Soffía Blystra

Global food security remains a critical challenge, especially in the Global South, requiring strategic policies to ensure all people have access to sufficient, safe, and nutritious food. Uruguay, a small South American nation, often lauded for its stable democracy and progressive social policies, stands out in this context (Sustainable Development Report 2021). It boasts one of the highest human development indicators and lowest poverty rates in Latin America​, providing a strong foundation for innovative approaches to food security (Sustainable Development Report 2021). Uruguay has an export-oriented agricultural economy (over 7% of GDP and about 70% of exports come from agriculture)​, yet it treats access to food not merely as a market outcome but as a fundamental human right (IFAD 2021; Girona and Fajardo 2022). 

The country has explicitly recognized that sufficient food is a universal human right​ and has adopted a rights-based approach to food security, enshrining the “right to food” in its policy and legal framework. At the same time, Uruguay has proactively integrated the United Nations Sustainable Development Goals (SDGs) into its national strategies for agriculture and social development​ (SDG Knowledge Hub 2019). The intersection of these two approaches, a human rights framework and the SDGs, has shaped a comprehensive agenda for food security that seeks to safeguard the nutrition and health of the population while ensuring environmental and economic sustainability (Sampson et al. 2021)​. Notably, Uruguay consistently ranks among the top Latin American countries on the Global Food Security Index which reflects its commitment to climate-resilient and inclusive food systems​ (Uruguay XXI 2021). This paper examines how Uruguay’s effective combination of rights-based initiatives and SDG-aligned policies contributes to sustainable food sovereignty, and how this model can offer lessons for other nations in Latin America and the Global South facing similar challenges.

Uruguay’s approach to food security is ingrained in its political and social values. The right to adequate food is a declarative principle and a guiding objective of governance. In 2008, Uruguay joined other Latin American countries in adopting the United Nations Food and Agriculture Organization’s “Right to Food Guidelines,” signaling its intent to make food security a state obligation​ (FAO 2019). This commitment materialized institutionally through the creation of a national Right to Food Observatory, which exemplifies Uruguay’s proactive stance in upholding the right to food (Girona and Fajardo 2022). The Observatory, housed at the Universidad de la República’s School of Nutrition, functions for academic research, policy formulation, and civil society advocacy​. It monitors food security conditions and policies, identifies gaps (especially among vulnerable groups such as children, the incarcerated, and the economically disadvantaged), and recommends actions to government authorities. The very establishment of this Observatory emphasizes that Uruguay sees food security as a matter of justice and rights and so the state acknowledges its obligation to ensure that all citizens have access to adequate food at all times​. Through framing food access as a legal right, Uruguay empowers citizens and watchdog institutions to hold the government accountable for hunger and malnutrition outcomes. Crucially, Uruguay’s rights-based approach is buttressed by the integration of academic expertise and civil society into policymaking. The Right to Food Observatory is part of a broader Latin American network (Observatorio del Derecho a la Alimentación de América Latina y el Caribe, ODA-ALC) that facilitates knowledge exchange and collaborative research across countries (Girona and Fajardo 2022)​. Through this platform, Uruguayan scholars and policy experts work with counterparts in the region to advance legislation and public programs that realize the human right to food. FAO reports highlight that these observatories generate studies and data to inform laws and are actively involved in dialogues with government agencies.

In Uruguay, the Observatory has worked closely with ministries and local governments to place food security and nutrition at the forefront of public policy agendas​. This partnership among academia, state, and civil society is seen as essential for devising sustainable solutions to food insecurity​. It ensures that policies are evidence-based and that numerous voices, including NGOs, farmer organizations, and community groups, contribute to decision-making. Such inclusivity helps tailor policies to on-the-ground realities and reinforces the legitimacy of the right-to-food initiatives. One tangible outcome of Uruguay’s rights-based framework is targeted support for vulnerable populations. For example, the Observatory’s research and advocacy have drawn attention to the nutritional needs of schoolchildren, people in prisons, and low-income households​. This has informed government programs like Uruguay’s school meal programs and community kitchens, ensuring they are adequately funded and aligned with nutritional guidelines (FAO 2022; SDG Knowledge Hub 2019). Uruguay’s civil society has also been mobilized as an active partner in advancing food security. There have been initiatives to promote social entrepreneurship and community projects that improve nutrition for thousands of Uruguayans, indicating that non-governmental actors are encouraged to innovate and expand access to healthy food​.

