<br />
<strong>al</strong>most 20 percent (fig. 3). For most importers and exporters, <strong>the</strong> stocks situation<br />
did not <strong>in</strong>dicate tight supplies. Among <strong>the</strong> major <strong>rice</strong> importers, only<br />
Bangladesh had an especi<strong>al</strong>ly tight supply situation <strong>in</strong> 2007/08, largely due to<br />
a crop shortf<strong>al</strong>l. In <strong>the</strong> Philipp<strong>in</strong>es, <strong>al</strong>though end<strong>in</strong>g <strong>rice</strong> stocks had decl<strong>in</strong>ed<br />
about 15 percent from <strong>the</strong> 2005/06 record, <strong>the</strong> 2007/08 stocks-to-use ratio<br />
was still <strong>al</strong>most 34 percent.<br />
Among exporters, India’s <strong>rice</strong> stocks rose 14 percent <strong>in</strong> 2007/08, <strong>in</strong>creas<strong>in</strong>g<br />
<strong>the</strong> stocks-to-use ratio more than 1 percentage po<strong>in</strong>t to 14.3 percent. India’s<br />
end<strong>in</strong>g stocks have <strong>in</strong>creased each year s<strong>in</strong>ce 2004/05, with a fur<strong>the</strong>r <strong>in</strong>crease<br />
projected for 2008/09. With record production <strong>in</strong> 2007/08, Vi<strong>et</strong>nam’s end<strong>in</strong>g<br />
stocks <strong>in</strong>creased 45 percent to a record 2 million tons, yield<strong>in</strong>g a stocks-touse<br />
ratio of 10.3 percent, <strong>the</strong> highest s<strong>in</strong>ce at least 1995/96 when USDA first<br />
reported stocks for Vi<strong>et</strong>nam. The stocks-to-use ratio for Thailand—which<br />
did not restrict exports—was 23 percent <strong>in</strong> 2007/08. Thailand’s end<strong>in</strong>g<br />
stocks have changed little over <strong>the</strong> last decade. Egypt’s end<strong>in</strong>g stocks of 0.67<br />
million tons were up 80 percent from a year earlier, yield<strong>in</strong>g a 14.0 percent<br />
stocks-to-use ratio, well above 11.3 percent a year earlier.<br />
Both short-term and long-term factors were responsible for <strong>the</strong> <strong>in</strong>crease <strong>in</strong><br />
glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s to record highs <strong>in</strong> <strong>the</strong> w<strong>in</strong>ter and spr<strong>in</strong>g of 2008. The shortterm<br />
(temporary) factors were:<br />
• temporary export bans and restrictions implemented by sever<strong>al</strong> major and<br />
mid-level <strong>rice</strong> exporters<br />
• panic buy<strong>in</strong>g by sever<strong>al</strong> large <strong>rice</strong> importers<br />
• wea<strong>the</strong>r-related problems <strong>in</strong> specific grow<strong>in</strong>g areas<br />
• a sharp decl<strong>in</strong>e <strong>in</strong> <strong>the</strong> v<strong>al</strong>ue of dollar <strong>in</strong> f<strong>al</strong>l 2007 and w<strong>in</strong>ter 2008<br />
• a shift of funds <strong>in</strong>to commodities from stocks and re<strong>al</strong> estate <strong>in</strong> 2007<br />
and early 2008 that added to p<strong>rice</strong> volatility and may have temporarily<br />
boosted p<strong>rice</strong>s.<br />
4<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Figure 2<br />
Glob<strong>al</strong> <strong>rice</strong> supplies have <strong>in</strong>creased each year s<strong>in</strong>ce 2005/06<br />
Million tons (milled)<br />
600<br />
Production<br />
500<br />
400<br />
300<br />
200<br />
100<br />
Carry<strong>in</strong><br />
0<br />
1980/81 85/86 90/91 95/96 2000/01 05/06 08/09<br />
2008/09 numbers are estimates.<br />
Source: USDA, Foreign Agricultur<strong>al</strong> Service, Production, Supply, and Distribution database,<br />
www.fas.usda.gov/psdonl<strong>in</strong>e/psdhome.aspx/.<br />
Figure 3<br />
Glob<strong>al</strong> <strong>rice</strong> end<strong>in</strong>g stocks are projected to <strong>in</strong>crease<br />
10 percent <strong>in</strong> 2008/09<br />
Million tons (milled basis)<br />
150<br />
125<br />
100<br />
75<br />
50<br />
25<br />
Stocks-to-use ratio<br />
End<strong>in</strong>g stocks<br />
0<br />
80/81 85/86 90/91 95/96 00/01 05/06<br />
2008/09 numbers are estimates.<br />
Source: USDA, Foreign Agricultur<strong>al</strong> Service, Production, Supply, and Distribution database,<br />
www.fas.usda.gov/psdonl<strong>in</strong>e/psdhome.aspx/.<br />
The long-term (more long-last<strong>in</strong>g) factors that s<strong>et</strong> <strong>the</strong> stage for <strong>the</strong> <strong>rice</strong> p<strong>rice</strong><br />
<strong>in</strong>crease <strong>in</strong>cluded:<br />
• sharply ris<strong>in</strong>g <strong>in</strong>comes <strong>in</strong> develop<strong>in</strong>g Asian countries<br />
• very high p<strong>rice</strong>s for o<strong>the</strong>r foods<br />
• extremely high nom<strong>in</strong><strong>al</strong> fuel and fertilizer p<strong>rice</strong>s<br />
• <strong>the</strong> elim<strong>in</strong>ation of excess glob<strong>al</strong> <strong>rice</strong> stocks<br />
• negligible yield growth for <strong>rice</strong> over <strong>the</strong> past decade<br />
• a massive <strong>in</strong>crease <strong>in</strong> <strong>the</strong> production of biofuels <strong>in</strong> recent years.<br />
0<br />
08/09<br />
These factors are expected to keep <strong>rice</strong> p<strong>rice</strong>s above 2000/01-2006/07 levels<br />
over <strong>the</strong> next decade.<br />
5<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA<br />
40<br />
35<br />
30<br />
25<br />
20<br />
15<br />
10<br />
5
Export Bans and Restrictions Were<br />
Among Short-Term <strong>Factors</strong><br />
Export bans, restrictions, and taxes implemented by sever<strong>al</strong> major <strong>rice</strong>export<strong>in</strong>g<br />
countries beg<strong>in</strong>n<strong>in</strong>g early <strong>in</strong> <strong>the</strong> f<strong>al</strong>l of 2007 were significant<br />
factors <strong>beh<strong>in</strong>d</strong> <strong>the</strong> <strong>rice</strong> p<strong>rice</strong> spike <strong>in</strong> <strong>the</strong> w<strong>in</strong>ter and spr<strong>in</strong>g of 2008. In late<br />
September 2007, Vi<strong>et</strong>nam—typic<strong>al</strong>ly <strong>the</strong> second-largest <strong>rice</strong>-export<strong>in</strong>g<br />
country—placed a ban on commerci<strong>al</strong> s<strong>al</strong>es. By mid-summer 2007, Vi<strong>et</strong>nam<br />
was <strong>al</strong>ready overcommitted for c<strong>al</strong>endar 2007 <strong>in</strong> <strong>the</strong> glob<strong>al</strong> export mark<strong>et</strong>.<br />
Addition<strong>al</strong> s<strong>al</strong>es by Vi<strong>et</strong>nam <strong>in</strong> 2007 would have reduced <strong>the</strong> amount of <strong>rice</strong><br />
available for its large domestic mark<strong>et</strong> to a level deemed by Vi<strong>et</strong>namese policymakers<br />
to be too low (see table 1 for a list of major exporters, concerns,<br />
and policy responses).<br />
Then, <strong>in</strong> early October 2007, fac<strong>in</strong>g rapidly ris<strong>in</strong>g food p<strong>rice</strong>s, India—<br />
typic<strong>al</strong>ly <strong>the</strong> third-largest <strong>rice</strong>-export<strong>in</strong>g country—announced a m<strong>in</strong>imum<br />
export p<strong>rice</strong> (MEP) for <strong>al</strong>l categories of <strong>rice</strong> except for its premium basmati<br />
<strong>rice</strong> (a high-qu<strong>al</strong>ity aromatic <strong>rice</strong>). India exports most of its basmati <strong>rice</strong>.<br />
Earlier that summer, except for parboiled <strong>rice</strong>, India was mak<strong>in</strong>g few s<strong>al</strong>es<br />
of non-basmati <strong>rice</strong>. At an <strong>in</strong>iti<strong>al</strong> $425 per ton, <strong>the</strong> MEP was an effective<br />
ban on non-basmati exports, which typic<strong>al</strong>ly account for about two-thirds of<br />
India’s tot<strong>al</strong> <strong>rice</strong> exports. India repeatedly raised its MEP <strong>in</strong> <strong>the</strong> f<strong>al</strong>l of 2007<br />
to restrict non-basmati exports.<br />
However, nei<strong>the</strong>r country tot<strong>al</strong>ly banned exports. Vi<strong>et</strong>nam cont<strong>in</strong>ued to <strong>al</strong>low<br />
government s<strong>al</strong>es to regular buyers—primarily <strong>the</strong> Philipp<strong>in</strong>es and Cuba. In<br />
addition to cont<strong>in</strong>ued s<strong>al</strong>es of its premium basmati <strong>rice</strong>, <strong>the</strong> Government of<br />
India <strong>al</strong>lowed exporters to sell large amounts of non-basmati <strong>rice</strong> to Bangladesh—typic<strong>al</strong>ly<br />
India’s largest export mark<strong>et</strong> for non-basmati <strong>rice</strong>—and to<br />
sell sm<strong>al</strong>ler amounts of non-basmati <strong>rice</strong> to certa<strong>in</strong> o<strong>the</strong>r food-deficit countries,<br />
mostly <strong>in</strong> Sub-Saharan Africa. Despite <strong>the</strong> porous nature of <strong>the</strong> export<br />
bans and restrictions, by November 2007 glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s—<strong>al</strong>ready ris<strong>in</strong>g<br />
<strong>al</strong>ong with p<strong>rice</strong>s of o<strong>the</strong>r commodities—began to <strong>in</strong>crease at a much faster<br />
pace as glob<strong>al</strong> exportable supplies tightened.<br />
Table 1<br />
Rice-export<strong>in</strong>g countries, concerns, and policy responses<br />
Country Concern Response<br />
Vi<strong>et</strong>nam Ris<strong>in</strong>g food p<strong>rice</strong>s Banned commerci<strong>al</strong> s<strong>al</strong>es<br />
India Ris<strong>in</strong>g food p<strong>rice</strong>s, tight supplies of wheat M<strong>in</strong>imum export p<strong>rice</strong> followed by a ban on non-basmati s<strong>al</strong>es<br />
Cambodia Ris<strong>in</strong>g food p<strong>rice</strong>s Banned exports<br />
Ch<strong>in</strong>a Ris<strong>in</strong>g food p<strong>rice</strong>s Elim<strong>in</strong>ated VAT 1 export rebate, <strong>in</strong>stituted an export tax<br />
Pakistan Ris<strong>in</strong>g food p<strong>rice</strong>s M<strong>in</strong>imum export p<strong>rice</strong><br />
Thailand Most private exporters h<strong>al</strong>ted mak<strong>in</strong>g new s<strong>al</strong>es Announced pen<strong>al</strong>ties for hoard<strong>in</strong>g<br />
Burma Damage from Cyclone Nargis Temporary export ban<br />
Austr<strong>al</strong>ia Prolonged drought Water restrictions sharply reduced <strong>rice</strong> acreage<br />
United<br />
States<br />
Increased demand for exports by some<br />
nontradition<strong>al</strong> buyers<br />
1 VAT = V<strong>al</strong>ue added tax.<br />
Source: USDA, Economic Research Service.<br />
No export restrictions<br />
6<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
In December 2007, Ch<strong>in</strong>a—<strong>the</strong> sixth-largest <strong>rice</strong>-export<strong>in</strong>g country—<br />
announced a 10-percent tax on <strong>rice</strong> exports and resc<strong>in</strong>ded a v<strong>al</strong>ue-added-tax<br />
rebate for <strong>rice</strong> exports. Despite <strong>the</strong>se restrictions, Ch<strong>in</strong>a cont<strong>in</strong>ued to export<br />
<strong>rice</strong> and make new s<strong>al</strong>es. Egypt—a mid-level exporter—announced a voluntary<br />
ban on <strong>rice</strong> exports <strong>in</strong> January 2008. Glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s <strong>in</strong>creased nearly<br />
30 percent from December 2007 through February 2008. The export restrictions<br />
were a major factor <strong>beh<strong>in</strong>d</strong> <strong>the</strong> rapid <strong>in</strong>crease <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s from<br />
late 2007 through <strong>the</strong> spr<strong>in</strong>g of 2008.<br />
Unlike Vi<strong>et</strong>nam and India, which export only long-gra<strong>in</strong> <strong>rice</strong>, Egypt ships<br />
<strong>al</strong>most exclusively medium- and short-gra<strong>in</strong> <strong>rice</strong>. Ch<strong>in</strong>a and <strong>the</strong> United States<br />
export long-, medium-, and short-gra<strong>in</strong> <strong>rice</strong>. Long-gra<strong>in</strong> accounts for about<br />
three-fourths of glob<strong>al</strong> <strong>rice</strong> trade. Fragrant <strong>rice</strong> and comb<strong>in</strong>ed medium- and<br />
short-gra<strong>in</strong> <strong>rice</strong> each account for 10-12 percent of glob<strong>al</strong> <strong>rice</strong> trade.<br />
In late March 2008, <strong>the</strong> pace of <strong>the</strong> <strong>rice</strong> p<strong>rice</strong> <strong>in</strong>crease accelerated when<br />
Vi<strong>et</strong>nam reimposed its ban on commerci<strong>al</strong> s<strong>al</strong>es from April through June,<br />
despite a bumper 2008 w<strong>in</strong>ter-spr<strong>in</strong>g harvest. Although <strong>the</strong> ban on commerci<strong>al</strong><br />
