Towards A Healthy Community Food System

Prepared by Marc Xuereb and Ellen DesjardinsHealth Determinants, Planning and Evaluation

November 2005

Interim Report

Towards A Healthy Community Food System for Waterloo Region

Much of the research conducted for this report was reviewed regularly by members of an advisory committee over thecourse of 2005. They provided suggestions on research methodology, contacts in the local food and agriculture industry,and feedback on how to interpret results. Region of Waterloo Public Health would like to thank them for their contributions.

Members of the advisory committee included:

Elsie Herrle and Trevor Herrle-Braun – Herrle’s Country Farm MarketGerry Horst – Ontario Ministry of Agriculture, Food, and Rural Affairs (OMAFRA)Peter Katona - Foodlink Waterloo RegionRon Laurie – Global DelightsJohn Lubcynski – Region of Waterloo Planning, Housing, and Community ServicesRod MacRae – Food Policy ConsultantCarl Mueller – Elmira Farmers’ MarketDonald Murray and Harry Cummings – Harry Cummings and AssociatesMark Reusser and Jeff Stager – Waterloo Federation of AgricultureRick Whittaker and Cathy Brosseau – Waterloo-Wellington Community Futures Development Corporation

In addition Public Health staff would like to acknowledge the ongoing involvement of colleagues from the Planning,Housing and Community Services department and the Social Services department. They have provided very helpful direction and guidance in the development of this report.

Finally, the contribution of local planning staff and other associated agencies through the RGMS ImplementationCoordinating Committee has been formative and has helped to ensure relevance of the research underlying this report.Public Health staff looks forward to continued collaboration as these findings are moved into policy recommendations.

Acknowledgements

Towards A Healthy Community Food SystemInterim Report

2

Towards A Healthy Community Food System

Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4

Section 1: Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5

Section 2: The Current Food System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8

2.1 Dietary Intake and Health . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .8

2.2 Food Accessibility, Availability and Affordability . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .92.2.1 Access and Availability of Healthy Food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .92.2.2 Affordability of Healthy Food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10

2.3 Agricultural Production and Food Distribution . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .102.3.1 The Agriculture and Food Economy in Waterloo Region . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .112.3.2 Distribution of Local Food Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .12

2.4 Food System Consolidation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15

2.5 Social and Environmental Consequences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .182.5.1 Social Consequences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .182.5.2 Environmental Consequences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .19

2.6 Emerging Trends. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .202.6.1 The Local Food Economy is Gaining Support . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20

i) Farm-Direct Sales . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20ii) Farmers’ Markets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20iii) Food Box Programs and Community Shared Agriculture Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20

2.6.2 Consumers are interested in Local Food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21i) Popularity and impact of the Buy Local! Buy Fresh! Map . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21ii) Consumers want to buy local food . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21

2.6.3 Urban agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .21

Section 3: The Future of Waterloo Region’s Food System . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22

Section 4: A Healthy Community Food System Plan for Waterloo . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24Plan Objectives:

1. To ensure that all residents can afford to buy the food they need to sustain health . . . . . . . . . . . . . . . . . . . . . . . . . . .252. To preserve and protect Waterloo Region’s agricultural lands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .253. To strengthen food-related knowledge and skills among consumers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .264. To increase the availability of healthy food so that healthy choices are easier to make . . . . . . . . . . . . . . . . . . . . . . . . .275. To increase the viability of farms that sell food to local markets in order to preserve rural communities

and culture. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .286. To strengthen the local food economy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .307. To forge a dynamic partnership to implement the plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32

Section 5: Conclusion . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .32References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33

Table of Contents

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Interim Report

The concept of broad communityfood system planning provides anintegrated response to the seeminglydisparate food-related problemsaffecting public health. A healthycommunity food system approachgoes beyond individual dietarybehaviour, and examines the broadercontext in which food choices occur.It seeks to build healthy communitiesby considering the ways in whichsocial, economic and environmentalconditions determine health. The goalis to create a system in which all residents have access to, and canafford to buy safe, nutritious, and culturally-acceptable food that hasbeen produced in an environmentallysustainable way and that sustainsour rural communities.

The local food supply can affect thenutrition environment of the localpopulation, in that the food produced,distributed and sold within the regioncan play a major role in how well thepopulation eats. A region with adiverse agricultural economy, linkedwith local food needs and markets,will be more sustainable in the longterm, with lower environmental costs,reduced demands on transportationinfrastructure, and potentially higherfood quality that helps serve nutritionalobjectives. As well, a vibrant localfood economy will help sustain ourrural communities and the viability ofour local farms.

The interim report Towards a HealthyCommunity Food System for

Waterloo Region integrates the findingsof a number of local studies relatingto local agriculture, rural health, foodavailability, buying practices, environmental issues and dietaryintake of the population. Section 1makes the connection between acommunity food system approachand the social, economic and environmental determinants ofhealth. Section 2 describes the stateof the local food system today, anddocuments the impacts it is havingon public health. Section 3 points outsome trends for the future, highlightingchallenges and opportunities presentedby population growth and demographicchange. Section 4 provides objectivesand preliminary strategies to guidefurther planning in Waterloo Region.

Executive Summary

4


5

Towards a Healthy Community FoodSystem for Waterloo Region is one ofseveral discussion papers preparedby Region of Waterloo Public Healthin support of the implementation ofthe Regional Growth ManagementStrategy (RGMS), which was approvedby Council in June 2003. Urbandesign affects public health and quality of life in a number of ways.Incidence of chronic diseases, suchas asthma and conditions like obesityin particular, seem linked to the wayin which our communities aredesigned. The interests of the population’s health are best servedby communities which make healthychoices for food and activity moreconvenient, and which put in placeinfrastructure which reduces ourreliance on fossil fuel use.

Toward this end, the RGMS integrates a cross-section of localMunicipal, Regional, and other stakeholder actions, including manywhich typically fall outside the scopeof conventional land-use planning.This partnership-based approach isthe most successful way to achievebalanced growth which simultaneouslyadvances public health. As partnersin the RGMS, Public Health staff hasbeen engaged in a number of studieswhich support the goals of enhancingof our natural environment, building ofvibrant urban spaces, providing

greater transportation choice andprotecting our countryside in wayswhich simultaneously promote publichealth. Based on this work, Towardsa Healthy Community Food Systemfor Waterloo Region attempts toengage key stakeholders in furthershaping policy and program recommendations to improve thehealth of the public.