While such statements require verification, they reflect the country’s philosophy that realizing the right to food involves the whole society. Indeed, during the COVID-19 pandemic, Uruguayan civil society groups created numerous local food assistance actions which demonstrates how a rights-based ethos translates into grassroots mobilization (Girona and Fajardo 2022)​. Overall, Uruguay’s rights-based approach has built an enabling environment where protecting and fulfilling the right to food is a shared responsibility. This approach aligns with global findings that rights-based and food sovereignty initiatives can significantly improve food security and nutrition outcomes (Sampson et al. 2021)​. Despite Uruguay’s high human development status, it faces modern nutritional challenges, most notably the double burden of malnutrition. On one hand, undernourishment is low and the country is on track for global targets like reducing stunting–only 6.9% of Uruguayan children under 5 are stunted, much lower than the regional average (Global Nutrition Report 2021)​. On the other hand, Uruguay has among the highest overweight and obesity rates in Latin America across all age groups. As of 2016, roughly 62.9% of Uruguayan adults were overweight or obese​ (PAHO 2017).

More recent data show that one in three adult women (33.3%) and over one in four adult men (27.7%) in Uruguay have obesity–rates significantly above the Latin American average​ (Global Nutrition Report 2021). This epidemic of diet-related non-communicable diseases poses a serious public health threat. It also underscores the need for policies that ensure not just food security (quantity of food) but also nutritional security (quality of diets). In line with its rights-based ethos, Uruguay has treated this issue as part of the right to health and adequate food, leading to pioneering policy measures to improve dietary environments. A flagship initiative in this is Uruguay’s adoption of front-of-package (FOP) nutritional warning labels on processed foods (Ares et al., “Analysis” 2021). Uruguay was among the first countries in the Americas to implement mandatory black stop-sign warning labels on food products high in added sugar, salt, or saturated fat. The groundwork for this policy was laid through regional cooperation in 2015; Mercosur (the Southern Cone common market) issued an agreement with recommendations for obesity prevention, including unified FOP labelling guidelines (PAHO 2017)​. 

Uruguay took the lead in pushing this agenda forward within Mercosur and domestically. By August 2018, Uruguay’s Ministry of Public Health issued a decree mandating that any packaged food exceeding certain thresholds of sugar, sodium, or fat (based on Pan American Health Organization nutrient profile criteria) must display a prominent octagonal warning icon on its front label (Ares et al., “Analysis” 2021)​. This measure was explicitly framed as part of Uruguay’s fulfillment of the human right to adequate food, aiming to enable consumers to make informed, healthier choices. It was also aligned with SDG 3 (Good Health and Well-being) by addressing the rise of non-communicable diseases through preventive public policy. The implementation of nutritional warnings in Uruguay was achieved through an extensive participatory policy process. Regulators convened numerous public consultations, involving experts, industry representatives, healthcare professionals, and citizen groups, to design and refine the labelling system​. This inclusive approach helped build public support and ensured the policy was grounded in scientific evidence, much of it generated by Uruguayan researchers (Ares et al., “Analysis” 2021)​.

However, the path was not without obstacles. A change in government administration in March 2020 (when a new president took office) led to delays in the enforcement of the labelling rules, as the incoming authorities reassessed the regulation under industry pressure​. The food and beverage industry lobbied vigorously against the warnings, citing concerns about trade and profits, and succeeded in postponing the original implementation deadline by several months. Despite this pushback, Uruguay’s commitment to public health prevailed. The warnings ultimately came into force (after a brief suspension and minor adjustments to criteria) by early 2021 (Ares et al., “Analysis” 2021)​. The resilience of this policy reflects the country’s prioritization of citizens’ rights over corporate interests.

Early evidence suggests that Uruguay’s nutritional labelling policy has had a consequential impact on everyday consumer behavior. Surveys conducted shortly after the labels were introduced found high levels of public awareness of the new warnings and significant self-reported changes in shopping choices as a result​. In one study, over 85% of Uruguayan consumers noticed the warning labels, and many reported avoiding or limiting products with many “black seals,” indicating a shift toward healthier food preferences (Ares et al., Immediate Effects of Nutritional Warnings in Uruguay​). This indicates that the labels are serving their intended purpose as a tool to empower consumers with knowledge, thereby gradually nudging the population toward better diets. Uruguay’s experience aligns with findings from other countries like Chile, where similar warning labels led to reformulation of products and reduced consumption of sugary drinks. By enacting this policy, Uruguay is actively using a regulatory approach to fight obesity and diet-related diseases, reinforcing the idea that the right to food encompasses the right to accurate information about food. The initiative has also contributed to public discourse on nutrition; for instance, media campaigns and school education programs accompanied the roll-out of labels to increase their effectiveness​.