s<strong>al</strong>es was reimposed, <strong>the</strong> Government of Vi<strong>et</strong>nam cont<strong>in</strong>ued to make<br />
s<strong>al</strong>es. Also <strong>in</strong> late March 2008, India converted its MEP on non-basmati<br />
exports <strong>in</strong>to an outright export ban. In January <strong>2009</strong>, <strong>the</strong> Government of India<br />
announced it would <strong>al</strong>low limited s<strong>al</strong>es of non-basmati <strong>rice</strong> to four countries<br />
<strong>in</strong> Sub-Saharan Africa—Nigeria, Seneg<strong>al</strong>, Ghana and Cameroon—through<br />
<strong>the</strong> State Corporation of India. As of early April <strong>2009</strong>, restrictions on s<strong>al</strong>es of<br />
non-basmati to o<strong>the</strong>r mark<strong>et</strong>s rema<strong>in</strong> <strong>in</strong> effect.<br />
Three addition<strong>al</strong> exporters announced trade restrictions <strong>in</strong> early spr<strong>in</strong>g 2008<br />
as well, primarily <strong>in</strong> response to ris<strong>in</strong>g food p<strong>rice</strong>s. First, <strong>in</strong> late March, <strong>the</strong><br />
Government of Egypt changed its voluntary export ban to an offici<strong>al</strong> ban on<br />
s<strong>al</strong>es through October 2008. Then, <strong>in</strong> June, Egypt extended <strong>the</strong> ban until at<br />
least April <strong>2009</strong>. Second, <strong>the</strong> Government of Cambodia announced a ban on<br />
export s<strong>al</strong>es <strong>in</strong> late March 2008. However, <strong>the</strong> ban lasted less than 2 months.<br />
The Government of Cambodia <strong>al</strong>lowed some s<strong>al</strong>es to Vi<strong>et</strong>nam even when <strong>the</strong><br />
export ban was <strong>in</strong> effect. Cambodia is a sm<strong>al</strong>l-to-mid-sized exporter. Vi<strong>et</strong>nam<br />
purchases most of Cambodia’s <strong>rice</strong> exports, which are <strong>al</strong>l unmilled (or rough<strong>rice</strong>).<br />
The imported <strong>rice</strong> is milled <strong>in</strong> Vi<strong>et</strong>nam.<br />
F<strong>in</strong><strong>al</strong>ly, <strong>in</strong> late-April 2008, Pakistan—typic<strong>al</strong>ly <strong>the</strong> fifth-largest <strong>rice</strong>-export<strong>in</strong>g<br />
country—announced m<strong>in</strong>imum export p<strong>rice</strong>s for various types and grades of<br />
<strong>rice</strong>. However, Pakistan’s <strong>in</strong>iti<strong>al</strong> MEPs were below actu<strong>al</strong> trad<strong>in</strong>g p<strong>rice</strong>s, thus<br />
hav<strong>in</strong>g no impact on s<strong>al</strong>es. Despite a bumper harvest <strong>in</strong> 2007, Pakistan was<br />
unable to expand exports <strong>in</strong> early 2008, primarily due to logistic<strong>al</strong> problems.<br />
In August 2008, when Pakistan’s MEPs exceeded glob<strong>al</strong> trad<strong>in</strong>g p<strong>rice</strong>s which<br />
were decl<strong>in</strong><strong>in</strong>g, <strong>the</strong> government term<strong>in</strong>ated <strong>the</strong> MEPs.<br />
Thus, by early May 2008, among <strong>the</strong> top six glob<strong>al</strong> <strong>rice</strong> exporters only<br />
Thailand and <strong>the</strong> United States were not offici<strong>al</strong>ly restrict<strong>in</strong>g s<strong>al</strong>es. Despite<br />
adequate supplies and no restrictions, exporters <strong>in</strong> Thailand were mak<strong>in</strong>g few<br />
s<strong>al</strong>es, speculat<strong>in</strong>g that p<strong>rice</strong>s might <strong>rise</strong> even more. The Government of Thailand<br />
warned exporters not to hoard <strong>rice</strong> <strong>in</strong> anticipation of higher p<strong>rice</strong>s and<br />
announced sharp pen<strong>al</strong>ties for offenders.<br />
7<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
In addition to boost<strong>in</strong>g trad<strong>in</strong>g p<strong>rice</strong>s, <strong>the</strong> lack of s<strong>al</strong>es by <strong>the</strong> largest export<strong>in</strong>g<br />
country made p<strong>rice</strong> discovery—<strong>al</strong>ready difficult and costly <strong>in</strong> <strong>the</strong> th<strong>in</strong>ly traded<br />
glob<strong>al</strong> <strong>rice</strong> mark<strong>et</strong>—even more opaque and costly. U.S. <strong>rice</strong> exporters—with<br />
sever<strong>al</strong> of <strong>the</strong>ir comp<strong>et</strong>itors out of <strong>the</strong> mark<strong>et</strong>—picked up addition<strong>al</strong> s<strong>al</strong>es to<br />
<strong>the</strong> Middle East, Sub-Saharan Africa, Oceania, and Sou<strong>the</strong>ast Asia.<br />
Altog<strong>et</strong>her, <strong>the</strong> countries with effective export bans and restrictions <strong>in</strong> place<br />
typic<strong>al</strong>ly account for 33-40 percent of glob<strong>al</strong> <strong>rice</strong> exports. These exportprohibit<strong>in</strong>g<br />
policies had sever<strong>al</strong> harmful effects. First, <strong>the</strong>y drove trad<strong>in</strong>g<br />
p<strong>rice</strong>s—<strong>al</strong>ready on <strong>the</strong> <strong>rise</strong>—to record highs, which reduced trade and led to<br />
panic buy<strong>in</strong>g by major importers. The high p<strong>rice</strong>s <strong>al</strong>so reduced <strong>the</strong> purchas<strong>in</strong>g<br />
power of consumers, especi<strong>al</strong>ly <strong>in</strong> <strong>the</strong> poorest food-deficit countries. Second,<br />
<strong>in</strong> <strong>the</strong> export<strong>in</strong>g countries, <strong>the</strong> lack of s<strong>al</strong>es limited <strong>in</strong>creases <strong>in</strong> <strong>the</strong>ir domestic<br />
p<strong>rice</strong>s, <strong>the</strong>reby limit<strong>in</strong>g <strong>the</strong> economic <strong>in</strong>centives to pull more acreage <strong>in</strong>to <strong>rice</strong><br />
production. F<strong>in</strong><strong>al</strong>ly, <strong>rice</strong>-import<strong>in</strong>g countries—fac<strong>in</strong>g record high p<strong>rice</strong>s <strong>in</strong> <strong>the</strong><br />
glob<strong>al</strong> mark<strong>et</strong>—expanded <strong>the</strong> use of marg<strong>in</strong><strong>al</strong> lands and boosted <strong>in</strong>put use to<br />
<strong>in</strong>crease production to reduce import needs (fig. 4 and fig. 5).<br />
Export Bans and Restrictions Were Implemented<br />
To Control Ris<strong>in</strong>g Domestic Inflation<br />
The export bans, restrictions, and taxes were implemented to ensure affordable<br />
domestic p<strong>rice</strong>s for <strong>rice</strong>, a food staple <strong>in</strong> most of Asia. They were put<br />
<strong>in</strong>to place <strong>in</strong> an environment where ris<strong>in</strong>g p<strong>rice</strong>s—especi<strong>al</strong>ly for food—were<br />
erod<strong>in</strong>g <strong>the</strong> purchas<strong>in</strong>g power of consumers. Inflation rates were particularly<br />
high <strong>in</strong> Vi<strong>et</strong>nam, India, and Ch<strong>in</strong>a, <strong>the</strong> three fastest grow<strong>in</strong>g economies <strong>in</strong><br />
Asia, where food and fuel p<strong>rice</strong>s <strong>in</strong>creased at <strong>the</strong> fastest rates.<br />
In most of develop<strong>in</strong>g Asia, <strong>rice</strong> is a wage-good, primarily because it<br />
accounts for a large share of <strong>the</strong> di<strong>et</strong> of most consumers. So ris<strong>in</strong>g <strong>rice</strong> p<strong>rice</strong>s<br />
typic<strong>al</strong>ly lead to demands for higher wages, which fur<strong>the</strong>r boosts <strong>in</strong>flationary<br />
pressures. By bann<strong>in</strong>g or restrict<strong>in</strong>g <strong>rice</strong> exports, <strong>the</strong> governments were<br />
mak<strong>in</strong>g more <strong>rice</strong> available for <strong>the</strong> domestic mark<strong>et</strong> <strong>in</strong> an attempt to stabilize<br />
domestic food p<strong>rice</strong>s and limit over<strong>al</strong>l <strong>in</strong>flation rates.<br />
In India, <strong>the</strong> restrictions and ban on non-basmati <strong>rice</strong> exports were <strong>al</strong>so<br />
a response to large imports of wheat <strong>in</strong> 2006/07 and 2007/08. India was<br />
an exporter of wheat from 2000/01-2005/06, import<strong>in</strong>g very little wheat.<br />
However, with wheat crop shortf<strong>al</strong>ls <strong>in</strong> 2006/07 and 2007/08, <strong>the</strong> Government<br />
of India curtailed wheat exports and imported sever<strong>al</strong> million tons of<br />
wheat to me<strong>et</strong> domestic demand.<br />
By <strong>the</strong> f<strong>al</strong>l of 2007—when India began restrict<strong>in</strong>g <strong>rice</strong> exports—<strong>the</strong> government<br />
wanted to avoid import<strong>in</strong>g any more wheat, given <strong>the</strong> record high p<strong>rice</strong>s<br />
that <strong>in</strong>ternation<strong>al</strong>ly traded wheat reached that August. The Government<br />
of India, which purchased most of <strong>the</strong> imported wheat and subsidizes <strong>the</strong><br />
p<strong>rice</strong> of flour sold to its poorest consumers through its Public Distribution<br />
System, was concerned about ris<strong>in</strong>g government expenditures. In South Asia,<br />
consumers often shift b<strong>et</strong>ween wheat-based and <strong>rice</strong>-based products based<br />
on p<strong>rice</strong>s. This substitution is not common <strong>in</strong> most o<strong>the</strong>r parts of Asia. So,<br />
<strong>the</strong> reduction <strong>in</strong> domestic <strong>rice</strong> p<strong>rice</strong>s result<strong>in</strong>g from India’s ban on exports<br />
of non-basmati <strong>rice</strong> likely encouraged some consumers to shift from wheatbased<br />
foods to <strong>rice</strong>-based ones.<br />
8<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Figure 4<br />
Glob<strong>al</strong> <strong>rice</strong> trade dropped 8 percent <strong>in</strong> 2008;<br />
little growth projected <strong>in</strong> <strong>2009</strong><br />
Million tons (milled)<br />
35<br />
Major import<strong>in</strong>g regions<br />
30<br />
25<br />
20<br />
Asia<br />
Sub−Saharan Africa<br />
Lat<strong>in</strong> America<br />
Rest of world<br />
15<br />
10<br />
5<br />
0<br />
1992 93 94 95 96 97 98 99 00 01 02 03 04 05 06 07 08 09<br />
2008/09 numbers are estimates.<br />
Source: USDA, Foreign Agricultur<strong>al</strong> Service, Production, Supply, and Distribution database,<br />
www.fas.usda.gov/psdonl<strong>in</strong>e/psdhome.aspx/.<br />
Figure 5<br />
India’s <strong>rice</strong> exports have dropped sharply s<strong>in</strong>ce 2007<br />
Million tons (milled)<br />
10<br />
9<br />
8<br />
2007 2008 <strong>2009</strong><br />
7<br />
6<br />
5<br />
4<br />
3<br />
2<br />
1<br />
0<br />
Thailand Vi<strong>et</strong>nam India USA Pakistan<br />
2008 and <strong>2009</strong> numbers are estimates.<br />
Note: These 5 countries account for more than 80 percent of glob<strong>al</strong> <strong>rice</strong> exports.<br />
Source: USDA, Foreign Agricultur<strong>al</strong> Service, Production, Supply, and Distribution database,<br />
www.fas.usda.gov/psdonl<strong>in</strong>e/psdhome.aspx/.<br />
Also, major elections <strong>in</strong> India are scheduled for April-May <strong>2009</strong>, with <strong>the</strong><br />
government fully aware of <strong>the</strong> sensitivity of consumers to high food p<strong>rice</strong>s.<br />
While India has a substanti<strong>al</strong> and grow<strong>in</strong>g middle class, it is still home<br />
to sever<strong>al</strong> hundred million people earn<strong>in</strong>g $2 per day or less. For <strong>the</strong>se<br />
consumers, ris<strong>in</strong>g food p<strong>rice</strong>s—especi<strong>al</strong>ly for <strong>the</strong> gra<strong>in</strong>-based staples that<br />
are <strong>the</strong> bulk of <strong>the</strong>ir di<strong>et</strong>—can have a major d<strong>et</strong>riment<strong>al</strong> impact on <strong>the</strong>ir<br />
economic well-be<strong>in</strong>g.<br />
9<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Panic Buy<strong>in</strong>g by Major Importers<br />
Fur<strong>the</strong>r Boosted P<strong>rice</strong>s<br />
It was not just <strong>the</strong> exporters that were respond<strong>in</strong>g to <strong>the</strong> rapid <strong>rise</strong> <strong>in</strong> food<br />
p<strong>rice</strong>s. By early spr<strong>in</strong>g 2008, sever<strong>al</strong> major <strong>rice</strong> importers, primarily <strong>the</strong><br />
Philipp<strong>in</strong>es and big buyers <strong>in</strong> <strong>the</strong> Middle East and Africa, were <strong>in</strong> <strong>the</strong> mark<strong>et</strong><br />