Evidence is beginning to quantify anincreasing number of food-relatedproblems in our communities.Hunger and poor nutrition have risen,diet-related diseases have provenresistant to traditional educationalapproaches, and consumption of low-nutrient “fast food” is increasing,resulting in the escalating incidenceof obesity and diet-related diseaseslike diabetes. Reliance on internationalshipping of food has environmentalimplications. Food retail has been consolidated outside of urban cores,resulting in more automobile trips.Centralized purchasing associatedwith the giant retail model hasreduced opportunities for producersto sell their product locally. Both

human and economic capital haveleft rural communities. These communities are showing signs ofeconomic and social stress as agriculture has re-structured and consolidated. Pressures to increaseagricultural production have resultedin concerns about water quality andecosystem health.

The concept of broad community foodsystem planning provides an integratedresponse to these seemingly disparate problems, and aims toensure access to healthy food for allresidents. A community food systemapproach goes beyond individualdietary behaviour, and examines thebroader context of these behaviours.It seeks to build healthy communitiesby considering multiple conditionsthat determine health and quality oflife (see figure 1). With this healthdeterminants perspective, economic,social and environmental aspects ofthe food environment become relevant to public health. A food system that improves access tohealthy food throughout the region,and at the same time ensures aviable local agricultural economy, willenhance the health of all residents.An ecological paradigm emerges,where a healthy food system is anembedded goal within regionalgrowth management for the future.

Section 1: Introduction

Towards A Healthy Community Food System Interim Report

6

Equity-equal opportunity and increased

interaction of diverse cultures-increased access to healthy food for people with low-income

Prosperity-adequate and sustainable livelihoods - urban and rural

Sustainability-increased biodiversity-increased consumption of food -reduced dependency on imported food-protection of farm land

Viability-improved air quality-fertile soil-unpolluted, conserved water supply

Livability-walkable access to retailers ofhealthy food -green spaces, community gardens, etc. that encouragephysical activity and enjoymentof food

Conviviality-heightened sense of community-decreased social isolation-increased community empowerment and social cohesion

-time and space for cooking and eating together

Economy Environment

Community

HEALTH

Figure 1: Applying a Community Food System Approach to a Healthy Communities Model

Source: Adapted from Hancock, 1999

Over the next 40 years, WaterlooRegion will face population growth ofover 50%, with a correspondingincreased demand for food. The population will change demographicallysuch that the proportion of older people and new immigrants will grow.As these population subgroups areknown to consume more fruit, vegetables and legumes, the demandfor these foods will likely rise. Apopulation that consumes an optimaldiet high in fruit, vegetables, legumes

and whole grains will face a lowerrisk of obesity and both communicableand chronic diseases.

The local food supply can affect thenutrition environment of the local population, in that the food produced,distributed and sold within the regioncan play a major role in how well thepopulation eats (French et al, 2001,McCullum, 2004). A region with adiverse agricultural economy, linkedwith local food needs and markets,

will be more sustainable in the longterm, with lower environmental costs,reduced demands on transportationinfrastructure, and potentially higherfood quality that helps serve nutritionalobjectives. As well, a vibrant localfood economy will help sustain ourrural communities and the viability ofour local farms (Feenstra, 1997,Halweil, 2002, Horrigan et al., 2002,Meter, 2004).


7

Policy Policy Policy

A food system, as depicted in Figure2, can be defined as “a set ofinterrelated functions that includesfood production, processing and distribution; food access and utilizationby individuals, communities andpopulation; and food recycling, composting and disposal”(Dahlberg,1991). A sustainable community foodsystem, however, improves thehealth of the community, environmentand individuals over time, involving a collaborative effort in a particular setting to build locally-based, self-reliant food systems and economies(Dahlberg, 1999, Peters, 2002,Feenstra, 1997).

The overall food system is vast andcomplex, and involves numerous sub-systems. Engaging stakeholders inachievable local changes is seen asthe most realistic step given limitedresources.

Thus, the scope of this report is todescribe the food system in WaterlooRegion, highlight the ways in which itimpacts the public’s health, and present possible strategies to accomplish the following sevenobjectives of a Healthy CommunityFood System Plan for WaterlooRegion:

1. To ensure that all residents can afford to buy the food they need to sustain health

2. To preserve and protect Waterloo Region’s agricultural lands

3. To strengthen food-related knowledge and skills among consumers

4. To increase the availability of healthy food so that healthy choices are easier to make

5. To increase the viability of farms that sell food to local markets inorder to preserve rural communities and culture

6. To strengthen the local food economy

7. To forge a dynamic partnership toimplement the plan

Figure 2: A Food System Model


8

As a foundation to the development of a CommunityFood System Plan for Waterloo Region, Public Healthhas engaged the help of multiple partners to researchand document the current state of the local food systemand its impact on population health. This section highlights these findings. Complete background reportsreferenced are available on the Region of WaterlooPublic Health website.1

Section 2: The Current Food System in Waterloo Region

Habitual dietary patterns are a keyfactor in health, and can have a positive or negative long term effect.A healthy diet high in foods of plant

origin such as whole grains, legumes,fruits and vegetables helps protectagainst both communicable andchronic diseases. Such a diet alsohelps maintain a healthy weight,because these foods are high in fibreand generally low in fat, especiallywhen they are minimally processed.The increased availability of low-cost,highly-available processed foods,which are typically high in sodium, fatand/or refined carbohydrates, is acontributing factor to the rise in obesity among children and adults(Raine, 2005, Drewnowski, 2003).

Current dietary habits of Waterloo

Region residents do not meet thedietary recommendations of Canada’sFood Guide to Healthy Eating. Overhalf (58%) of residents consumefewer than the daily recommendednumber of servings of fruits and vegetables. Whole grains andlegumes are also under-consumed,and refined carbohydrates, fats andoils and animal proteins are over-consumed. This pattern ofdietary intake, coupled with inactivity,has contributed to a population where50.1% of residents were either overweight or obese in 2003(ROWPH, Oct. 2004, and ROWPH,June 2005).

2.1 Dietary Intake and Health

Our population does not eat enough healthy foods, and our health is affected

1 Go to http://www.region.waterloo.on.ca/ph, and click on “Reports and Fact Sheets” under “Resources.”


9

2.2 Food Accessibility, Availability and Affordability

2.2.1 Access and Availability of HealthyFood

The food that is available to people shapes their foodchoices. Evidence suggests that people are more likely tomeet dietary recommendations when they have readyaccess to grocery stores with healthy and affordable food,as opposed to convenience stores that offer mostly packagedprocessed food (Morland, 2002). The increased density of “fast-food” restaurants in lower-income neighbourhoods has been shown as a contributing factorfor greater obesity rates in some American cities (Block etal., 2004, Maddock, 2004, Reidpath et al, 2002). Further,the opportunity to walk to retail food outlets can contributeto obesity prevention and improved urban Livability(Gottlieb et al, 1996).