Uruguay’s nutritional warning labels policy illustrates how a rights-based approach is implemented in practice to influence everyday life. Shoppers in Uruguay today encounter transparent health information on food packaging, which helps them exercise their right to choose healthy foods. The government, on its part, has demonstrated that it will stand firm on public health measures even under external pressures (like industry opposition or international trade considerations). Such measures are part of a broader public health strategy in Uruguay that also includes promoting local fresh food markets, updating dietary guidelines, and enhancing school nutrition programs. Together, these efforts advance SDG 2 (Zero Hunger) and SDG 3, by not only ensuring that people have food, but that they have good food for an active and healthy life. Uruguay’s approach thus marries the concept of food sovereignty (people’s control over their food systems) with state-driven public health regulation, in service of the common good (Ares et al., “Immediate Effects” 2021).

To achieve sustainable food sovereignty, Uruguay recognizes that securing food access today must not compromise the environment and food production for future generations. Climate change poses a serious threat to food security across Latin America, and Uruguay has responded by integrating climate adaptation and mitigation into its agricultural policy basis. Agriculture is a backbone of Uruguay’s economy and rural livelihood, so climate resiliency is both an economic necessity and a food security imperative. In 2019, Uruguay launched its National Adaptation Plan to Climate Variability and Change for the Agricultural Sector (PNA-Agro), a comprehensive strategy to bolster the sustainability of food and farming systems​. This plan exemplifies how Uruguay aligns its national policies with the Sustainable Development Goals, particularly SDG 13 (Climate Action) and SDG 2. It also reflects the country’s commitment under the Paris Agreement, as the PNA-Agro is designed to meet targets outlined in Uruguay’s Nationally Determined Contribution (NDC) on greenhouse gas emissions and adaptation​ (FAO, “Uruguay Launches NAP” 2019).

The PNA-Agro provides a roadmap through 2050 for climate-resilient agriculture, along with a detailed Action Plan up to 2025 for immediate measures​. According to the FAO and Uruguay’s Ministry of Agriculture, the plan includes adaptation actions across four key dimensions: (1) Production systems- promoting sustainable crop and livestock practices; (2) Ecosystems and natural resources- conserving soil, water, and biodiversity in farmlands; (3) Livelihoods- safeguarding farmers (especially smallholders and family farmers) through risk management tools like climate insurance; and (4) Institutional capacities- strengthening the ability of institutions to respond to climate risks​ (FAO, “Uruguay Launches NAP” 2019; FAO, “Integrating Agriculture in NAPs” n.d.). For example, one component of the plan aims to increase the use of drought-tolerant forage varieties and climate-smart farming techniques to help ranchers cope with more frequent droughts and floods​. Another aspect involves developing information systems and early warning networks so that farmers can plan ahead for extreme weather​. By addressing environmental, economic, and social aspects together, Uruguay’s adaptation plan embraces the SDG principle of sustainability in all its dimensions.

A notable feature of Uruguay’s climate adaptation policy-making is its participatory approach. The formulation of the PNA-Agro was a multi-year process that actively engaged a wide range of stakeholders. Over a three-year period (2016–2019), more than 950 people from the public sector, academia, civil society, producer organizations, and local communities took part in developing the strategy (FAO, “Uruguay Launches NAP” 2019)​. National workshops, regional consultations, and even outreach in agricultural high schools (involving hundreds of youth) were conducted to gather input and build consensus​. This inclusive process ensured that the plan reflected on-the-ground needs and knowledge, from smallholder farmers’ experiences to scientists’ climate projections. The broad participation also built buy-in for the plan’s implementation. As a result, when the PNA-Agro was officially launched in September 2019, it had the support of key constituencies and was seen not as a top-down mandate but as a collective vision for the future of Uruguayan agriculture​. The technical support of UN agencies (FAO and UNDP) and funding from international partners (such as Germany’s BMU via the NAP-Ag program) provided additional expertise and resources. Uruguay’s approach here exemplifies SDG 17 (Partnerships for the Goals) in action: global knowledge and funds were mobilized to enhance a local plan, and domestic stakeholders were actively involved in tailoring global frameworks (like the NAPs program) to national context.