for extremely large quantities of <strong>rice</strong>. They were attempt<strong>in</strong>g to lock <strong>in</strong> p<strong>rice</strong>s<br />
for sever<strong>al</strong> months of supplies before p<strong>rice</strong>s rose even fur<strong>the</strong>r <strong>in</strong> order to<br />
assure <strong>the</strong>ir consumers of adequate supplies, and dampen domestic food p<strong>rice</strong><br />
<strong>in</strong>creases (see table 2 for a list on major <strong>rice</strong> importers, domestic concerns,<br />
and policy responses).<br />
In mid-April 2008, <strong>the</strong> Government of <strong>the</strong> Philipp<strong>in</strong>es attempted to purchase<br />
about 500,000 tons of <strong>rice</strong>. The Philipp<strong>in</strong>es, <strong>the</strong> world’s largest <strong>rice</strong> importer,<br />
was unable to purchase such a huge amount and tried aga<strong>in</strong> <strong>in</strong> early May to<br />
buy an even larger amount (675,000 tons) on <strong>the</strong> glob<strong>al</strong> mark<strong>et</strong>. The Philipp<strong>in</strong>es<br />
withdrew <strong>the</strong> second tender after only one supplier responded.<br />
The governments of Nigeria, Bangladesh, and Iran were <strong>al</strong>so <strong>in</strong> <strong>the</strong> mark<strong>et</strong><br />
for major purchases <strong>in</strong> <strong>the</strong> spr<strong>in</strong>g of 2008. Each country was experienc<strong>in</strong>g<br />
substanti<strong>al</strong> <strong>in</strong>creases <strong>in</strong> food p<strong>rice</strong>s. These importers typic<strong>al</strong>ly spread <strong>the</strong>ir<br />
purchases of <strong>rice</strong> out more evenly over <strong>the</strong> year, reduc<strong>in</strong>g <strong>the</strong> impact on<br />
glob<strong>al</strong> p<strong>rice</strong>s. This panic buy<strong>in</strong>g by major buyers contributed to even faster<br />
p<strong>rice</strong> <strong>in</strong>creases. In Haiti, <strong>the</strong> prime m<strong>in</strong>ister was forced to resign over ris<strong>in</strong>g<br />
food p<strong>rice</strong>s.<br />
In early 2008, many countries experienced food riots caused by widespread<br />
anger over <strong>the</strong> rapid <strong>rise</strong> <strong>in</strong> food p<strong>rice</strong>s. Egypt had its most severe food riots<br />
s<strong>in</strong>ce <strong>the</strong> late 1970s. The Philipp<strong>in</strong>es, Bangladesh, and much of West Africa<br />
experienced substanti<strong>al</strong> food riots as well. For many of <strong>the</strong>se countries,<br />
enter<strong>in</strong>g <strong>the</strong> glob<strong>al</strong> mark<strong>et</strong> for large purchases of <strong>rice</strong> was seen as a viable<br />
means to c<strong>al</strong>m consumer concerns over food availability and to lower <strong>the</strong><br />
p<strong>rice</strong> of a critic<strong>al</strong> food staple.<br />
By late June 2008, <strong>the</strong> panic buy<strong>in</strong>g subsided. Early that month, Vi<strong>et</strong>nam<br />
and Thailand announced <strong>the</strong>y would make numerous <strong>rice</strong> s<strong>al</strong>es to <strong>the</strong> Philipp<strong>in</strong>es<br />
over <strong>the</strong> next sever<strong>al</strong> months. In late June, <strong>the</strong> Government of Japan<br />
Table 2<br />
Rice-import<strong>in</strong>g countries, concerns, and policy responses<br />
Country Concern Response<br />
Philipp<strong>in</strong>es Ris<strong>in</strong>g food p<strong>rice</strong>s, supply concerns “Panic” buy<strong>in</strong>g, record imports<br />
Mexico Ris<strong>in</strong>g food p<strong>rice</strong>s Elim<strong>in</strong>ated restrictions on non-U.S.-orig<strong>in</strong> <strong>rice</strong><br />
Nigeria Ris<strong>in</strong>g food p<strong>rice</strong>s Reduced import tariffs<br />
Bangladesh Crop damage from fl oods and Cyclone Sidr Reduce tariffs, boosted imports<br />
Iran Ris<strong>in</strong>g food p<strong>rice</strong>s, supply concerns Reduced tariffs<br />
Indonesia Ris<strong>in</strong>g food p<strong>rice</strong>s, supply concerns Reduced tariffs<br />
Ghana Ris<strong>in</strong>g food p<strong>rice</strong>s, supply concerns Reduced tariffs<br />
M<strong>al</strong>aysia Ris<strong>in</strong>g food p<strong>rice</strong>s, supply concerns P<strong>rice</strong> ceil<strong>in</strong>g on domestic s<strong>al</strong>es, boost imports<br />
Source: USDA, Economic Research Service.<br />
10<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
announced it would sell up to 200,000 tons of stored <strong>rice</strong> to <strong>the</strong> Philipp<strong>in</strong>es <strong>in</strong><br />
<strong>the</strong> com<strong>in</strong>g months. (As of early April <strong>2009</strong>, Japan had not sold any <strong>rice</strong> to <strong>the</strong><br />
Philipp<strong>in</strong>es.) Because of <strong>the</strong>se government-to-government commitments, by<br />
mid-summer 2008 <strong>the</strong> Philipp<strong>in</strong>es h<strong>al</strong>ted mak<strong>in</strong>g massive glob<strong>al</strong> tenders and<br />
announced it would spread its purchases out more evenly over <strong>the</strong> rest of <strong>the</strong><br />
year. The Philipp<strong>in</strong>es harvested a record crop <strong>in</strong> 2007/08 and <strong>the</strong> 2008/09 crop<br />
is estimated to be even larger. Although <strong>the</strong> Philipp<strong>in</strong>es has <strong>in</strong>creased <strong>rice</strong><br />
production <strong>al</strong>most 40 percent over <strong>the</strong> last decade, substanti<strong>al</strong> post-harvest<br />
losses due to spoilage and pests dur<strong>in</strong>g long-term storage <strong>in</strong> hot, humid conditions<br />
rema<strong>in</strong> a major problem for <strong>the</strong> <strong>rice</strong> sector <strong>in</strong> <strong>the</strong> Philipp<strong>in</strong>es.<br />
In addition to <strong>the</strong> panic buy<strong>in</strong>g, sever<strong>al</strong> major importers, <strong>in</strong>clud<strong>in</strong>g Nigeria,<br />
Bangladesh, Iran, Indonesia, and Ghana, lowered or sharply elim<strong>in</strong>ated tariffs<br />
on <strong>rice</strong> imports <strong>in</strong> early 2008 to boost supplies and moderate domestic foodp<strong>rice</strong><br />
<strong>in</strong>flation. In late March 2008, India authorized duty-free imports of<br />
<strong>rice</strong>. Despite elim<strong>in</strong>at<strong>in</strong>g tariffs on <strong>rice</strong>, India has not imported any <strong>rice</strong>. In<br />
April 2008, <strong>the</strong> Philipp<strong>in</strong>es lifted restrictions on commerci<strong>al</strong> <strong>rice</strong> imports,<br />
but ma<strong>in</strong>ta<strong>in</strong>ed its import tariff on government-purchased <strong>rice</strong>. Although <strong>the</strong><br />
United States supplies <strong>al</strong>most <strong>al</strong>l of Mexico’s imported <strong>rice</strong>, now duty-free<br />
under <strong>the</strong> terms of <strong>the</strong> North American Free Trade Agreement, <strong>the</strong> Government<br />
of Mexico opened a tariff-free 250,000-ton <strong>rice</strong> import quota for o<strong>the</strong>r<br />
suppliers <strong>in</strong> May 2008. However, to date, Mexico has not purchased <strong>rice</strong><br />
from any source o<strong>the</strong>r than <strong>the</strong> United States.<br />
Cyclone Damage <strong>in</strong> Bangladesh and Burma, Cold<br />
Snaps <strong>in</strong> Ch<strong>in</strong>a and Vi<strong>et</strong>nam Fueled P<strong>rice</strong> Increases<br />
Although glob<strong>al</strong> <strong>rice</strong> production <strong>in</strong> 2007/08 was <strong>the</strong> largest to date, isolated<br />
wea<strong>the</strong>r problems <strong>in</strong> some key grow<strong>in</strong>g areas contributed to <strong>the</strong> sharp <strong>rise</strong> <strong>in</strong><br />
p<strong>rice</strong>s <strong>in</strong> <strong>the</strong> w<strong>in</strong>ter and spr<strong>in</strong>g of 2008. First, and most importantly, severe<br />
flood<strong>in</strong>g dur<strong>in</strong>g <strong>the</strong> summer of 2007 and <strong>the</strong> effects of Cyclone Sidr <strong>in</strong> late<br />
December 2007 reduced Bangladesh’s 2007/08 crop more than 1 percent<br />
from a year earlier. These were major factors <strong>beh<strong>in</strong>d</strong> <strong>the</strong> threefold <strong>in</strong>crease<br />
<strong>in</strong> Bangladesh’s <strong>rice</strong> imports <strong>in</strong> c<strong>al</strong>endar year 2007 and <strong>the</strong> large purchases<br />
<strong>the</strong> country made <strong>in</strong> early 2008. Although Bangladesh has had substanti<strong>al</strong><br />
success <strong>in</strong> boost<strong>in</strong>g <strong>rice</strong> production over <strong>the</strong> last decade, mostly through<br />
higher yields, it rema<strong>in</strong>s a major importer. Bangladesh must harvest a record<br />
crop each year to avoid sharply <strong>in</strong>creas<strong>in</strong>g imports.<br />
Second, abnorm<strong>al</strong>ly cold wea<strong>the</strong>r <strong>in</strong> January and February 2008 <strong>in</strong> sou<strong>the</strong>rn<br />
Ch<strong>in</strong>a and nor<strong>the</strong>rn Vi<strong>et</strong>nam created concerns over potenti<strong>al</strong> crop losses <strong>in</strong><br />
<strong>the</strong>se two <strong>rice</strong>-export<strong>in</strong>g countries. Despite <strong>the</strong> severity of <strong>the</strong> cold snap,<br />
crop damage <strong>in</strong> both countries turned out to be m<strong>in</strong>im<strong>al</strong>. In Ch<strong>in</strong>a, <strong>the</strong> cold<br />
snap occurred prior to <strong>the</strong> plant<strong>in</strong>g of <strong>the</strong> early <strong>in</strong>dica (long-gra<strong>in</strong>) crop. In<br />
Vi<strong>et</strong>nam, <strong>the</strong> bulk of its w<strong>in</strong>ter-spr<strong>in</strong>g crop—harvested <strong>in</strong> March and April—<br />
is grown <strong>in</strong> <strong>the</strong> south. Although actu<strong>al</strong> crop damage <strong>in</strong> Ch<strong>in</strong>a and Vi<strong>et</strong>nam<br />
ended up to be very sm<strong>al</strong>l, <strong>in</strong>iti<strong>al</strong> concerns over effects of <strong>the</strong> cold snap likely<br />
fur<strong>the</strong>r boosted glob<strong>al</strong> trad<strong>in</strong>g p<strong>rice</strong>s last spr<strong>in</strong>g.<br />
Third, with<strong>in</strong> days of <strong>the</strong> glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong> spike <strong>in</strong> late April 2008, Cyclone<br />
Nargis struck sou<strong>the</strong>rn Burma <strong>in</strong> early May with devastat<strong>in</strong>g force. Although<br />
most of Burma’s 2007/08 crop was <strong>al</strong>ready harvested, a substanti<strong>al</strong> amount<br />
11<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
of stored <strong>rice</strong> was destroyed by <strong>the</strong> cyclone. In addition, <strong>the</strong> comb<strong>in</strong>ation of<br />
s<strong>al</strong>t-water <strong>in</strong>trusion, lack of seeds and o<strong>the</strong>r <strong>in</strong>puts, and severe <strong>in</strong>frastructure<br />
damage, is estimated to have reduced Burma’s 2008/09 production. The extent<br />
of <strong>the</strong> actu<strong>al</strong> crop damage and storage loss <strong>in</strong> Burma is still not fully known.<br />
Burma is a mid-level exporter, shipp<strong>in</strong>g 400,000-500,000 tons of low qu<strong>al</strong>ity<br />
long-gra<strong>in</strong> <strong>rice</strong> each year. The cyclone h<strong>al</strong>ted any addition<strong>al</strong> exports until <strong>the</strong><br />
f<strong>al</strong>l of 2008, temporarily reduc<strong>in</strong>g glob<strong>al</strong> exportable supplies. Burma even<br />
imported a sm<strong>al</strong>l amount of <strong>rice</strong>, mostly <strong>in</strong> <strong>the</strong> form of food aid. Burma’s<br />
domestic <strong>rice</strong> supplies have recovered significantly s<strong>in</strong>ce Cyclone Nargis hit<br />
<strong>in</strong> May 2008. The Government of Burma lifted its ban on <strong>rice</strong> exports, <strong>in</strong>stituted<br />
immediately after <strong>the</strong> cyclone, <strong>in</strong> September 2008 and <strong>in</strong> <strong>the</strong> follow<strong>in</strong>g<br />
months resumed <strong>rice</strong> exports of outstand<strong>in</strong>g s<strong>al</strong>es made prior to <strong>the</strong> cyclone.<br />
In October 2008, <strong>the</strong> ban on <strong>rice</strong> border trade with Ch<strong>in</strong>a, Bangladesh and<br />
Thailand was lifted as well.<br />
F<strong>in</strong><strong>al</strong>ly, Austr<strong>al</strong>ia’s 2007/08 <strong>rice</strong> crop (harvested <strong>in</strong> April-May 2008) was<br />
severely impacted by drought, virtu<strong>al</strong>ly tak<strong>in</strong>g this mid-level exporter of<br />