A study of food access in Waterloo Region found that residents without cars have good access to food retail,since 94% of the urban population lives within walking distance of a bus route which can connect them to asupermarket.2 (ROWPH, Sep. 2004) However, using public transit for grocery shopping is difficult, especially forfamilies with small children, and many residents who donot have access to a private vehicle do not have the optionof walking to obtain the food they need.

Seventy-one per cent of the Region’s urban populationdoes not live within reasonable walking distance of asupermarket, and 47% of the urban population in WaterlooRegion does not live within reasonable walking distance ofeither a supermarket or a convenience store (ibid).3

Residents without cars who live within walking distance of

convenience but not grocery stores, however, will find thatconvenience store food is 1.6 times more expensive compared to larger grocery stores and that healthy foodoptions are more limited. (ibid) Hence, location of grocerystores and other food retail outlets is a key considerationwhich affects all residents’ ability to make healthy lifestylechoices.

Healthy food needs to be available, accessible andaffordable to support healthy eating choices.

2 “There is no formal taxonomy for the various food retailers, but supermarkets are generally characterized as stores with over 15,000 square feet of selling space,featuring very diverse products for sale, and located within a 15-minute drive from the clientele” (HCA, Oct. 2003, p. 88, citing Wen, 2001).

3 The research defined a reasonable walking distance to be 450m.


10

2.2.2 Affordability of Healthy Food

Limited food access and limited income with which to buyfood lead to multiple risk factors for poor health (Tarasuk etal, 2004). It is estimated that 42.4% of low income households4

in Waterloo Region experienced some degree of food insecurity (defined as “not having enough to eat, worryingabout having enough to eat, or not eating the desired quality or variety of food, due to lack of money”) in 2001(ROWPH, Sep. 2004). It costs about $112.00 per week fora family of four to eat a healthy diet in Waterloo Region. When shelter, household items, and other essential costs

are taken into account, a family on social assistance orwith two adults working full-time at minimum wage wouldfind it difficult to afford sufficient healthy food (ibid).

The problem of insufficient income with which to buy foodin Waterloo Region is reflected through use of food banksand other emergency food distribution sites. The FoodBank of Waterloo Region distributed food hampers ormeals to over 25,000 people through its member agenciesand programs in 2004, an 11% increase over 2002(FBWR, 2005).

A region with a diverse agricultural economy, linked withlocal food needs and markets, will be more sustainable inthe long term. It will have lower environmental costs andreduced demands on transportation infrastructure. It willstrengthen linkages in the local economy by keeping moremoney circulating locally and therefore help to preserverural culture.

We have a prosperous agricultural region, yet not much food that is produced in Waterloo Region

is sold here.

2.3 Agricultural Production and Food Distribution

4 Low income households are defined as those whose incomes are below the Low-Income Cut-Off (LICO). 10.3% of households in the Region are in this category.


11

Compared to other regions across Ontario, WaterlooRegion’s farm sector is relatively prosperous. The Region’sfarms ranked third in the province in gross receipts perfarm in 2001, with an average of over $262,800 per farm.Net revenue per farm, at over $39,000, was almost twicethe provincial average, and second only to Niagara Region.

Farms in the Region averaged 156 acres, significantlysmaller than the provincial average of 226 acres. As shownin Figure 3, the size difference is largely explained by thepredominance of beef, dairy, and hog farms in the Region,which are smaller than field crop type farms (HCA, 2003,pp.26-28, pp. 3-16).

35.00%

30.00%

25.00%

20.00%

15.00%

10.00%

5.00%

0.00%

Dairy BeefHog

Poultry

Field CropsFruit &

VegetablesSpecia

lty

Combination

Perc

enta

ge

OntarioWaterloo

Source: HCA, 2003, p.16

Figure 3: Farm Types in Ontario and Waterloo Region, 2001.

The strong farming sector makes an important contributionto Waterloo Region’s economy, with every job in the agricultural sector supporting another four in the widereconomy (ibid, p.59). Taken as a group, the primary (farming), secondary (processing and distribution) and tertiary (retail) sectors of the Region’s agriculture and foodeconomy support 11.3% of the Region’s labor force, comparable to any other major sector of the local economy(ibid, p.100). The secondary sector alone supported 6,674jobs directly in 2002 (ibid, p.69).

2.3.1 The Agriculture and Food Economy in Waterloo Region


12

2.3.2 Distribution of Local Food Products

Our food system relies heavily on imports to meet consumer demand. Canada imports about 40% of its vegetables (excluding potatoes) and 80% of its fruit, withmost of the imports coming from the USA and Mexico(Riches et al, 2004). The Food Flow Study (HCA, 2005)attempted to determine what per centage of food that isconsumed in the Region of Waterloo has been grown,raised and/or processed in the Region. A basket of 20foods (shown in Table 1), all commonly eaten and capableof being grown or raised locally – was assessed in both

supermarkets and convenience stores. In most cases theamount of Waterloo Region (WR) content found in fooditems is low as a result of the integration of WaterlooRegion’s food production into theprovincial, national,and international processing, distribution, andretail systems.

Food Ontario content WR content Food Ontario content WR content

Ground beef Low – moderate Very low Wholegrain crackers Insufficient info Insufficient info

Pork chops Low – moderate Very low Quick oatmeal Moderate Very low

Beef wieners Low Very low Corn flakes Insufficient info Insufficient info

Chicken breasts Moderate – high Low Fresh apples Very high Moderate

Cooked ham Low Very low Apple juice Moderate Very low

2% milk Very high Low Fresh carrots Moderate None

Fruit yogurt Very high Low Fresh tomatoes Moderate high None

Cheddar cheese High Very low Strawberries (out ofseason)

None None

Eggs High Very low Strawberry jam Very low None

Multigrain breadOats, cornmeal &soybean: very high

Very low Potato chips High Very low

Table 1: Degree of Ontario and Waterloo Region Sourcing of Selected Foods in WR Retail Outlets

<10% Very low 10-29% Low 30-59% Moderate 60-79% High >80% Very high

Source: HCA, 2005


13

To explore the availability of local productsfurther, Region of Waterloo Public Healthconducted a series of grocery store andfarmers’ market audits in order to determine the extent to which importedproduce was available during peak availability of local produce. (ROWPH,Nov. 2005a) As shown in Table 2, thisstudy shows that, even during the peakseason, produce grown in WaterlooRegion is not readily available to residents.

