Agri vs. food? Perceptions of local policymakers on agro-food policies from a multilevel approach

In the EU, policies towards territorial development and the sustainability of agro-food systems are exemplified above all in Pillar II of the Common Agricultural Policy (CAP). However, policies for the promotion of sustainable food systems and networks are mainly driven by municipalities and large cities. In order to understand multi-level configurations of policies to promote Sustainable Food Systems (SFS), this paper strives to identify the challenges that municipal policymakers face in implementing sustainable agro-food policies, from a multi-level governance perspective. To this end, and through in-depth interviews and secondary documentation analysis, the policies implemented in 10 different municipalities of the Madrid Region (Spain) are studied and the challenges these municipalities are facing are analysed from a multi-scale and territorialised perspective. The following research objectives are addressed: (1) description of the type of policies implemented for the promotion of SFS and the narrative frameworks in which they are shaped; (2) identification of challenges of local policies to support SFS especially governance challenges; and (3) proposals for the promotion of sustainable food systems through a multi-level, territorialised governance perspective. The paper identifies three main axes of tension and discoordination—municipal Vs regional powers; agricultural vs. food policies; and rural vs. urban territories—that constrains the sustainability potential of multi-level agro food policies. Finally, we provide a comprehensive, sustainable scheme to assess local agro-food governance throughout a multi-level and multi-actor approach, setting interrelations between the different levels, actors and agencies involved to overcome the lock-ins identified.