medium-gra<strong>in</strong> <strong>rice</strong> out of <strong>the</strong> glob<strong>al</strong> mark<strong>et</strong>. Austr<strong>al</strong>ia’s plant<strong>in</strong>gs and production<br />
<strong>in</strong> 2007/08 were <strong>the</strong> sm<strong>al</strong>lest <strong>in</strong> more than 70 years, a result of extremely<br />
low water-reservoir levels. Although Austr<strong>al</strong>ia <strong>in</strong>creased <strong>rice</strong> plant<strong>in</strong>gs <strong>in</strong><br />
20008/09, production will still be too sm<strong>al</strong>l for Austr<strong>al</strong>ia to export any significant<br />
amount of <strong>rice</strong>.<br />
Austr<strong>al</strong>ia has suffered from severe drought this century. In <strong>the</strong> 1990s,<br />
Austr<strong>al</strong>ia typic<strong>al</strong>ly exported 500,000-650,000 tons of <strong>rice</strong> a year, virtu<strong>al</strong>ly <strong>al</strong>l<br />
medium/short-gra<strong>in</strong>. S<strong>in</strong>ce Austr<strong>al</strong>ia’s 2007/08 crop was planted <strong>in</strong> October<br />
2007, <strong>the</strong> extremely sm<strong>al</strong>l harvest <strong>in</strong> April-May 2008 was likely <strong>al</strong>ready<br />
factored <strong>in</strong>to p<strong>rice</strong>s and buyers expectations regard<strong>in</strong>g available supplies <strong>in</strong><br />
2008 and likely had little impact on <strong>the</strong> 2008 p<strong>rice</strong> <strong>in</strong>crease.<br />
Decl<strong>in</strong><strong>in</strong>g V<strong>al</strong>ue of <strong>the</strong> U.S. Dollar<br />
Boosted Glob<strong>al</strong> Trad<strong>in</strong>g P<strong>rice</strong>s<br />
The sharp drop <strong>in</strong> <strong>the</strong> v<strong>al</strong>ue of <strong>the</strong> U.S. dollar <strong>in</strong> <strong>the</strong> f<strong>al</strong>l of 2007 and w<strong>in</strong>ter<br />
of 2008 was <strong>al</strong>so a major factor <strong>beh<strong>in</strong>d</strong> <strong>the</strong> <strong>rice</strong> p<strong>rice</strong> <strong>in</strong>ceases. Because <strong>the</strong><br />
bulk of <strong>rice</strong> traded glob<strong>al</strong>ly is bought and sold <strong>in</strong> U.S. dollars, when <strong>the</strong> v<strong>al</strong>ue<br />
of <strong>the</strong> dollar decl<strong>in</strong>es, traded p<strong>rice</strong>s for <strong>rice</strong> <strong>in</strong>crease. In addition, because<br />
<strong>the</strong> weaker U.S. dollar makes dollar-denom<strong>in</strong>ated traded goods cheaper <strong>in</strong><br />
foreign currencies, demand typic<strong>al</strong>ly <strong>in</strong>creases and this fur<strong>the</strong>r raises <strong>the</strong><br />
dollar-denom<strong>in</strong>ated trad<strong>in</strong>g p<strong>rice</strong>.<br />
The U.S. dollar began <strong>the</strong> 21st century virtu<strong>al</strong>ly on par with <strong>the</strong> euro, and<br />
by November 2000 <strong>the</strong> dollar was about 15 percent stronger than <strong>the</strong> euro.<br />
However, from December 2000 until early 2004, <strong>the</strong> dollar decl<strong>in</strong>ed <strong>in</strong> v<strong>al</strong>ue<br />
compared with euro. The dollar-euro relation was relatively stable from<br />
mid-2004 until mid-2006. But, beg<strong>in</strong>n<strong>in</strong>g <strong>in</strong> late 2006, <strong>the</strong> dollar began a<br />
steady f<strong>al</strong>l. The fastest rates of decl<strong>in</strong>e occurred <strong>in</strong> September-November<br />
2007 and <strong>in</strong> February-March 2008. In February and March 2008, <strong>the</strong> decl<strong>in</strong>e<br />
<strong>in</strong> <strong>the</strong> dollar was especi<strong>al</strong>ly sharp, reach<strong>in</strong>g an historic low compared with<br />
<strong>the</strong> euro by late March 2008. The dollar fur<strong>the</strong>r decl<strong>in</strong>ed <strong>in</strong> April 2008,<br />
reach<strong>in</strong>g a new low. This is exactly when glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s spiked. The dollar<br />
12<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
streng<strong>the</strong>ned slightly <strong>in</strong> May and June 2008, but decl<strong>in</strong>ed aga<strong>in</strong> to ano<strong>the</strong>r<br />
record low <strong>in</strong> relation to <strong>the</strong> euro <strong>in</strong> mid-July (fig. 6).<br />
In late July 2008, <strong>the</strong> dollar began to streng<strong>the</strong>n <strong>in</strong> relation to <strong>the</strong> euro, a<br />
period when glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s decl<strong>in</strong>ed. By late September 2008, <strong>the</strong> dollareuro<br />
relation was about <strong>the</strong> same as it had been <strong>in</strong> January and February, just<br />
prior to <strong>the</strong> 2008 <strong>rice</strong> p<strong>rice</strong> spike. In October 2008, <strong>the</strong> dollar rose sharply<br />
<strong>in</strong> relation to <strong>the</strong> euro, and by <strong>the</strong> end of <strong>the</strong> month was at its strongest level<br />
<strong>in</strong> 2 years, likely contribut<strong>in</strong>g to <strong>the</strong> substanti<strong>al</strong> decl<strong>in</strong>e <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s<br />
that month. The dollar fur<strong>the</strong>r streng<strong>the</strong>ned <strong>in</strong> November and December and<br />
<strong>rice</strong> p<strong>rice</strong>s decl<strong>in</strong>ed. The dollar’s streng<strong>the</strong>n<strong>in</strong>g <strong>in</strong> <strong>the</strong> late-summer and f<strong>al</strong>l<br />
of 2008 co<strong>in</strong>cided with <strong>the</strong> ons<strong>et</strong> and deepen<strong>in</strong>g of glob<strong>al</strong> f<strong>in</strong>anci<strong>al</strong> crisis. As<br />
<strong>the</strong> glob<strong>al</strong> liquidation deepened last f<strong>al</strong>l, <strong>in</strong>vestors steered back <strong>in</strong>to <strong>the</strong> U.S.<br />
dollar because of its safe haven status. Also, because many U.S. <strong>in</strong>vestors had<br />
exposure abroad, when <strong>the</strong>y cut <strong>the</strong>ir risky trades, <strong>the</strong>y repatriated <strong>the</strong>ir funds<br />
back <strong>in</strong>to U.S. dollars, boost<strong>in</strong>g <strong>the</strong> v<strong>al</strong>ue of <strong>the</strong> dollar.<br />
F<strong>in</strong>anci<strong>al</strong> Crisis, Speculation <strong>in</strong> Commodity Futures<br />
Mark<strong>et</strong>s Contributed to P<strong>rice</strong> Volatility<br />
Ano<strong>the</strong>r short-term factor that may have contributed to <strong>the</strong> <strong>rise</strong> <strong>in</strong> glob<strong>al</strong><br />
commodity p<strong>rice</strong>s <strong>in</strong> 2007 and early 2008 was <strong>the</strong> <strong>in</strong>creased <strong>in</strong>vestment <strong>in</strong><br />
commodity futures by hedge funds, pension f<strong>in</strong>ds, <strong>in</strong>dex funds, and sovereign<br />
we<strong>al</strong>th funds. Beg<strong>in</strong>n<strong>in</strong>g <strong>in</strong> 2006, <strong>the</strong>se nontradition<strong>al</strong> <strong>in</strong>vestors (or outside<br />
speculators) became more <strong>in</strong>volved <strong>in</strong> agricultur<strong>al</strong> commodity mark<strong>et</strong>s,<br />
as r<strong>et</strong>urns to equities and re<strong>al</strong> estate became less attractive and more risky<br />
(Trostle, 2008).<br />
In addition, destabiliz<strong>in</strong>g <strong>in</strong>fluences from f<strong>in</strong>anci<strong>al</strong> mark<strong>et</strong>s, <strong>in</strong>clud<strong>in</strong>g <strong>in</strong>discrim<strong>in</strong>ate<br />
lend<strong>in</strong>g and re<strong>al</strong> estate speculation, led to a f<strong>in</strong>anci<strong>al</strong> crisis <strong>in</strong> <strong>the</strong><br />
United States <strong>in</strong> early 2008, which <strong>al</strong>so encouraged greater <strong>in</strong>vestment <strong>in</strong><br />
food commodities. F<strong>in</strong>anci<strong>al</strong> speculators, seek<strong>in</strong>g quick r<strong>et</strong>urns and safer<br />
Figure 6<br />
The v<strong>al</strong>ue of <strong>the</strong> U.S. dollar dropped sharply from 2002 to early 2008<br />
Dollars/barrel (crude oil)<br />
140<br />
120<br />
100<br />
80<br />
Dollars per euro<br />
Dollars/euro<br />
1.40<br />
1.20<br />
1.00<br />
0.80<br />
60<br />
40<br />
20<br />
West Texas <strong>in</strong>termediate crude oil<br />
0.60<br />
0.40<br />
0.20<br />
0<br />
2000 01 02 03 04 05 06 07 08<br />
0<br />
Sources: Exchange rates, Pacific Exchange Rate Service, University of British Columbia,<br />
Saunder School of Bus<strong>in</strong>ess, http://fx.sauder.ubc.ca/data.html; Monthly crude oil p<strong>rice</strong>s,<br />
Economicmagic.com, www.economagic.com/em-cgi/data.exe/var/west-texas-crudelong#Data/.<br />
13<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
<strong>in</strong>vestments, removed trillions of dollars from equities and mortgage bonds,<br />
some of which was <strong>the</strong>n <strong>in</strong>vested <strong>in</strong>to food and raw materi<strong>al</strong>s (Timmer, <strong>2009</strong>).<br />
The <strong>in</strong>vestors <strong>in</strong> <strong>the</strong>se funds were not so much <strong>in</strong>terested <strong>in</strong> agricultur<strong>al</strong><br />
commodities as <strong>the</strong>y were <strong>in</strong> us<strong>in</strong>g commodities to diversify <strong>the</strong>ir f<strong>in</strong>anci<strong>al</strong><br />
portfolios, particularly to move out of stocks and <strong>the</strong> hous<strong>in</strong>g mark<strong>et</strong>. These<br />
funds held an <strong>in</strong>creas<strong>in</strong>gly large percentage of open <strong>in</strong>terest <strong>in</strong> <strong>the</strong> futures<br />
mark<strong>et</strong> for agricultur<strong>al</strong> commodities, as well as <strong>in</strong> nonagricultur<strong>al</strong> commodities<br />
such as m<strong>et</strong><strong>al</strong>s and energy. These <strong>in</strong>vestors only had a f<strong>in</strong>anci<strong>al</strong> <strong>in</strong>terest <strong>in</strong><br />
<strong>the</strong> mark<strong>et</strong>s and did not <strong>in</strong>tend to take delivery of <strong>the</strong> agricultur<strong>al</strong> commodities.<br />
When <strong>the</strong> average p<strong>rice</strong>s for corn, wheat, soybeans, and <strong>rice</strong> approached <strong>the</strong>ir<br />
peaks <strong>in</strong> <strong>the</strong> spr<strong>in</strong>g of 2008, <strong>the</strong> tot<strong>al</strong> open <strong>in</strong>terest on U.S. futures mark<strong>et</strong>s<br />
for each of <strong>the</strong>se commodities peaked. Also, <strong>the</strong> share of noncommerci<strong>al</strong> long<br />
positions, as a percent of tot<strong>al</strong> open <strong>in</strong>terest, peaked last spr<strong>in</strong>g as well. Then,<br />
as <strong>the</strong> mark<strong>et</strong> p<strong>rice</strong>s for <strong>the</strong>se crops decl<strong>in</strong>ed from late-spr<strong>in</strong>g 2008 through<br />
<strong>the</strong> f<strong>al</strong>l of 2008, tot<strong>al</strong> open <strong>in</strong>terest and noncommerci<strong>al</strong> long positions began<br />
to decl<strong>in</strong>e. Dur<strong>in</strong>g <strong>the</strong> second-h<strong>al</strong>f of 2008, nearly 70 percent of <strong>the</strong> noncommerci<strong>al</strong><br />
long positions were liquidated. In <strong>the</strong> first week of December 2008,<br />
noncommerci<strong>al</strong> long positions and mark<strong>et</strong> p<strong>rice</strong>s for crops both decl<strong>in</strong>ed<br />
(Chicago Trad<strong>in</strong>g Futures Corporation, 2008).<br />
The impact of outside speculators <strong>in</strong> commodity p<strong>rice</strong> formation has been<br />
debated for decades. A <strong>2009</strong> study by <strong>the</strong> Internation<strong>al</strong> Food Policy Research<br />
Institute statistic<strong>al</strong>ly tested wh<strong>et</strong>her speculative activity <strong>in</strong> <strong>the</strong> futures mark<strong>et</strong><br />
contributed to <strong>the</strong> sharp <strong>rise</strong> <strong>in</strong> agricultur<strong>al</strong> p<strong>rice</strong>s for corn, wheat, soybeans,<br />
and <strong>rice</strong> <strong>in</strong> 2007 and 2008. The results <strong>in</strong>dicated that speculative activities<br />
may have <strong>in</strong>fluenced p<strong>rice</strong>s, but <strong>the</strong> evidence was far from conclusive. Results<br />
varied by commodity, time, and causation factor exam<strong>in</strong>ed (Robles, <strong>2009</strong>).<br />
The movements <strong>in</strong> crop p<strong>rice</strong>s and futures mark<strong>et</strong> participation may be<br />
noth<strong>in</strong>g more than an <strong>in</strong>terest<strong>in</strong>g correlation. The l<strong>in</strong>ks b<strong>et</strong>ween f<strong>in</strong>anci<strong>al</strong><br />