ProductNumber and Per cent of

Vendors Selling Region ofWaterloo Product

Number and Per cent ofVendors Selling Ontario

Product

Number and Per cent ofVendors Selling Imported

Product

Asparagus (n*=26) 1 (4%) 25 (96%) (11)** No imported product

Strawberries (n=35) 2 (6%) 30 (86%) (1) 9 (26%)

Leaf Lettuce (n=18) No ROW product 14 (78%) (2) 7 (39%)

Sweet Corn (n=28) 3 (11%) 25 (89%) (8) No imported product

Field Tomatoes (n=30) 2 (7%) 30 (100%) (2) No imported product

Carrots (n=20) 1 (5%) 19 (95%) (4) 1 (5%)

Bartlett Pears (n=23) No ROW product 20 (87%) (2) 6 (26%)

White Potatoes (n=23) 2 (9%) 22 (96%) (0) No imported product

Table 2: Origins of Eight Products at Randomly Selected Grocery Stores and Farmer’s Markets during their peaklocal Season

Source: ROWPH, Nov. 2005a* n refers to the number of vendors audited** the second number in brackets refers to the number of vendors who knew their produce was from Ontario but did not

know exactly from where


14

As shown above, Ontario produce iswell represented in grocery storesand markets during peak season. In contrast, Waterloo Region producewas generally available at a morelimited number of locations. Theaudits also made note of other similarproducts that were available, such asdifferently packaged products or different varieties. It is interesting tonote that once a product has even asmall amount of processing associatedwith it, the imported product tends todominate the market. For example,100% of foil wrapped baking potatoesand 80% of baby carrots availablewere imported. This suggests potentialfor growth in the local food processingsector.

Interviews with primary producers,produce managers, distributors, andmarket managers reinforced theabove findings. There was agreementamong all interviewees that importedproduce is always available somewhereduring the local season. All primaryproducers saw this as a significantproblem and noted that where thereis an abundance of imported productavailable it has the obvious effect ofreducing the price of locally grownproduct. One primary producer commented on the difficulty of distinguishing between local andimported produce and that people’sassumptions of where they cansource local produce are not alwayscorrect.

Retailers also noted the growingdemand for local produce, but stillcarry the imported produce notingthat it is generally more consistent, itis available in the volume theyrequire, it often has longer shelf lifeand it is often cheaper. Primary producers commented on the need tocontinue to educate the public aboutthe health and community economicbenefits of buying locally producedfruit and vegetables.


15

There is a general trend toward an increasing scale ofoperation across Canada’s agriculture and agri-food system, including significantly larger farms and consolidationof food stores (Wilson, 2005). Agriculture and AgriFoodCanada notes that one-third of larger farms (>$100,000sales) account for 87% of farm production and receive75% of agricultural program payments (AAFC, May 2005).Figure 4 and Table 3 illustrate that, while not as dramaticas in the rest of Ontario, this trend is evident withinWaterloo Region.

2.4 Food System Consolidation

Our food system is concentrated in the hands of fewer and fewer players.

1996 2001 Per cent change '96-'01

Total farms Total acresAveragefarm size



Ontario 67,520 13,879,565 206 59,738 13,507,357 226 -11.5% -2.7% 10.0%

WaterlooRegion 1,590 234,406 147 1,444 225,800 156 -9.2% -3.7% 6.1%

Source: Region of Waterloo, 2003

Table 3: Number of Farms, Farmland Area, Average Farm Size and Per cent Change 1996-2001


16

550

500

450

400

350

300

250

200

150

100

50

0$500,000and over

$250,000to

$499,999

$100,000to

$249,000

$50,000 to$99,000

$25,000 to$49,999

$10,000 to$24,999

$5,000 to$9,999

$2,500 to$4,999

Under$2,500

199019952000

Num

bero

fFar

ms

Source: HCA, 2003, p.29

Figure 4: Distribution of Farms in Waterloo Region by Total Gross Receipts Category, 1990- 2000

Food system consolidation is not limited to primary production. InWaterloo Region the top five employersin the food processing and distributionsub-sector account for over 55% ofall jobs in the sub-sector (HCA, 2003,p.69). Though the sub-sector is amajor contributor to Waterloo Region’seconomy currently, this dominance ofa few firms leaves the local foodeconomy somewhat vulnerable topotential corporate relocation decisions (ibid, p.74).

Ongoing consolidation in the foodprocessing and distribution sub-sectoris also making it more difficult forcommodities to retain their uniquelocal identity as they make their way

to the marketplace (HCA, 2005). Intheir audits of supermarket and convenience store shelves in searchof the 20 commonly-consumed foods,food flow study researchers used arandom sampling method to record

the first product of the size and quality they were seeking. Theyfound that almost all of the foods theysurveyed were dominated by two orthree brands that in some cases wereowned by the same parent company.


17

In the food retail sector, four food chains operate 71% ofthe 35 supermarkets in the Region, where consumersspend 77% of their total food expenditures (HCA, 2003,pp.89, 94). These chains are increasingly consolidatingpurchasing decisions through head offices, posing barriersto producers that cannot generate sufficient product volumesto supply all stores in a chain throughout the year (ibid, p.89).

These findings confirm analysis made elsewhere about theeffect of concentration in the food industry on the availability of local food (Winson,1993; Waltner-Toews and Lang, 2000). The image below, for example, was created to portray the food system in Europe, but couldalso represent the situation in Waterloo Region.

160,000,000

89,000,000

170,000

600

110

8,600

80,000

160,000

3,200,000

POWER

Consumers

Customers

Outlets

Supermarket formats

Buying desk

Manufacturers

Semi-Manufacturers

Suppliers

Farmers/producers

Source: Grievink, 2003.

The Supply Chain Funnel in Europe

Figure 5: Shift in the supply chain: Retailers, not farmers, dominate the food supply


18

In a free market economy, the supplyof food tends to be driven by the goalsof productivity and efficiency to minimize costs and maximize profits.Over the past several years, theeffects of competition and subsidiesin the global market have reducedthe price of agricultural commoditiesto record low levels (resulting fromhigh volume outputs and excess supply). As a result of this trend, themarket price of many locally grownfood products may not reflect all ofthe production costs. This makes itincreasingly difficult for local farmersto earn a living and keep their farmviable. When agricultural policy isdriven solely by the goals of productivity and efficiency, the marketoutcome may lead to social, health,and environmental consequences thataffect the community as a whole(Waltner-Toews and Lang, 2000).