In practice, Uruguay’s adaptation plan is now guiding concrete initiatives that link to everyday agricultural practices. For instance, the government has been working on expanding irrigation infrastructure and water harvesting systems to reduce vulnerability to drought, which directly benefits farmers’ yields and incomes in dry years. There are also programs encouraging agroforestry and soil conservation (e.g. minimal tillage, cover cropping) to maintain long-term soil health​. Notably, the plan highlights the importance of gender perspectives, acknowledging that rural women often have different challenges and knowledge, and involving them is crucial for community resilience (FAO, “Uruguay Launches NAP” 2019)​. The PNA-Agro also complements Uruguay’s efforts in climate change mitigation, by improving efficiency and sustainability in cattle ranching (a major GHG source), the plan helps reduce emissions, tying into SDG 12 (Responsible Consumption and Production). According to the FAO, Uruguay’s integrated approach through PNA-Agro “will help the country achieve…adaptation commitments under the Paris Agreement, as well as contribute to the SDGs”​. This dual benefit underlines a key strength of Uruguay’s strategy, it simultaneously addresses the immediate needs of maintaining food production under climate stress and the long-term goals of sustainable development.

Uruguay’s domestic achievements in sustainable agriculture have also positioned it as a regional leader and collaborator. Regionally, many Latin American countries have struggled with rising food insecurity due to climate events and economic shocks. While Uruguay is not immune to these challenges, its early action on adaptation is noteworthy. In fact, the International Institute for Sustainable Development observed that after the global food price crisis of 2007-2008, countries like Uruguay and others in Latin America started placing renewed emphasis on food security and sovereignty in public policy​ (Piñeiro et al. 2010). Uruguay distinguished itself by coupling that emphasis with institutional reforms and plans (like PNA-Agro) that directly address climate risk, something that some neighbors with political or fiscal instability have found harder to do. In 2020, hunger in Latin America spiked again (exacerbated by the COVID-19 pandemic), but Uruguay largely maintained food security for its population, partly thanks to strong social safety nets and stable food production​ (IFAD 2021). Uruguay is a net food exporter of commodities (notably beef, soy, and dairy), which gives it an advantage in ensuring food availability domestically; however, the government has leveraged this position responsibly by promoting fair prices and strategic reserves when needed, rather than merely focusing on exports​ (Uruguay XXI 2021). The “Regional Overview of Food Security and Nutrition 2021” report notes that South America’s progress against hunger is uneven, but highlights policy continuity and social protection as factors that helped countries like Uruguay mitigate the worst outcomes​ (IFAD 2021).

Also, Uruguay actively shares its experience and engages in international cooperation on sustainable food systems. It participates in forums like Mercosur’s specialized meetings on family farming and the FAO’s regional conferences, often advocating for a human-rights-based approach (FAO 2022). The country’s successful rollout of climate adaptation in agriculture has been showcased as a model; for example, Uruguay took part in the NAP Global Network to exchange lessons on adaptation planning (FAO, “Uruguay Launches NAP” 2019)​. In the context of the SDGs, Uruguay has presented Voluntary National Reviews at the UN, reporting on its progress across all 17 Goals. The Uruguay Sustainable Development Report 2021 indicates that the nation is on track in many areas (such as poverty eradication and clean energy) but still faces challenges in areas like industrial innovation and some environmental goals​. Notably, Uruguay’s efforts in sustainable agriculture and climate action contribute directly to SDG 2 (Zero Hunger) and SDG 13 (Climate Action), bolstering its overall SDG performance. In 2022, the World Bank Group recognized Uruguay’s leadership in sustainable development by signing a 2023- 2027 Country Partnership Framework focusing on climate change adaptation and inclusive growth (World Bank 2022)​. This partnership aims to reinforce Uruguay’s policy agenda with financial and technical assistance, further ensuring that initiatives like the PNA-Agro yield tangible economic and social benefits. Overall, through a combination of rights-based social policies and forward-looking environmental strategies, Uruguay has crafted a uniquely holistic approach to food security that integrates local needs with global goals. This approach is increasingly relevant as countries worldwide seek to build resilience in their food systems amid climate change and post-pandemic recovery.

Uruguay’s integration of a rights-based approach with the Sustainable Development Goals has significantly shaped its food security landscape, yielding insights into what sustainable food sovereignty can look like in practice. By treating access to adequate food as a legal right, Uruguay established robust institutions (like the Right to Food Observatory) and policies that prioritize human well-being and social equity (Girona and Fajardo 2022). By embracing the SDGs, it ensured those policies also align with environmental sustainability and broad-based economic development. The result is a policy frame that exists on paper and penetrates into the everyday lives of Uruguayan people.