mark<strong>et</strong>s and commodity mark<strong>et</strong>s are nei<strong>the</strong>r simple nor stable. Much more<br />
research is needed to understand <strong>the</strong> short-run and long-run l<strong>in</strong>kages b<strong>et</strong>ween<br />
f<strong>in</strong>anci<strong>al</strong> mark<strong>et</strong>s and agricultur<strong>al</strong> commodity mark<strong>et</strong>s (Timmer, <strong>2009</strong>).<br />
Historic<strong>al</strong>ly, <strong>in</strong>creased liquidity and depth <strong>in</strong> <strong>the</strong> commodity futures mark<strong>et</strong>s<br />
have been considered as forces of stability, and <strong>the</strong>refore have positive longterm<br />
impacts for users and sellers of gra<strong>in</strong>s (McPherson, 2008). This implies<br />
that <strong>the</strong> greater participation <strong>in</strong> futures mark<strong>et</strong>s by commerci<strong>al</strong> and noncommerci<strong>al</strong><br />
<strong>in</strong>vestors did not led to <strong>in</strong>efficiency. However, computerized trendfollow<strong>in</strong>g<br />
trad<strong>in</strong>g practices—<strong>in</strong>dex trad<strong>in</strong>g—employed by many of <strong>the</strong>se<br />
funds likely <strong>in</strong>creased <strong>the</strong> short-term volatility of agricultur<strong>al</strong> p<strong>rice</strong>s. Index<br />
traders gener<strong>al</strong>ly replicate a commodity <strong>in</strong>dex by establish<strong>in</strong>g long futures<br />
positions <strong>in</strong> a mix of commodity mark<strong>et</strong>s and <strong>the</strong>n roll<strong>in</strong>g <strong>the</strong>se positions<br />
forward from commodity future to commodity future us<strong>in</strong>g a fixed m<strong>et</strong>hodology.<br />
Hence, most of <strong>the</strong>se traders hold long-only positions (Trostle, 2008).<br />
For <strong>rice</strong>, <strong>the</strong> impact of <strong>in</strong>creased activity by nontradition<strong>al</strong> <strong>in</strong>vestors <strong>in</strong> <strong>the</strong><br />
futures mark<strong>et</strong> on p<strong>rice</strong> is even less clear than for o<strong>the</strong>r major agricultur<strong>al</strong><br />
commodities such as corn, wheat, and soybeans. Sever<strong>al</strong> factors account for<br />
this greater ambiguity. First, <strong>the</strong> <strong>rice</strong> futures mark<strong>et</strong> is quite sm<strong>al</strong>l compared<br />
with futures’ mark<strong>et</strong>s for major U.S. agricultur<strong>al</strong> commodities such as corn,<br />
14<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
wheat, and soybeans. The <strong>rice</strong> futures mark<strong>et</strong> is described as th<strong>in</strong>—as only<br />
a sm<strong>al</strong>l share of production and use is actu<strong>al</strong>ly traded <strong>in</strong> futures mark<strong>et</strong>s.<br />
F<strong>in</strong>anci<strong>al</strong> speculation likely played no or only a sm<strong>al</strong>l role <strong>in</strong> <strong>the</strong> <strong>in</strong>crease <strong>in</strong><br />
<strong>rice</strong> p<strong>rice</strong>s <strong>in</strong> late 2007 and early 2008, partly due to <strong>the</strong> th<strong>in</strong>ness of <strong>the</strong> <strong>rice</strong><br />
futures mark<strong>et</strong> (Timmer, <strong>2009</strong>).<br />
Also, most types of <strong>rice</strong>—which is a commodity highly differentiated<br />
product—are not traded on <strong>the</strong> futures mark<strong>et</strong> at <strong>al</strong>l. In fact, <strong>in</strong> <strong>the</strong> United<br />
States, <strong>the</strong>re is a futures mark<strong>et</strong> only for long-gra<strong>in</strong> rough <strong>rice</strong> <strong>in</strong> <strong>the</strong> South<br />
(Wright, <strong>2009</strong>). Thus, while <strong>the</strong>re may have been an <strong>in</strong>fluence on some<br />
commodity p<strong>rice</strong>s and <strong>the</strong>ir volatility, for <strong>rice</strong> <strong>the</strong> impact of nontradition<strong>al</strong><br />
<strong>in</strong>vestors is less apparent.<br />
However, despite <strong>the</strong> fact that <strong>the</strong> U.S. <strong>rice</strong> futures mark<strong>et</strong> is quite th<strong>in</strong> and<br />
exists only for long-gra<strong>in</strong> rough <strong>rice</strong> <strong>in</strong> <strong>the</strong> South, many contracts by mills to<br />
purchase <strong>rice</strong> from farmers are based on <strong>the</strong> futures p<strong>rice</strong>. A greater understand<strong>in</strong>g<br />
<strong>the</strong> impact of nontradition<strong>al</strong> <strong>in</strong>vestors on <strong>the</strong> agricultur<strong>al</strong> commodity<br />
mark<strong>et</strong>s would likely be useful to policymakers and mark<strong>et</strong> participants.<br />
15<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Long-Term <strong>Factors</strong> Included<br />
High Income Growth <strong>in</strong> Asia<br />
Rapid p<strong>rice</strong> <strong>in</strong>flation is a major concern across develop<strong>in</strong>g Asia, with foodp<strong>rice</strong><br />
<strong>in</strong>flation particularly important. Food commodity p<strong>rice</strong>s rose sharply<br />
from early 2007 to early 2008. The food commodity p<strong>rice</strong> <strong>in</strong>dex compiled by<br />
<strong>the</strong> United Nations Food and Agriculture Organization—which tracks glob<strong>al</strong><br />
p<strong>rice</strong>s for 55 food commodities—jumped more than 50 percent <strong>in</strong> April 2008<br />
from a year earlier (fig. 7).<br />
An important long-term factor <strong>beh<strong>in</strong>d</strong> <strong>the</strong> rapid food p<strong>rice</strong> <strong>in</strong>flation was<br />
ris<strong>in</strong>g <strong>in</strong>comes <strong>in</strong> much of develop<strong>in</strong>g Asia, which accounts for about h<strong>al</strong>f<br />
<strong>the</strong> world’s population. This has <strong>al</strong>lowed consumers to shift from primarily<br />
low-p<strong>rice</strong>d tradition<strong>al</strong> gra<strong>in</strong>-based di<strong>et</strong>s to more diverse but higher p<strong>rice</strong>d<br />
di<strong>et</strong>s that <strong>in</strong>clude more meats, fish, dairy products, fruits, and veg<strong>et</strong>ables. The<br />
big <strong>in</strong>crease <strong>in</strong> consumption of <strong>the</strong>se higher p<strong>rice</strong>d foods by a large share of<br />
Asia’s population has had a major impact on glob<strong>al</strong> food-p<strong>rice</strong> <strong>in</strong>flation.<br />
Because food accounts for a large share of consumers’ expenditures <strong>in</strong> develop<strong>in</strong>g<br />
Asia, rapidly ris<strong>in</strong>g food costs have a major impact on region<strong>al</strong> <strong>in</strong>flation<br />
rates. In <strong>the</strong> United States, food accounts for only about 10 percent of an<br />
average consumer’s annu<strong>al</strong> expenditures. So ris<strong>in</strong>g food p<strong>rice</strong>s have a much<br />
sm<strong>al</strong>ler impact on <strong>the</strong> over<strong>al</strong>l U.S. <strong>in</strong>flation rate than <strong>in</strong> develop<strong>in</strong>g Asia.<br />
This sharp <strong>rise</strong> <strong>in</strong> demand for meat and dairy products across develop<strong>in</strong>g Asia<br />
raised p<strong>rice</strong>s for feed gra<strong>in</strong>s and oilseeds, both heavily used <strong>in</strong> anim<strong>al</strong> feeds.<br />
With p<strong>rice</strong>s for corn and soybeans on <strong>the</strong> <strong>rise</strong>, any <strong>in</strong>crease <strong>in</strong> food gra<strong>in</strong><br />
acreage—with wheat and <strong>rice</strong> be<strong>in</strong>g <strong>the</strong> dom<strong>in</strong>ant food gra<strong>in</strong>s worldwide—<br />
was limited. This was especi<strong>al</strong>ly true <strong>in</strong> <strong>the</strong> sou<strong>the</strong>rn United States and<br />
sou<strong>the</strong>rn areas of South America, where <strong>rice</strong> often comp<strong>et</strong>es for acreage with<br />
soybeans and—to a lesser extent—with feed gra<strong>in</strong>s.<br />
Figure 7<br />
FAO food commodity p<strong>rice</strong> <strong>in</strong>dex <strong>in</strong>creased <strong>al</strong>most 50 percent<br />
from April 2007 to April 2008<br />
Index 1998-2000=100 1<br />
250<br />
200<br />
150<br />
100<br />
50<br />
0<br />
Jan. 07 Apr. 07 Jul. 07 Oct. 07 Jan. 08 Apr. 08 Jul. 08 Oct. 08<br />
1 Export-weighted p<strong>rice</strong> <strong>in</strong>dex of 55 commodities, 1998-2000 = 100.<br />
Source: United Nations, Food and Agricultur<strong>al</strong> Organization, www.fao.org/.<br />
16<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Develop<strong>in</strong>g Asia is likely to see cont<strong>in</strong>ued strong <strong>in</strong>come growth over <strong>the</strong><br />
next decade, despite a recent slowdown from record levels. This will cont<strong>in</strong>ue<br />
to push more consumers <strong>in</strong>to <strong>the</strong> middle class. Thus, glob<strong>al</strong> food p<strong>rice</strong>s will<br />
cont<strong>in</strong>ue to be supported by <strong>the</strong> strong worldwide demand for feeds largely<br />
driven by di<strong>et</strong> diversification <strong>in</strong> Asia. Although <strong>rice</strong> is an <strong>in</strong>ferior good <strong>in</strong><br />
much of Asia, <strong>rice</strong> p<strong>rice</strong>s will cont<strong>in</strong>ue to be pressured by higher over<strong>al</strong>l food<br />
p<strong>rice</strong>s and strong comp<strong>et</strong>ition for land.<br />
High Oil P<strong>rice</strong>s, Increased Biofuels’ Production<br />
Contributed to Higher Food and Feed P<strong>rice</strong>s<br />
Ris<strong>in</strong>g oil p<strong>rice</strong>s b<strong>et</strong>ween 2002 and 2007 contributed to <strong>the</strong> conditions that<br />
resulted <strong>in</strong> <strong>the</strong> 2008 <strong>in</strong>crease <strong>in</strong> <strong>rice</strong> p<strong>rice</strong>s. High oil p<strong>rice</strong>s impact nearly<br />
every aspect of farm<strong>in</strong>g—production, process<strong>in</strong>g, mark<strong>et</strong><strong>in</strong>g, and transportation.<br />
Worldwide, <strong>rice</strong> growers are disproportionately hurt by <strong>the</strong> high fuel<br />
p<strong>rice</strong>s because irrigation pumps typic<strong>al</strong>ly run on diesel. In addition, <strong>in</strong> most<br />
countries—especi<strong>al</strong>ly <strong>in</strong> East Asia—<strong>rice</strong> growers use a substanti<strong>al</strong> amount<br />
of fertilizer, which is necessary to achieve <strong>the</strong> high yields associated with <strong>the</strong><br />
modern vari<strong>et</strong>ies. Because modern fertilizers are p<strong>et</strong>roleum-based, high oil<br />
p<strong>rice</strong>s boost fertilizer p<strong>rice</strong>s.<br />
Also, because most develop<strong>in</strong>g Asian countries subsidize fuel and fertilizer<br />
p<strong>rice</strong>s for farmers, producers typic<strong>al</strong>ly do not reduce <strong>the</strong>ir use of <strong>the</strong>se <strong>in</strong>puts<br />
<strong>in</strong> <strong>the</strong> face of ris<strong>in</strong>g glob<strong>al</strong> p<strong>rice</strong>s for fuel and fertilizer. This fur<strong>the</strong>r boosts<br />
<strong>in</strong>put p<strong>rice</strong>s s<strong>in</strong>ce Asia is a big importer of both oil and fertilizer.<br />
High oil p<strong>rice</strong>s sharply boosted transportation costs as well. The comb<strong>in</strong>ation<br />
of high oil p<strong>rice</strong>s and a backlog <strong>in</strong> glob<strong>al</strong> shipbuild<strong>in</strong>g fur<strong>the</strong>r raised trad<strong>in</strong>g<br />
p<strong>rice</strong>s and reduced glob<strong>al</strong> <strong>rice</strong> trade (until ships currently be<strong>in</strong>g constructed<br />
are available). From December 2005 until March 2008, glob<strong>al</strong> freight rates<br />
nearly tripled. High transportation costs may encourage import<strong>in</strong>g countries<br />
to provide <strong>in</strong>centives and subsidies for <strong>the</strong>ir producers to expanded production<br />
to avoid or reduce imports. Over <strong>the</strong> long-term, if high fuel p<strong>rice</strong>s reduce<br />
trade growth, <strong>the</strong>n <strong>the</strong> share of <strong>the</strong> glob<strong>al</strong> <strong>rice</strong> production produced by <strong>the</strong><br />
low-cost Asian exporters will decl<strong>in</strong>e and <strong>the</strong> share produced by importers<br />
with higher production costs will <strong>in</strong>crease.<br />
Oil p<strong>rice</strong>s began a long-term <strong>in</strong>crease <strong>in</strong> early 2002, after dropp<strong>in</strong>g below<br />