2.5.1 Social Consequences

The health of rural communities isrecognized as a key component of acommunity food system plan. Forexample, the US Department ofAgriculture includes it in its definitionof sustainable agriculture as a system “that will, over the long-term:(1) satisfy human food and fiberneeds; (2) enhance environmentalquality and the natural resource baseupon which the agricultural economydepends; (3) make the most efficientuse of non-renewable resources andintegrate, where appropriate, naturalbiological cycles and controls; (4)sustain the economic viability of farmoperations; and (5) enhance the quality of life for farmers and societyas a whole. (USDA, 2005, emphasisadded)

The Rural Health Study (ROWPH,2003) was conducted to gain a better understanding of the factors that affect the health of rural residents inWaterloo Region. It identified that

rural residents have a strong sense of connection to the land and history,which leads to a sense of communityand belonging which in turn contributesto their health. It was clear that farming is more than a business forthe farmers who were interviewed. Itwas also clear that the business offarming is changing. Smaller farmsare disappearing, and those left arefinding it increasingly difficult to compete with larger farms and thesubsidized commodities from othercountries. As a result of all these factors, farmers are facing a greatdeal of stress and major financialconcerns, resulting in many pursuingoff-farm incomes (ROWPH, 2003,and AAFC, May 2005). The studyalso found farm succession to be aconcern. As one participant stated,"Young people end up leaving andthe community loses - they see nofuture in farming."

2.5 Social and Environmental Consequences

The structure of our food systemhas social and environmental

consequences.


2.5.2 Environmental Consequences

One environmental consequence of a system that sourcesfood from distant locations is the greenhouse gases emittedin its transportation. Greenhouse gases are emittedthrough the burning of fossil fuels, and affect air qualityand global climate change. A recent study of imports5 of31 commonly-eaten foods capable of being grown orraised in Waterloo Region tracked the distances travelled.It found that imports of the studied foods travel an average of over 4,500km (median of over 3,700km) toWaterloo Region, and generate an average of 1.8 kg ofgreenhouse gases (median of 1.0 kg) for every kg of foodimported. Imports of the studied foods generate a total ofover 50,000 tonnes greenhouse gas emissions annually,which is equal to the average emissions of over 16,000cars on our roads each year (ROWPH, Nov. 2005b).Although the greenhouse gases created are not all emittedwithin Waterloo Region, the emissions result from demandcreated here and contribute to the broad environmentalissue of climate change.

Tomatoes serve as an interesting example. Canned tomatoes travel an average distance of 5,244 km to get toWaterloo Region. For every kg of canned tomatoes imported,

1.1 kg of greenhouse gas is created. If all the tomatoes consumed in Waterloo Region came from Leamington,each kg of tomatoes would create 14 times fewer emissions. If all the tomatoes came from within WaterlooRegion, each kg would create 132 times fewer emissions.

Imports of only the 31 foods tracked in this study areresponsible for more than the equivalent of 5% of thegreenhouse gases emitted by households in the Region(ROWPH, Nov. 2005b). This environmental impact isentirely preventable since all of the studied foods arecapable of being grown in the rich agricultural lands ofWaterloo Region.

195 Imports were from outside of Canada: data on inter-provincial or inter-regional food trade are not available.


2.6.1 The local food economy is gaining support

Though the number of farms is declining and the remainingones are becoming bigger, the trend is not as strong inWaterloo Region as in the rest of the province. OMAFRA’srepresentative in Waterloo Region calls the Region “theking of small farms” because the average farm size issmaller than the province’s and yet net farm income iscomparatively strong.

(i) Farm Direct Sales Driven by low commodity prices, a growing number ofWaterloo Region farmers have found a renewed interest inbecoming “price setters” by selling directly to consumers.In fact, some farmers are earning up to 50% of their

income in this way (HCA,2003, pp.80-84). However,farmers describe barriersto this approach, such ascompetition from cheaperimports and federal orprovincial regulations thatseem to be designed forlarger-scale operations.

(ii) Farmers MarketsFarmers’ markets are a convenient way for people toaccess healthy food, an important urban design feature inthe revitalization of neighbourhoods and a way for farmer-vendors to capture higher retail (versus wholesale) prices.Waterloo Region features four large farmers’ markets(Cambridge, Kitchener, St. Jacobs, and Waterloo) as well

as three emerging markets (Elmira, Wellesley and NewHamburg).

Farmers markets are a strong part of both urban and ruralculture in Waterloo Region: they serve both local needsand as day trip destinations. Approximately 75% of consumers in the urban areas of Waterloo Region shop ata farmers market between June and October (ROWPH,Nov. 2005e). Collectively, consumers spend over $20 million annually at farmers’ markets in Waterloo Region,which is 2% of the $1 billion spent annually on food (HCA,2003, p98).

(iii) Food Box Programs & Community SharedAgriculture ProjectsFood Box programs are a form of farm-direct selling inwhich farms, sometimes through organizations that poolproducts from several farms, deliver boxes of fruits andvegetables to pick-up locations in the city. They can alsobe offered at a discounted price through charitable organizationswith the intention of providing affordable access to nutritiousfood to people on low incomes. For example, WaterlooRegion has a program called the Good Food Box that makesmonthly deliveries to 21 sites throughout the Region.In Community Shared Agriculture (CSA) programs, farmersestablish a price for a share of their harvest. Consumerspurchase these shares at the beginning of the season(thereby sharing in the risk with the farmer), and their “dividend” is a weekly delivery or pick-up of producethroughout the season. At least four CSAs, ranging in sizefrom 30 to 100 shares each, currently operate in WaterlooRegion. Informal discussions with farmers operating CSAprojects suggest that all have waiting lists, demonstratingan opportunity for more farmers to try this approach.

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2.6 Emerging TrendsWaterloo Region has a prosperous local and agricultural economy and some emerging trends are increasing consumer food options.