On a day-to-day level, Uruguay’s policies have begun to influence everyday practices and behaviors surrounding food. The introduction of front-of-package warning labels, for instance, means that when a Uruguayan shopper walks into a supermarket, they are empowered with clear information to make healthier choices (Ares et al., “Immediate Effects” 2021). Early evaluations show consumers responding by choosing products with fewer or no warning symbols, indicating a shift toward healthier diets​. Such behavior changes, multiplied across the population, can gradually improve public health outcomes, fewer cases of obesity, diabetes, and hypertension, which in turn enhance quality of life. For school children, improved nutrition standards (supported by research from the Observatory) ensure that school meals are not just filling but also wholesome, which helps kids develop better eating habits. Likewise, Uruguay’s rights-based focus means that marginalized groups (for example, low-income families or rural communities) have specific programs catering to their needs, from food baskets to urban gardens, often implemented with the help of civil society (FAO 2022). This widespread civic engagement in food security, visible in community kitchens, urban agriculture, and advocacy for healthy food, reflects a culture where citizens see access to food as a shared responsibility and a basic right.

The economic impacts of Uruguay’s food security and sustainability initiatives are also notable. By investing in nutrition and preventive health, Uruguay is likely to save on future healthcare costs associated with diet-related illnesses. In 2019, overweight and obesity were estimated to cost Uruguay about 1.9% of GDP in healthcare expenditures and lost productivity (Global Nutrition Report 2021)​. Policies like the nutritional warnings and public awareness campaigns can help reduce this economic burden over time, as a healthier population is a more productive workforce with lower medical expenses. In the agricultural sector, Uruguay’s climate adaptation efforts are essentially an investment in the resilience of its economy. Agriculture and agri-food exports form the bedrock of Uruguay’s national economy (over 80% of goods exports) (Uruguay XXI 2021)​. The PNA-Agro’s measures, from supporting farmers with climate-smart techniques to building infrastructure that mitigates droughts and floods, protect this economic lifeline. They help ensure that extreme weather does not regularly devastate crops or livestock, thereby stabilizing farmers’ incomes and export revenues. For example, if climate adaptation measures succeed in shielding Uruguay’s beef industry from severe drought losses, the country secures both its domestic food supply (meat and dairy) and its position in global markets. In this way, what might seem like environmental policies also double as prudent economic strategy. Also, Uruguay’s sustainable practices (like grass-fed livestock, low-deforestation agriculture) add value to its products in international markets that increasingly demand sustainability credentials, potentially commanding better prices and trade advantages in the future (IFAD 2021).

Uruguay’s case demonstrates that advancing food security need not come at the expense of economic growth or environmental health; in fact, the three can be mutually reinforcing. The nation’s holistic approach has made it something of a policy laboratory in Latin America for integrating human rights and sustainable development. There are, of course, areas for ongoing improvement. Uruguay must continue addressing challenges such as dietary diversity (encouraging consumption of fruits and vegetables, which are often imported and pricey) and remaining pockets of food insecurity, particularly in certain rural or peri-urban areas. It also faces the task of sustaining political commitment to these initiatives in the face of any future government changes or economic downturns (Girona and Fajardo 2022). However, the institutionalization of the right to food, through laws, observatories, and cross-sector collaborations, provides a durable backbone that is likely to endure and adapt as needed.

Finally, Uruguay’s experience with sustainable food sovereignty focuses on a powerful lesson: when a country commits to ensuring that all its citizens can eat adequately and nutritiously, and backs that commitment with inclusive, future-oriented policies, it can achieve both social justice and sustainability. Uruguay has shown that treating food as a right creates accountability and urgency to tackle hunger and malnutrition, while embracing the SDGs embeds those efforts within a long-term vision of ecological balance and economic resilience (Sampson et al. 2021; Sustainable Development Report 2021). This dual approach has tangible payoffs in everyday life, from healthier meals on Uruguayan tables to stronger defenses against climate threats on Uruguayan farms. As other nations seek to recover from global crises and build resilient food systems, Uruguay’s model, combining rights-based policies, scientific evidence, and multi-stakeholder engagement, offers an inspiring example of how to harmonize the goals of ending hunger, promoting health, and sustaining the planet. In a world where food security is increasingly under pressure, Uruguay’s integration of human rights and sustainable development stands out and demonstrates that equitable and sustainable food systems are achievable, and indeed, indispensable for the well-being of both people and the economy.

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Works Cited

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Biography

Soffía Blystra is a scholar whose research explores Latinx immigrant testimonios as acts of resistance. Her research draws from testimonio theory, Latinx feminist and queer theory, third space theory, and digital media studies to examine how trauma, memory, and voice circulate across borders and platforms. Soffía is Editor-in-Chief and co- founder of (Zine)Lugar, a platform for artistic expression around non-belonging and border imaginaries.