$20 per barrel <strong>in</strong> late 2001. The rate of p<strong>rice</strong> <strong>in</strong>crease was ra<strong>the</strong>r modest<br />
until August 2005, when oil p<strong>rice</strong>s began to <strong>in</strong>crease sharply, partly due to<br />
<strong>the</strong> effects of two severe hurricanes that struck <strong>the</strong> U.S. Gulf Coast late that<br />
summer and early f<strong>al</strong>l. After nearly stabiliz<strong>in</strong>g for <strong>al</strong>most a year, oil p<strong>rice</strong>s<br />
began to <strong>in</strong>crease at a rapid pace <strong>in</strong> summer 2007. By March 2008, p<strong>rice</strong>s<br />
exceeded $100 per barrel for <strong>the</strong> first time. This was <strong>the</strong> same time that glob<strong>al</strong><br />
and U.S. <strong>rice</strong> p<strong>rice</strong>s were spik<strong>in</strong>g. Oil p<strong>rice</strong>s reached record levels <strong>in</strong> July<br />
2008—with some spot p<strong>rice</strong>s quoted at more than $150 per barrel (fig. 6).<br />
Much of <strong>the</strong> p<strong>rice</strong> <strong>in</strong>crease for oil was due to strong demand from develop<strong>in</strong>g<br />
Asian countries, especi<strong>al</strong>ly Ch<strong>in</strong>a and India. In contrast, previous oil p<strong>rice</strong><br />
spikes were relatively short-term, primarily driven by supply shocks, often<br />
caused by politic<strong>al</strong> turmoil <strong>in</strong> <strong>the</strong> Middle East. Although economic growth <strong>in</strong><br />
<strong>the</strong> develop<strong>in</strong>g Asian nations has slowed from recent record rates—and has<br />
17<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
contributed to <strong>the</strong> decl<strong>in</strong>e <strong>in</strong> oil p<strong>rice</strong>s s<strong>in</strong>ce late July—<strong>in</strong>come growth still<br />
rema<strong>in</strong>s at historic<strong>al</strong>ly high rate for most of those countries, and is expected<br />
to resume stronger growth over <strong>the</strong> next decade.<br />
The recent big <strong>in</strong>crease <strong>in</strong> <strong>the</strong> use of corn and oilseeds <strong>in</strong> biofuels has fur<strong>the</strong>r<br />
raised p<strong>rice</strong>s for <strong>the</strong>se commodities and has diverted use of <strong>the</strong>se crops<br />
away from feed use. Because feed is a major <strong>in</strong>put <strong>in</strong> livestock production,<br />
<strong>the</strong> expanded use of corn <strong>in</strong> <strong>et</strong>hanol has pushed feed costs higher, reduc<strong>in</strong>g<br />
profits for livestock operations, caus<strong>in</strong>g livestock production to decl<strong>in</strong>e, and<br />
thus push<strong>in</strong>g meat and dairy p<strong>rice</strong>s higher. In addition, <strong>the</strong> higher feed and<br />
oilseed p<strong>rice</strong>s gave sign<strong>al</strong>s to growers worldwide to shift <strong>the</strong>ir grow<strong>in</strong>g area<br />
to corn and oilseeds for fuel use, and away from food gra<strong>in</strong>s.<br />
In <strong>the</strong> U.S., about 30 percent of <strong>the</strong> 2008/09 corn crop is expected to be used<br />
for <strong>et</strong>hanol, up from just 10 percent <strong>in</strong> 2002/03. Rice is not grown for fuel<br />
use. Expanded corn acreage <strong>in</strong> 2007 <strong>in</strong> <strong>the</strong> Mississippi Delta likely reduced<br />
<strong>rice</strong> acreage, a factor <strong>beh<strong>in</strong>d</strong> <strong>the</strong> <strong>in</strong>creas<strong>in</strong>g U.S. <strong>rice</strong> p<strong>rice</strong>s <strong>in</strong> 2007/08. In<br />
2008, expanded soybean acreage <strong>in</strong> <strong>the</strong> Mississippi Delta limited <strong>the</strong> <strong>in</strong>crease<br />
<strong>in</strong> <strong>rice</strong> acreage, despite record high U.S. <strong>rice</strong> p<strong>rice</strong>s at plant<strong>in</strong>g. This comp<strong>et</strong>ition<br />
for land for fuel, food, and feed crops is expected to cont<strong>in</strong>ue.<br />
Remov<strong>al</strong> of Excess Glob<strong>al</strong> Rice Stocks<br />
Elim<strong>in</strong>ated P<strong>rice</strong> Cushion<br />
When <strong>the</strong> <strong>rice</strong> p<strong>rice</strong>s <strong>in</strong>creased <strong>in</strong> <strong>the</strong> spr<strong>in</strong>g of 2008, glob<strong>al</strong> end<strong>in</strong>g stocks of<br />
<strong>rice</strong> stocks were sharply lower than <strong>the</strong> record levels accumulated <strong>in</strong> 2000/01.<br />
In fact, at 78.5 million tons, end<strong>in</strong>g stocks <strong>in</strong> 2007/08 were just slightly more<br />
than h<strong>al</strong>f those carried 7 years earlier. At <strong>the</strong> turn of <strong>the</strong> 21st century, glob<strong>al</strong><br />
<strong>rice</strong> stocks were excessive, with a stocks-to-use ratio exceed<strong>in</strong>g 37 percent.<br />
Although glob<strong>al</strong> end<strong>in</strong>g stocks of <strong>rice</strong> decl<strong>in</strong>ed 50 percent from 2000/01 to<br />
2004/05, stocks began <strong>in</strong>creas<strong>in</strong>g <strong>in</strong> 2005/06 and had <strong>in</strong>creased more than 7<br />
percent by 2007/08.<br />
In previous p<strong>rice</strong> spikes—1987/88, 1993/94, and 1997/98—large glob<strong>al</strong><br />
stocks limited <strong>the</strong> level and duration of <strong>the</strong> p<strong>rice</strong> <strong>in</strong>crease caused by adverse<br />
wea<strong>the</strong>r. In 2007/08, this cushion did not exist <strong>in</strong> <strong>the</strong> major export<strong>in</strong>g countries,<br />
a factor that partly contributed to <strong>the</strong> large size of <strong>the</strong> p<strong>rice</strong> spike (fig. 3).<br />
Glob<strong>al</strong> <strong>rice</strong> stocks began to sharply <strong>in</strong>crease <strong>in</strong> 1983/84, expand<strong>in</strong>g 22 percent<br />
that year. Stocks cont<strong>in</strong>ued to <strong>in</strong>crease over <strong>the</strong> next 17 years, reach<strong>in</strong>g a<br />
record 146.7 million tons <strong>in</strong> 2000/01 and account<strong>in</strong>g for a record 37 percent<br />
of tot<strong>al</strong> disappearance. Ch<strong>in</strong>a—<strong>the</strong> world’s largest producer and consumer of<br />
<strong>rice</strong>—accounted for most of <strong>the</strong> buildup <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> stocks. Glob<strong>al</strong> stocks<br />
actu<strong>al</strong>ly decl<strong>in</strong>ed <strong>in</strong> 1993/94 and 1994/95, mostly due to sm<strong>al</strong>ler production <strong>in</strong><br />
Ch<strong>in</strong>a. From 1995/96 to 2000/01, <strong>the</strong> buildup <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> stocks was especi<strong>al</strong>ly<br />
strong, with Ch<strong>in</strong>a account<strong>in</strong>g for nearly <strong>al</strong>l of <strong>the</strong> buildup.<br />
Ch<strong>in</strong>a’s gra<strong>in</strong> policy <strong>in</strong> <strong>the</strong> second h<strong>al</strong>f of <strong>the</strong> 1990s was designed to promote<br />
production and <strong>al</strong>low Ch<strong>in</strong>a to rema<strong>in</strong> virtu<strong>al</strong>ly self-sufficient <strong>in</strong> <strong>rice</strong>. In addition<br />
to expanded production, decl<strong>in</strong><strong>in</strong>g per capita disappearance supported<br />
<strong>the</strong> buildup <strong>in</strong> stocks <strong>in</strong> Ch<strong>in</strong>a <strong>in</strong> <strong>the</strong> second h<strong>al</strong>f of <strong>the</strong> 1990s. By <strong>the</strong> end of<br />
<strong>the</strong> 1990s, with its <strong>rice</strong> stocks <strong>the</strong> highest on record, Ch<strong>in</strong>a reversed its gra<strong>in</strong>s<br />
policy to discourage production and reduce excess stocks.<br />
18<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
In early 2004, with glob<strong>al</strong> stocks at a more norm<strong>al</strong> level, Ch<strong>in</strong>a’s policy was<br />
no longer aimed at reduc<strong>in</strong>g stocks. For 2004/05, <strong>the</strong> Government of Ch<strong>in</strong>a<br />
encouraged farmers to expand <strong>rice</strong> area, and by 2007/08 Ch<strong>in</strong>a stocks began<br />
to <strong>in</strong>crease aga<strong>in</strong>.<br />
When a weak monsoon <strong>in</strong> 1987 cut India’s crop by 6 percent, trad<strong>in</strong>g p<strong>rice</strong>s<br />
<strong>in</strong>creased 50 percent from September 1987 to February 1988. But by March<br />
1988, p<strong>rice</strong>s were on <strong>the</strong> descent and decl<strong>in</strong>ed <strong>al</strong>l spr<strong>in</strong>g. In 1987/88, glob<strong>al</strong><br />
beg<strong>in</strong>n<strong>in</strong>g stocks exceeded 103 million tons, up 5.6 million from a year earlier.<br />
The <strong>in</strong>crease <strong>in</strong> beg<strong>in</strong>n<strong>in</strong>g stocks virtu<strong>al</strong>ly offs<strong>et</strong> <strong>the</strong> decl<strong>in</strong>e <strong>in</strong> glob<strong>al</strong> production<br />
<strong>in</strong> 1987/88, and was a major factor <strong>in</strong> <strong>the</strong> quick decl<strong>in</strong>e <strong>in</strong> p<strong>rice</strong> (fig. 8).<br />
In October 1993, when Japan was harvest<strong>in</strong>g its weakest <strong>rice</strong> crop s<strong>in</strong>ce<br />
World War II, glob<strong>al</strong> p<strong>rice</strong>s began a 5-month rapid <strong>in</strong>crease. Y<strong>et</strong>, by March<br />
1994, glob<strong>al</strong> p<strong>rice</strong>s began decl<strong>in</strong><strong>in</strong>g and dropped to pre-spike levels by<br />
summer. Glob<strong>al</strong> beg<strong>in</strong>n<strong>in</strong>g stocks <strong>in</strong> 1993/94 were 123.3 million tons, or<br />
more than one-third of tot<strong>al</strong> use that year. This <strong>al</strong>lowed Japan to import a<br />
record 2.2 million tons of <strong>rice</strong> <strong>in</strong> early 1994, while only temporarily boost<strong>in</strong>g<br />
glob<strong>al</strong> p<strong>rice</strong>s.<br />
Even <strong>in</strong> 1997/98, when a severe El N<strong>in</strong>o wea<strong>the</strong>r pattern devastated <strong>rice</strong><br />
crops <strong>in</strong> much of Sou<strong>the</strong>ast Asia and South America and drove trade to a<br />
<strong>the</strong>n-record high, glob<strong>al</strong> p<strong>rice</strong>s <strong>in</strong>creased just 10 percent. In fact, by late<br />
summer 1998, glob<strong>al</strong> p<strong>rice</strong>s were decl<strong>in</strong><strong>in</strong>g. In 1997/98, glob<strong>al</strong> beg<strong>in</strong>n<strong>in</strong>g<br />
stocks were 120.3 million tons. This <strong>al</strong>lowed Indonesia to import <strong>al</strong>most 6.0<br />
million tons—about six times its norm<strong>al</strong> import requirements and <strong>the</strong> largest<br />
amount of <strong>rice</strong> ever imported by a s<strong>in</strong>gle country—without driv<strong>in</strong>g glob<strong>al</strong><br />
p<strong>rice</strong>s substanti<strong>al</strong>ly higher.<br />
The Asian f<strong>in</strong>anci<strong>al</strong> crisis that began <strong>in</strong> <strong>the</strong> summer of 1997 <strong>al</strong>so limited <strong>the</strong><br />
p<strong>rice</strong> <strong>in</strong>crease caused by El N<strong>in</strong>o. As sever<strong>al</strong> Asian countries, start<strong>in</strong>g with<br />
Thailand, dev<strong>al</strong>ued <strong>the</strong>ir currencies, <strong>the</strong> v<strong>al</strong>ue of <strong>the</strong> U.S. dollar <strong>in</strong>creased,<br />
lower<strong>in</strong>g <strong>the</strong> dollar-denom<strong>in</strong>ated p<strong>rice</strong> of traded <strong>rice</strong>. Because <strong>the</strong> p<strong>rice</strong> <strong>in</strong><br />
domestic currencies <strong>in</strong>creased, demand likely decl<strong>in</strong>ed.<br />
Figure 8<br />
Glob<strong>al</strong> trad<strong>in</strong>g p<strong>rice</strong>s for <strong>rice</strong> dropped quickly <strong>in</strong> previous p<strong>rice</strong> spikes<br />
Dollars/ton<br />
800<br />
700<br />
600<br />
500<br />
400<br />
300<br />
200<br />
100<br />
Weak monsoon and<br />
glob<strong>al</strong> oil p<strong>rice</strong> shock<br />
Thai 100 percent grade B p<strong>rice</strong><br />
Cold snap <strong>in</strong> South Korea<br />
and record S. Korean imports<br />
1997/98 El N<strong>in</strong>o cuts crops <strong>in</strong> Asia & South America<br />
0<br />
1970 75 80 85 90 95 2000 05 08<br />
1 C<strong>al</strong>endar year simple average of weekly p<strong>rice</strong> quotes. 2008 through November only.<br />
Source: U.S. Embassy (Bangkok, Thailand) agricultur<strong>al</strong> counselor, Weekly Rice P<strong>rice</strong> Update.<br />