2.6.2 Consumers Are Interested in Local Food

(i) Popularity and impact of the Buy Local! BuyFresh! Map The Buy Local! Buy Fresh! Map is a consumerguide to food products grown or raised on farmsin Waterloo Region. It has been published as ajoint initiative of Region of Waterloo Public Healthand Foodlink Waterloo Region since 2002. With50,000 copies distributed annually, the Map seemsto have found a niche with some consumers.Recent focus group research found that consumers identify the Buy Local! Buy Fresh!Brand with the experience of visiting local farmsand building relationships with farmers; spendingtime with family, and educating their childrenabout where food comes from. (ROWPH, July2005).

An evaluation of the Map in 2004 found that56.4% of map farmers reported an increase inthe number of visitors to their farm (which 80.6%of farmers attributed to the Map) and 44.8% ofMap farmers reported an increase in sales (which84.6% of farmers attributed to the Map)(ROWPH, Mar. 2005).

21

100%90%80%70%60%50%40%30%20%10%

0%

58%

30.4%

11.8%

%of

Resp

onde

nts

List

ing

Reas

on

Figure 2: Reasons for Buying Local Food

88.6%

43.6%

23.6%13.8%

Support local

farmers

Local isfresher

Preserveslocal

farmland

Decreasesdependencyon imports

Local hastravelled

less

Local ischeaper

Local issafer

2.6.3 Urban agriculture

Urban agriculture has the potential toimpact the social, economic, andenvironmental aspects of a communityand thus impacts people’s health(Mougeot, 2000). Urban agriculture isbecoming a well documented practicein Canada and has with the potentialto mitigate several environmental andpublic health issues, such as storm

water retention, food insecurity, urbanheat islanding, energy efficiency, air quality, climate change, habitat loss,social isolation and crime prevention(World Health Organization, 2002).

In Waterloo Region, there are currentlyapproximately 31 community gardensoffering at least 679 individual plotsto community gardeners. In addition,there are at least 6 green roofs or

rooftop gardens in Waterloo andKitchener (ROWPH, Nov. 2005d). Ina recent survey 70% of urban residents indicated it is important tothem to be able to grow their ownvegetables and 38% of residents indicate they do so, predominantly intheir backyards (ROWPH, Nov.2005e).

(ii) Consumers want to buy local foodA 2003 survey commissioned by Public Health asked six questionsdealing with consumer attitudes and practices related to buyinglocal food. It found that 87.1% of residents believe it is eithersomewhat (49.2%) or very (37.9%) important to buy local food.The reasons they do so are shown in Figure 8. 71.3% of consumers report a willingness to buy more local food if it werelabeled as local (ROWPH, Feb. 2004).


Over the next 40 years, the population of Waterloo Regionwill increase by over 50%, with a corresponding increaseddemand for food. The population will change demographicallysuch that the proportion of older people and new immigrantswill grow.

As these population subgroups tend to consume morefruit, vegetables and legumes (ROWPH, Oct. 2004), it islikely that the demand for these foods will rise. As the

proportion of individuals 65 and older increases in the next 40 years, projected trends for coronary heart disease arealso expected to increase (ROWPH, Nov. 2005c).

Add to these trends the potential for food system disruptiondue to rising fuel costs, climate change, threats to watersupplies, or other economic disruptions, and it starts tobecome clear that the current food system may not beentirely sustainable in the long run.

An Optimal Nutrition Environment: A ViablePossibility in Waterloo Region

To assess the viability of a food system that supplies moreof its own food, a 2005 Public Health study (ROWPH June2005) calculated the optimal nutritional needs of WaterlooRegion’s projected population in forty years, and assessedwhether the Region’s agricultural land was capable of supplying it.

The study started with the current dietary patterns ofWaterloo Region residents and compared them to the recommendations of the Canada Food Guide. Of the foodsthat are under-consumed, such as fruits and vegetables,whole grains, and nuts and legumes, the study assumedthat current consumption of foods which must be imported(e.g. rice, citrus fruits, exotic nuts) would continue. It thencalculated how many extra servings of foods that could begrown in Waterloo Region would be necessary to achieveoptimum nutrition (see Table 4).

22

Section 3: The Future of Waterloo Region’s Food System


23

The study then projected the number of additional servingsneeded of locally-grown foods into the future, using projected population numbers for 2026 and 2046, andcompared this to the existing base of agricultural land inthe Region. It found that the need for many key nutritiousfoods could be met in whole or part from local production,and that only a 10% shift in agricultural production6 by 2026or a 12% shift by 2046 would be required to produce thesefoods in Waterloo Region. The shift could be achieved by changing the production on existing lands from one

commodity to another, or by making use of agriculturalland not currently in production, or some combination ofboth. Further research would be necessary to determinethe optimum means of achieving the shift.

It would appear, from the above research, that WaterlooRegion’s agricultural land base may potentially be capableof supplying the foods that could meet the future optimalnutritional needs of the population.

Food group

(fresh and processed)

Canada’s Food GuideRecommendations2000-cal diet[servings/person/day]

Both local and imported food

IDEAL : Recommendedservings from a locally-based diet

CURRENT: Food intakein Waterloo Region(2005)

DIETARY CHANGENEEDED:...to meet the recommended diet, thatcould be provided by ourlocal food supply

Grains

6wheat & rice * >4

oats, rye, barley, other 2 0.37 1.63

Vegetables

7

7† 3.65 3.35

dark-green 2 0.42 1.6

deep orange, red, yellow 1 0.43 0.57

potatoes & other starchy vegetables 2 1.5 0.5

other vegetables 2 1.3 0.7

Fruit

3

tropical **

other than tropical 2.5 1.1 1.4

- melons, berries 0.5 0.32 0.18

- other local fruit 2 0.78 1.2

Meat and Alternates

3meat, fish, poultry *** >1.5

dry beans, peas, lentils, nuts 1.5 .86 .64* Wheat and rice are more-than-adequately consumed and mostly imported into the Region.† The study assumed that local agricultural lands could grow all vegetables necessary for the recommended diet.** The study assumed that current consumption of imported tropical fruits would continue.***Meat, poultry, fish, eggs and dairy products are consumed adequately, therefore were not included in this study.

Data Source: ROWPH, June 2005.

Table 4: Current Waterloo Region Food Intake Compared with Recommended Amount of Food that could beSourced Locally


A healthy community food system plan is a collaborativeeffort focused on increasing choices and options in theprevailing food system in order to improve the health ofindividuals, the community and the environment over time.The goal is to create a system in which all residents haveaccess to, and can afford to buy safe, nutritious, and culturally-acceptable food that has been produced in anenvironmentally sustainable way and that sustains ourrural communities.

The development of a Healthy Community FoodSystem Plan for Waterloo Region focuses on the following objectives:

1. To ensure that all residents can afford to buy the food they need to sustain health *

2. To preserve and protect Waterloo Region’s agricultural lands *

3. To strengthen food-related knowledge and skills amongconsumers *

4. To increase the availability of healthy food so that the healthy choices are easier to make

5. To increase the viability of farms that sell food to local markets in order to preserve rural communities and culture

6. To strengthen the local food economy7. To forge a dynamic partnership to implement the plan.

Objectives 1-3 (asterisk) are already being addressed tosome degree by existing initiatives in Waterloo Region.These are only briefly highlighted below with cross-references to where action is underway. The remainder ofthis section proposes preliminary strategies to stimulatediscussions toward accomplishing objectives 4–7.

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Section 4: A Healthy Community Food System Plan for Waterloo Region


Objective 1: To ensure that all residents can affordto buy the food they need to sustain health

A healthy food system ensures that all people haveincome sufficient to buy a diet that supports health, atprices which support continued viability of farming. Groupssuch as Opportunities Waterloo Region are pursuingcampaigns related to this objective.

Ideally, income support policies would make the need todeliver food assistance through food banks and meal programs unnecessary. Until then, Regional SocialServices along with the Cambridge Self Help Food Bank,Food Bank of Waterloo Region and the House ofFriendship are working with the over 65 food assistanceprograms to identify gaps in service and improve servicedelivery. The Review of Emergency Food Distribution inWaterloo Region project will produce a report in early 2006for discussion among providers, customers and stakeholderson community solution building related to food assistance.

Objective 2: To preserve and protect WaterlooRegion’s agricultural lands

A healthy food system ensures that sufficient land is available to produce the foods required to support thehealth of local populations. In addition to protecting thefarm land from development, farmers need to be supportedand the land needs to be used in a sustainable way, sothat it will have the capacity to continue to produce food forfuture generations.

The Region of Waterloo already has some of the strongestfarmland protection policies in the province, including policies which limit development outside of designatedurban boundaries, prevent severances of agricultural landsinto lots too small to be farmed efficiently, and which

encourage environmentally responsible agricultural practices.

Regional staff is currently preparing a new draft of aRegional Official Plan, which among other things will propose policies related to agricultural lands. Opportunitiesfor public input into the new Official Plan will follow in2006.

Objective 3: To strengthen food-related knowledge and skills among consumers.

Education must play a key role in encouraging residents toeat a more nutritious diet. Public Health has always had astrong mandate for food and nutrition education. Forexample, since 1985, the Community Nutrition Workerprogram has used a peer-led approach in the communityto improve knowledge and skills related to obtaining andpreparing nutritious foods (ROWPH, Nov. 2004). OtherPublic Health examples include the Eat Smart program forrestaurants and efforts to encourage healthy eating inschools.

Recent research identified several educational strategiesthat may reduce barriers to buying local food as well asencourage healthier eating habits. The suggested strategiesincluded educating consumers about what foods are grownlocally, the times local foods are in season, and teachingskills for preserving local foods for the off-season(ROWPH, Feb. 2004). These strategies were also suggested by local farmers participating in a University ofWaterloo study on local food systems development inWaterloo Region (Soots, 2003). A number of other programs in Waterloo Region also pursue this issue,including Foodlink Waterloo Region’s Local Harvestnewsletter, The Working Centre’s urban agriculture workshops, and programs of the Cruickston CharitableResearch Reserve.

25


A healthy food system makes nutritious choices identifiable andmore conveniently accessible, whilelimiting the availability of less healthychoices.

Possible Strategies:

4.1 Ensure Healthy Food isAvailable in every NeighbourhoodUnder the Planning Act, local municipalities have the authority toregulate the use of land through zoning by-laws. However, zoning aproperty specifically for food retail usedoes not necessarily guarantee that aprivate firm will establish a food store onthe property. However, it may be possibleto increase the availability of healthyfood in neighbourhoods by developingzoning and/or financial incentives that municipal governments could use toattract food retail operations to targeted

locations, similar to existing mechanisms used to designateaffordable housing units. Or, forexample, it may be that new opportunities are presented by thedevelopment of station sites alongthe new transit corridor.

Other strategies beyond governmentincentives or regulations also need

to be explored to attract retailers ofhealthy food to neighbourhoods. Forexample, mobile farmers’ marketscould bring fresh local produce todifferent neighbourhoods on differentdays of the week or street vendorsmight venture beyond traditional hotdog fare to offer a variety of otherchoices.

26

New York Greenmarkets

Greenmarket, a program of the Council on the Environment of NYC, promotesregional agriculture and ensures a supply of fresh, local produce for residentsthrough smaller-sized, open-air farmers markets. Over 175 growers sell in 54markets year-round, including locations near transit stations. By providingregional family farmers with opportunities to sell their fruits, vegetables andother farm products to residents, Greenmarket helps preserve farmland for thefuture. Many restaurants also obtain ingredients at these markets, and students participate in educational programs.http://www.cenyc.org/HTMLGM/maingm.htm

Objective 4: To increase the availability of healthy food, so that the healthy choices are easier to make.


4.2 Increase Urban AgricultureProgramsAnother way for people to haveaccess to healthy food is for them togrow it themselves, in backyards,community garden plots, or rooftopgardens. Waterloo Region has ahealthy start in establishing thesekinds of initiatives. Additional effortscan make the urban agricultureoption and its multiple health benefitsavailable to more people. For example,at present, the City of Kitchener hasa grant program to support the establishment of community gardenswhich could be adopted by other municipalities.

There may also be opportunities toencourage community and rooftopgardening initiatives through OfficialPlans and zoning by-laws, by tradingoff height or parking restrictions forgarden space.

4.3 Restrict Unhealthy Foods inIdentified neighbourhoodsSome jurisdictions in North Americaare attempting to limit the proliferationof high-energy, low-nutrient foods (i.e.“fast food”) in the immediate vicinityof schools (Brunner, 2005). Therationale is that dietary habits formedin adolescence are often maintainedfor life, and that helping children andyouth form good dietary habits willhelp prevent chronic disease.