19<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Lack of Yield Growth, Difficulty <strong>in</strong> Expand<strong>in</strong>g<br />
Grow<strong>in</strong>g Areas Supported Higher Rice P<strong>rice</strong>s<br />
Lack of any significant yield growth so far this century <strong>al</strong>so has contributed<br />
to higher <strong>rice</strong> p<strong>rice</strong>s. In fact, <strong>the</strong> rate of yield <strong>in</strong>crease started decl<strong>in</strong><strong>in</strong>g <strong>in</strong><br />
<strong>the</strong> 1990s. Yields <strong>in</strong>creased more than 13 percent <strong>in</strong> <strong>the</strong> 1970s and about<br />
26 percent <strong>in</strong> <strong>the</strong> 1980s, but <strong>in</strong>creased only 11 percent <strong>in</strong> <strong>the</strong> 1990s. From<br />
1966/67 to 1999/2000, glob<strong>al</strong> <strong>rice</strong> production <strong>in</strong>creased <strong>al</strong>most 130 percent,<br />
with ris<strong>in</strong>g yields account<strong>in</strong>g for more than three-fourths of <strong>the</strong> <strong>in</strong>crease.<br />
Most of this yield <strong>in</strong>crease was due to <strong>the</strong> adoption of <strong>the</strong> modern highyield<strong>in</strong>g<br />
vari<strong>et</strong>ies on irrigated fields <strong>in</strong> Asia, and to a lesser extent <strong>in</strong> Lat<strong>in</strong><br />
America (fig. 9).<br />
S<strong>in</strong>ce 1999/2000, glob<strong>al</strong> production has <strong>in</strong>creased just 8 percent. If glob<strong>al</strong><br />
yields had cont<strong>in</strong>ued <strong>in</strong>creas<strong>in</strong>g at <strong>the</strong> same rate that <strong>the</strong>y did from 1970 to<br />
1989, glob<strong>al</strong> <strong>rice</strong> production <strong>in</strong> 2007/08 would have been 485 million tons, or<br />
10 percent larger than <strong>the</strong> actu<strong>al</strong> crop. (This figure likely overstates potenti<strong>al</strong><br />
production from stronger yield growth, as higher yields would have reduced<br />
p<strong>rice</strong>s which would have resulted <strong>in</strong> sm<strong>al</strong>ler plant<strong>in</strong>gs.) The slowdown <strong>in</strong><br />
yield growth contributed to <strong>the</strong> remov<strong>al</strong> of excess stocks <strong>in</strong> <strong>the</strong> 21st century.<br />
Sever<strong>al</strong> factors account for <strong>the</strong> slower yield growth <strong>in</strong> <strong>the</strong> 1990s and <strong>the</strong><br />
stagnant yields so far this century. First, nearly <strong>al</strong>l land that can easily adopt<br />
<strong>the</strong> modern high-yield<strong>in</strong>g vari<strong>et</strong>ies, which require irrigation, is <strong>al</strong>ready used<br />
to grow <strong>the</strong>m. Much of <strong>the</strong> yield growth <strong>in</strong> <strong>the</strong> 1970s and 1980s was due to<br />
a shift <strong>in</strong> area to <strong>the</strong> modern high-yield<strong>in</strong>g vari<strong>et</strong>ies from <strong>the</strong> lower yield<strong>in</strong>g<br />
tradition<strong>al</strong> vari<strong>et</strong>ies. As <strong>the</strong> share of <strong>rice</strong> area sown to modern vari<strong>et</strong>ies<br />
<strong>in</strong>creased, average yields <strong>in</strong>creased.<br />
The modern vari<strong>et</strong>ies are bred to be short-stature and stiff to prevent lodg<strong>in</strong>g.<br />
Lodg<strong>in</strong>g is <strong>the</strong> tendency for plants to f<strong>al</strong>l over or bend. This impedes efficient<br />
harvest<strong>in</strong>g, thus reduc<strong>in</strong>g yield potenti<strong>al</strong> and lower<strong>in</strong>g qu<strong>al</strong>ity. The newer <strong>rice</strong><br />
vari<strong>et</strong>ies require controlled irrigation to achieve <strong>the</strong> high yields associated<br />
Figure 9<br />
Increases <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> yields have slowed s<strong>in</strong>ce <strong>the</strong> 1990s<br />
Million hectares<br />
160<br />
Average rough-<strong>rice</strong> yield<br />
Tons/hectare<br />
5<br />
120<br />
80<br />
40<br />
Rice area<br />
4<br />
3<br />
2<br />
1<br />
0<br />
1979/80 84/85 89/90 94/95 99/00 04/05 08/09<br />
2008/09 numbers are estimates.<br />
Source: USDA, Foreign Agricultur<strong>al</strong> Service, Production, Supply, and Distribution database,<br />
www.fas.usda.gov/psdonl<strong>in</strong>e/psdhome.aspx/.<br />
20<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA<br />
0
with substanti<strong>al</strong> fertilizer use. High-yield<strong>in</strong>g vari<strong>et</strong>ies have not been developed<br />
for <strong>the</strong> less favorable ecosystems such as those rely<strong>in</strong>g on natur<strong>al</strong> flood<strong>in</strong>g<br />
from river deltas, dry-land <strong>rice</strong>, or flood-prone areas that still grow tradition<strong>al</strong><br />
low-yield<strong>in</strong>g vari<strong>et</strong>ies.<br />
Second, decl<strong>in</strong><strong>in</strong>g p<strong>rice</strong>s from <strong>the</strong> late 1990s until <strong>the</strong> early 2000s gave little<br />
<strong>in</strong>centive for public or private research organizations to <strong>in</strong>vest <strong>in</strong> develop<strong>in</strong>g<br />
higher yield<strong>in</strong>g seeds, as glob<strong>al</strong> <strong>rice</strong> stocks were <strong>al</strong>ready quite large and, for<br />
a while, ris<strong>in</strong>g. In fact, government policies <strong>in</strong> sever<strong>al</strong> produc<strong>in</strong>g countries—<br />
particularly Japan and Taiwan—have been designed for sever<strong>al</strong> decades to<br />
reduce <strong>the</strong> area devoted to <strong>rice</strong> production to lower overstocks of <strong>rice</strong>.<br />
Third, for some countries, actu<strong>al</strong> field yields on land grow<strong>in</strong>g <strong>the</strong> modern vari<strong>et</strong>ies<br />
are typic<strong>al</strong>ly stagnant to decl<strong>in</strong><strong>in</strong>g, as cont<strong>in</strong>ued production on <strong>the</strong> same<br />
land has reduced fertility. Also, ecologic<strong>al</strong> problems associated with repeated<br />
irrigations dur<strong>in</strong>g <strong>the</strong> year—water logg<strong>in</strong>g and s<strong>al</strong><strong>in</strong>ity—and mono-agriculture<br />
have reduced yields, especi<strong>al</strong>ly <strong>in</strong> East Asia, a major <strong>rice</strong>-grow<strong>in</strong>g region.<br />
Although glob<strong>al</strong> area has expanded about 4 percent s<strong>in</strong>ce 2000/01, it is up<br />
only 1 percent from <strong>the</strong> previous record area planted <strong>in</strong> 1999/2000. Except<br />
for South Asia and parts of South America, few areas can significantly<br />
expand <strong>rice</strong> plant<strong>in</strong>gs without excessive costs. An exception is Burma, once<br />
<strong>the</strong> largest exporter. However, government policies <strong>in</strong> Burma prevent any<br />
significant expansion <strong>in</strong> <strong>rice</strong> plant<strong>in</strong>gs, despite abundant land perfectly suited<br />
for low-cost <strong>rice</strong> production. Cambodia, which experienced severe politic<strong>al</strong><br />
turmoil <strong>in</strong> much of <strong>the</strong> 1970s, <strong>al</strong>so has <strong>the</strong> potenti<strong>al</strong> to boost its <strong>rice</strong>-grow<strong>in</strong>g<br />
area. South American <strong>rice</strong> exporters have <strong>the</strong> land and water to significantly<br />
expand production if r<strong>et</strong>urns are high enough for sever<strong>al</strong> years to justify <strong>the</strong><br />
<strong>in</strong>vestment. South Asia could expand production by greater use of plant<strong>in</strong>g<br />
and harvest<strong>in</strong>g more than one crop from <strong>the</strong> same land each year.<br />
Worldwide, expanded <strong>rice</strong> area requires substanti<strong>al</strong> <strong>in</strong>vestment <strong>in</strong> irrigation<br />
facilities. R<strong>et</strong>urns would have to be quite high for sever<strong>al</strong> years to justify<br />
such costly <strong>in</strong>vestments. Although <strong>rice</strong> p<strong>rice</strong>s are currently high, so are p<strong>rice</strong>s<br />
for fuel and fertilizer, two critic<strong>al</strong> <strong>in</strong>puts. High <strong>in</strong>put p<strong>rice</strong>s nearly offs<strong>et</strong> <strong>the</strong><br />
impact of high p<strong>rice</strong>s on n<strong>et</strong> r<strong>et</strong>urns.<br />
In addition, to profitably grow <strong>rice</strong>, producers need land that is level and can<br />
easily hold water, preferable with a hard-pan subsurface. Most of this land<br />
<strong>al</strong>ready grows <strong>rice</strong>. Availability of low-cost and abundant water is necessary<br />
as well. In most areas of <strong>the</strong> world, water is a high-p<strong>rice</strong>d commodity desired<br />
by multiple comp<strong>et</strong><strong>in</strong>g users. For <strong>the</strong>se reasons, <strong>the</strong> ability to cont<strong>in</strong>ue<br />
expand<strong>in</strong>g glob<strong>al</strong> <strong>rice</strong> area is very limited, even with high <strong>rice</strong> p<strong>rice</strong>s.<br />
Higher Food Commodity P<strong>rice</strong>s Had Negative<br />
Effect on Develop<strong>in</strong>g Countries With Food Deficits<br />
The substanti<strong>al</strong> <strong>rice</strong> p<strong>rice</strong> spike <strong>in</strong> <strong>the</strong> spr<strong>in</strong>g of 2008 and cont<strong>in</strong>ued historic<strong>al</strong>ly<br />
high <strong>rice</strong> p<strong>rice</strong>s have critic<strong>al</strong> implications for many low-<strong>in</strong>come fooddeficit<br />
countries. First, s<strong>in</strong>ce <strong>the</strong> poorest consumers <strong>in</strong> develop<strong>in</strong>g countries<br />
spend at least h<strong>al</strong>f <strong>the</strong>ir disposable <strong>in</strong>come on food, <strong>the</strong> substanti<strong>al</strong> <strong>in</strong>crease<br />
<strong>in</strong> <strong>the</strong> p<strong>rice</strong> of <strong>rice</strong>—<strong>the</strong> major staple <strong>in</strong> <strong>the</strong> di<strong>et</strong> of more than h<strong>al</strong>f <strong>the</strong> world’s<br />
population—has sharply reduced <strong>the</strong>ir expenditures on most nonfood items.<br />
21<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
In addition, many low-<strong>in</strong>come <strong>rice</strong>-import<strong>in</strong>g countries are experienc<strong>in</strong>g<br />
severe b<strong>al</strong>ance-of-payment problems due to <strong>the</strong> much higher p<strong>rice</strong>s for most<br />
imports, especi<strong>al</strong>ly food, fertilizer, and fuel. P<strong>rice</strong>s for <strong>the</strong>ir exports have not<br />
<strong>in</strong>creased as much.<br />
F<strong>in</strong><strong>al</strong>ly, glob<strong>al</strong> food aid agencies are unlikely to be able to me<strong>et</strong> <strong>the</strong>ir future<br />
needs for <strong>rice</strong> to use <strong>in</strong> <strong>the</strong>ir feed<strong>in</strong>g programs without a substanti<strong>al</strong> <strong>in</strong>crease<br />
<strong>in</strong> fund<strong>in</strong>g. Food aid <strong>al</strong>locations are based on mon<strong>et</strong>ary v<strong>al</strong>ues. When <strong>rice</strong><br />
p<strong>rice</strong>s <strong>rise</strong>, <strong>the</strong> same amount of fund<strong>in</strong>g buys less <strong>rice</strong>.<br />
Rice P<strong>rice</strong>s Dropped as Import Demand Decl<strong>in</strong>ed<br />
and <strong>the</strong> Glob<strong>al</strong> F<strong>in</strong>anci<strong>al</strong> Crisis Deepened<br />
Glob<strong>al</strong> and U.S. p<strong>rice</strong>s began to decl<strong>in</strong>e <strong>in</strong> late May 2008. By <strong>the</strong> end of<br />
August 2008, glob<strong>al</strong> trad<strong>in</strong>g p<strong>rice</strong>s were about 30 percent below <strong>the</strong> April-<br />
May record and U.S. export p<strong>rice</strong>s were down about 16 percent. The decl<strong>in</strong>e<br />
<strong>in</strong> glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s from June to August 2008 was largely due to a reduction<br />
<strong>in</strong> panic buy<strong>in</strong>g by major importers (especi<strong>al</strong>ly <strong>the</strong> Philipp<strong>in</strong>es), a renew<strong>al</strong><br />
of commerci<strong>al</strong> s<strong>al</strong>es by Vi<strong>et</strong>nam <strong>in</strong> late June, a stronger dollar, and a drop <strong>in</strong><br />
over<strong>al</strong>l food commodity p<strong>rice</strong>s that summer.<br />
After peak<strong>in</strong>g at more than $147 per barrel <strong>in</strong> July <strong>in</strong> both Europe and <strong>the</strong><br />
United States, oil p<strong>rice</strong>s dropped below $120 per barrel <strong>in</strong> August 2008,<br />
mostly due to a slow<strong>in</strong>g glob<strong>al</strong> economy. By late September, oil p<strong>rice</strong>s were<br />
just barely above $100 per barrel as concerns over <strong>the</strong> glob<strong>al</strong> and U.S. economies<br />
heightened and <strong>the</strong> v<strong>al</strong>ue of <strong>the</strong> U.S. dollar—which started streng<strong>the</strong>n<strong>in</strong>g<br />
<strong>in</strong> late July—cont<strong>in</strong>ued to <strong>in</strong>crease. Oil p<strong>rice</strong>s dropped to about $75 per<br />
barrel <strong>in</strong> mid-October 2008, when <strong>the</strong> U.S. stock mark<strong>et</strong> plunged, and were<br />
below $50 by late December. P<strong>rice</strong>s dropped below $40 per barrel <strong>in</strong> January<br />
and February <strong>2009</strong>, but have s<strong>in</strong>ce <strong>rise</strong>n to around $50.<br />
Glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s <strong>al</strong>so were pressured lower by reports of record plant<strong>in</strong>gs<br />
across most of Asia <strong>in</strong> <strong>the</strong> spr<strong>in</strong>g and summer of 2008. The forecast of a<br />
record glob<strong>al</strong> <strong>rice</strong> harvest <strong>in</strong> 2008/09—follow<strong>in</strong>g a 2007/08 record crop—<br />
contributed to <strong>the</strong> reduction <strong>in</strong> panic buy<strong>in</strong>g, and is projected to sharply limit<br />
any growth <strong>in</strong> Asia’s over<strong>al</strong>l <strong>rice</strong> import needs <strong>in</strong> <strong>2009</strong>. Streng<strong>the</strong>n<strong>in</strong>g of <strong>the</strong><br />
dollar s<strong>in</strong>ce July 2008 <strong>al</strong>so lowered <strong>rice</strong> trad<strong>in</strong>g p<strong>rice</strong>s.<br />
Both U.S. and glob<strong>al</strong> trad<strong>in</strong>g p<strong>rice</strong>s were quite stable <strong>in</strong> September 2008, as<br />
p<strong>rice</strong>-support<strong>in</strong>g policies <strong>in</strong> Thailand and hurricane damage to <strong>the</strong> sou<strong>the</strong>rn<br />
U.S. crop offs<strong>et</strong> a comb<strong>in</strong>ation of weaker glob<strong>al</strong> demand and <strong>the</strong> cont<strong>in</strong>ued<br />
streng<strong>the</strong>n<strong>in</strong>g of <strong>the</strong> U.S. dollar. Start<strong>in</strong>g <strong>in</strong> July 2008, <strong>the</strong> Government of<br />
Thailand began purchas<strong>in</strong>g rough-<strong>rice</strong> from <strong>the</strong> 2007/08 dry season crop<br />
from farmers at p<strong>rice</strong>s about 20 percent above mark<strong>et</strong>. Fac<strong>in</strong>g such favorable<br />
<strong>in</strong>tervention p<strong>rice</strong>s, Thai farmers sold more than 2 million tons of <strong>the</strong> recently<br />
harvested dry-season rough <strong>rice</strong> to <strong>the</strong> government, which kept this <strong>rice</strong> off<br />
<strong>the</strong> mark<strong>et</strong> and help limit <strong>the</strong> decl<strong>in</strong>e <strong>in</strong> trad<strong>in</strong>g p<strong>rice</strong>s.<br />
In early October 2008, both U.S. and glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s began f<strong>al</strong>l<strong>in</strong>g aga<strong>in</strong>, as<br />
<strong>the</strong> glob<strong>al</strong> f<strong>in</strong>anci<strong>al</strong> crisis <strong>in</strong>tensified and p<strong>rice</strong>s for o<strong>the</strong>r commodities dropped<br />
sharply. In early November, <strong>the</strong> Government of Thailand began releas<strong>in</strong>g<br />
some of <strong>the</strong> stored <strong>rice</strong> for export, which contributed to lower trad<strong>in</strong>g p<strong>rice</strong>s.<br />
In late 2008, <strong>the</strong> Government of Thailand began purchas<strong>in</strong>g rough <strong>rice</strong> from<br />
22<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
its 2008/09 ma<strong>in</strong>-season crop (f<strong>al</strong>l-w<strong>in</strong>ter harvest) which h<strong>al</strong>ted <strong>the</strong> decl<strong>in</strong>e<br />
<strong>in</strong> Thailand’s export p<strong>rice</strong>s by year-end. Thailand’s p<strong>rice</strong>s actu<strong>al</strong>ly began<br />
ris<strong>in</strong>g aga<strong>in</strong> <strong>in</strong> early <strong>2009</strong>, mak<strong>in</strong>g Thailand uncomp<strong>et</strong>itive with major Asian<br />
comp<strong>et</strong>itors. On March 16, Thailand <strong>in</strong>itiated a rough-<strong>rice</strong> purchase program<br />
for its 2008/09 dry-season crop at p<strong>rice</strong>s 10-30 percent above mark<strong>et</strong>.<br />
Although Thailand’s p<strong>rice</strong>s are currently about 40 percent below <strong>the</strong> 2008<br />
record level, <strong>the</strong>y are not expected to r<strong>et</strong>urn to pre-2007 levels <strong>in</strong> <strong>the</strong> near<br />
term. The p<strong>rice</strong> outlook for glob<strong>al</strong> <strong>rice</strong> <strong>in</strong> <strong>the</strong> near term will be heavily <strong>in</strong>fluenced<br />
by <strong>the</strong> extent of <strong>the</strong> glob<strong>al</strong> economic downturn and f<strong>in</strong>anci<strong>al</strong> crisis, <strong>the</strong><br />
v<strong>al</strong>ue of <strong>the</strong> U.S. dollar, p<strong>rice</strong>s for land-use comp<strong>et</strong>ition with o<strong>the</strong>r agricultur<strong>al</strong><br />
commodity p<strong>rice</strong>s, and oil p<strong>rice</strong>s.<br />
23<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
Conclusion<br />
The <strong>rise</strong> <strong>in</strong> glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s <strong>in</strong> early 2008 co<strong>in</strong>cided with a worldwide food<br />
crisis. However, <strong>the</strong> driv<strong>in</strong>g forces <strong>beh<strong>in</strong>d</strong> <strong>the</strong> <strong>in</strong>crease <strong>in</strong> <strong>rice</strong> p<strong>rice</strong>s were<br />
not identic<strong>al</strong> to <strong>the</strong> factors <strong>beh<strong>in</strong>d</strong> <strong>the</strong> glob<strong>al</strong> food crisis. For corn, wheat,<br />
and soybeans, <strong>the</strong> primary factors <strong>beh<strong>in</strong>d</strong> <strong>the</strong> p<strong>rice</strong> <strong>in</strong>creases were <strong>in</strong>creased<br />
use of biofuels, chang<strong>in</strong>g di<strong>et</strong>s <strong>in</strong> Ch<strong>in</strong>a and India, major wea<strong>the</strong>r problems,<br />
and tight stocks-to-use ratios (Slayton, <strong>2009</strong>). Increased participation <strong>in</strong><br />
futures mark<strong>et</strong>s by nontradition<strong>al</strong> <strong>in</strong>vestors likely contributed to greater p<strong>rice</strong><br />
volatility. However, it is unclear if greater speculative activity contributed to<br />
higher p<strong>rice</strong>s for <strong>the</strong>se commodities (Abbot, 2008).<br />
These factors had only <strong>in</strong>direct effects on glob<strong>al</strong> <strong>rice</strong> p<strong>rice</strong>s. In fact, <strong>the</strong> <strong>rice</strong><br />
p<strong>rice</strong> <strong>rise</strong> occurred <strong>in</strong> a year of record glob<strong>al</strong> <strong>rice</strong> production, larger supplies,<br />
and a buildup <strong>in</strong> stocks. For <strong>rice</strong>, <strong>the</strong> most important factors <strong>beh<strong>in</strong>d</strong> <strong>the</strong><br />
p<strong>rice</strong> <strong>in</strong>crease <strong>in</strong> late 2007 and early 2008 were export restrictions by major<br />
suppliers, panic buy<strong>in</strong>g by sever<strong>al</strong> large importers, a weaker dollar, and<br />
record high oil p<strong>rice</strong>s (Slayton, <strong>2009</strong>).<br />
Sever<strong>al</strong> factors can sharply reduce <strong>the</strong> likelihood of future <strong>rice</strong> p<strong>rice</strong> spikes,<br />
<strong>in</strong>clud<strong>in</strong>g:<br />
• limit<strong>in</strong>g <strong>the</strong> use of export restrictions. By attempt<strong>in</strong>g to control domestic<br />
p<strong>rice</strong>s, those restrictions magnify <strong>the</strong> p<strong>rice</strong> effects of a mark<strong>et</strong> shock.<br />
Limit<strong>in</strong>g <strong>the</strong>m would reduce future p<strong>rice</strong> <strong>in</strong>creases. To date, <strong>the</strong> World<br />
Trade Organization has not focused on limit<strong>in</strong>g <strong>the</strong> use of export restrictions,<br />
but ra<strong>the</strong>r on open<strong>in</strong>g import mark<strong>et</strong>s, elim<strong>in</strong>at<strong>in</strong>g export subsidies,<br />
and limit<strong>in</strong>g producer support among its member nations.<br />
• boost<strong>in</strong>g glob<strong>al</strong> <strong>rice</strong> yields. Demand for <strong>rice</strong> is expected to cont<strong>in</strong>ue<br />
ris<strong>in</strong>g and s<strong>in</strong>ce <strong>rice</strong> grow<strong>in</strong>g area is not likely to expand, <strong>in</strong>creases <strong>in</strong><br />
supply will need to come from higher yields us<strong>in</strong>g exist<strong>in</strong>g grow<strong>in</strong>g<br />
areas. This will require a substanti<strong>al</strong> <strong>in</strong>vestment <strong>in</strong> agricultur<strong>al</strong> research<br />
for sever<strong>al</strong> decades. Efforts to boost glob<strong>al</strong> production likely would<br />
<strong>in</strong>clude research focused on develop<strong>in</strong>g new vari<strong>et</strong>ies that achieve higher<br />
yields with fewer <strong>in</strong>puts such as fertilizer and pesticides, and can be<br />
grown on less favorable ecosystems.<br />
• re-exam<strong>in</strong><strong>in</strong>g current restrictions on gen<strong>et</strong>ic<strong>al</strong>ly enhanced (GE) <strong>rice</strong>,<br />
us<strong>in</strong>g scientific an<strong>al</strong>ysis of risks and benefits. In light of <strong>the</strong> 2008 p<strong>rice</strong><br />
<strong>in</strong>crease, high <strong>in</strong>put p<strong>rice</strong>s, and strong comp<strong>et</strong>ition for land among<br />
various crop uses, such a review would be benefici<strong>al</strong>. The adoption<br />
of GE <strong>rice</strong> vari<strong>et</strong>ies could reduce water use, application and runoff of<br />
harmful pesticides, and boost yields. Current restrictions on GE <strong>rice</strong> by<br />
sever<strong>al</strong> major importers virtu<strong>al</strong>ly elim<strong>in</strong>ate any chance of adoption of this<br />
biotechnology by exporters.<br />
24<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA
References<br />
Abbot, Philip C., Christopher Hurt, and W<strong>al</strong>lace E. Tyner. What’s Driv<strong>in</strong>g<br />
Food P<strong>rice</strong>s? Farm Foundation, July 2008.<br />
Chicago Futures Trad<strong>in</strong>g Corporation, 2008. www.cftc.gov/mark<strong>et</strong>reports/<br />
commitmentsoftraders/cot_historic<strong>al</strong>.html/.<br />
McPherson, P<strong>et</strong>er. The Glob<strong>al</strong> Food Crisis: Cause and Solutions, statement<br />
before <strong>the</strong> Senate Foreign Relations Committee, May 14, 2008.<br />
Robles, Miguel, Maximo Torero, and Jaochim von Braun. When Speculation<br />
Matters, Internation<strong>al</strong> Food Policy Research Institute, Brief 57,<br />
February <strong>2009</strong>.<br />
Slayton, Tom. Rice Crisis Forensics: How Asian Governments Carelessly S<strong>et</strong><br />
<strong>the</strong> World Rice Mark<strong>et</strong> on Fire, Work<strong>in</strong>g Paper Number 163, Center for<br />
Glob<strong>al</strong> Development, March <strong>2009</strong>.<br />
Timmer, C. P<strong>et</strong>er. “Did Speculation Affect World Rice P<strong>rice</strong>s?” Presented at<br />
<strong>the</strong> Rice Policies <strong>in</strong> Asia Conference, United Nations Food and<br />
Agricultur<strong>al</strong> Organization, Chiang Mai, Thailand, February 9-12, <strong>2009</strong>.<br />
Trostle, Ron<strong>al</strong>d. Glob<strong>al</strong> Agricultur<strong>al</strong> Supply and Demand: <strong>Factors</strong><br />
Contribut<strong>in</strong>g to <strong>the</strong> Recent Increase <strong>in</strong> Food Commodity P<strong>rice</strong>s. USDA,<br />
Economic Research Service, WRS-0801, May 2008.<br />
Wright, Brian. Speculators, Storage, and <strong>the</strong> P<strong>rice</strong> of Rice. Giann<strong>in</strong>i<br />
Foundation of Agricultur<strong>al</strong> Economics, University of C<strong>al</strong>ifornia, <strong>2009</strong>.<br />
25<br />
<strong>Factors</strong> Beh<strong>in</strong>d <strong>the</strong> Surge <strong>in</strong> Glob<strong>al</strong> Rice P<strong>rice</strong>s <strong>in</strong> 2008/ RCS-09D-01<br />
Economic Research Service/USDA