27

UBC “Soil to Salad Bar” School program This program gets inner-city Vancouver school children involved in growing, harvesting and preparing their own salad greens and other vegetables. UBCFarm is a 40-hectare student-run operation on the University of British Columbia(UBC) campus. It integrates sustainable land management and food productionpractices with education, community development, research and innovation.UBC Farm is forging ties with community groups and neighbourhoods, and is affiliated with the University’s Faculties of Agricultural Sciences, Forestry, andScience. http://www.publicaffairs.ubc.ca/media/releases/2002/mr-02-68.html


The future health of WaterlooRegion’s food system and its ruralcommunities is dependent on farmersbeing able to earn a reasonable living from agriculture. Strengtheningthe viability of farms that sell foodlocally takes advantage of the uniquemixed, small farm profile evident inWaterloo Region.

28

The Farmers’ Market Nutrition Program (FMNP)The WIC (Women, Infants and Children) Program provides supplementalfoods and nutrition education at no cost to low-income pregnant, breastfeedingand non-breastfeeding post-partum women, and to infants and children up to5 years of age who are at nutritional risk. The FMNP was established in1992, to provide fresh, unprepared, locally grown fruits and vegetables to WICparticipants, who can purchase these with FMNP coupons. This also serves toexpand the awareness, use of and sales at farmers’ markets. Other WIC programs educate participants on how to select, store and prepare the freshfruits and vegetables they buy with their FMNP coupons. A similar programhas been piloted in Kitchener (ROWSS, 2005).http://www.fns.usda.gov/wic/FMNP/FMNPfaqs.htm

Possible Strategies:

5.1 Increase Farm-gate SalesWaterloo Region has a rich tradition of farm-gate sales of fresh produce. The BuyLocal! Buy Fresh! Map has made this tradition more visible to residents, and hasbegun to have an impact on participatingfarms. There is much room for expandingthis area.

5.2 Expand Local Farmers’ MarketsDespite the success of Waterloo Region’sfarmers’ markets, challenges remain.Often vendors are not Waterloo Regionfarmers and/or sell produce that is notlocally grown and sometimes local produce at the markets competes againstcheaper imports of the same products. Atleast one local market is trying to addressthis through a market by-law preventingthe selling of imported products whenlocal products are in season.

Objective 5: To increase the viability of farms that sell food to local markets in order to preserve rural communities and culture


29

5.3 Establish Farm-to-School (andother public institutions) ProgramsSeveral schools across NorthAmerica are trying to improve thequality of their cafeteria food by eliminating high-fat, high-salt, lownutrient food choices and sourcing

more of their ingredients from localfarms to produce fresh and morenutritious meals. Evaluations haveshown the programs to producemeasurable changes in children’sdiets, which have affected classroombehaviour and could help prevent

chronic diseases (OSNPPH, 2004).Such programs also strengthen theviability of local farming operations.These kinds of programs could beimplemented in university and hospitalcafeterias, or indeed any corporatelunchroom, with similar results.

FoodShare Toronto Farm-to-School Salad Bar With childhood obesity on the rise, and increasing disconnect between food production and urban life,the salad bar approach seems sensible. The SaladBar Program aims to increase children’s consumptionof fresh fruits and vegetables, and to purchase theselocally where possible. Statistics gathered from theseprograms demonstrated that when healthy, seasonalfood is presented to them daily, in a way they like, children can change the way they eat. The foods areprepared in advance and do not have to be heated. http://www.foodshare.net/publications_09.htm

Farm-to-University Food ServiceUniversity or College food service departments have an important influence over students' eating habits and health. Farmto college projects offer opportunities for increasing farmer income, supporting the local economy and the environment, andimproving students' eating habits. By purchasing directly from local farmers, they can help local farms stay in business andkeep dollars in the local economy. Each farm to college project is unique to the college or university where it is based. Alist of active farm-to-college programs in the United States and Canada is at http://www.farmtocollege.org/.

5.4 Enable On-Farm Processing FacilitiesCurrently, land zoned as agricultural pays a lower rate of tax thanland zoned for commercial or industrial uses. Farmers seeking tobuild a processing (e.g. canning, freezing, or washing and peeling) facility on their land face the prospect of engaging in aprocess to have a portion of their land re-zoned and paying ahigher rate of tax on that land.

The existing Regional Official Policies Plan allows farmers toestablish on-farm businesses provided the business is compatiblewith, and clearly remains secondary to, the main farm operation.Research may be needed to identify why more farms do not takeadvantage of this opportunity, or to identify whether the existingregulations still pose a barrier to farms.


To meet consumer demand for local food and help make itmore economically viable for farms to sell to local markets,certain gaps in our local food economy need to beaddressed. Retailers (including restaurants, institutions,and grocery stores) demanding it, have very few sourcesof local food that meet their criteria in terms of volume,quality, and processing.

30

The Seasoned Spoon restaurant at Trent UniversityThe Seasoned Spoon is a very successful student-run café co-op that opened on Trent University's Symons Campus.Homemade soup and baked goods are prepared as often as possible with locally sourced ingredients. The not-for-profitSeasoned Spoon has 10 paid staff members, and functions as a co-operative. The purpose is to support local agriculture,and to serve as an educational opportunity. http://www.trentu.ca/opirg/seasonedspoon/

6.2 Establish Incubator Kitchens to Food Retail operationsA shared-use commercial kitchen is a type of business incubator where caterers, street cart vendors, farmers, and producers of specialty/gourmet food items can prepare their food products in a fully licensed and certified kitchen. Kitchenincubators usually offer technical assistance in food processing as well as general business management skills, and theopportunity to form shared services cooperatives for marketing, distribution, and supply purchasing. They are particularlyuseful for preparing locally-sourced food for use in farm-to-cafeteria programs.

Objective 6: To strengthen the local food economy


Possible Strategies:6.1 Encourage Local Food Processing IndustryAlthough there is a market for fresh, unprocessed fruitsand vegetables, the realities of today’s lifestyles and ourseasonal climate require that food products undergo a certain degree of processing to attain a viable marketshare. Decisions to invest in food processing facilities, aredriven by market forces. Currently, those forces are notcreating food processing facilities to serve exclusively localmarkets. Municipal and private partners need to cometogether to identify ways to stimulate entrepreneurialdevelopment in this area.

6.3 Encourage Local Food Distribution SectorIn addition to building an infrastructure for processing localfoods, a healthy community food system requires specialtydistributors who focus on healthy local products. Therecently-established Elmira Produce Auction Co-operativeis a promising start in this direction, as it provides onelocation where re-sellers, distributors and caterers purchasewholesale quantities of fresh produce. Similar initiativescould expand into other areas of the Region and/or expandinto preserved or processed local foods in the off-season.

6.4 Establish a Local Food LabelA 2003 survey of Waterloo Region residents found that71.3% of residents said they would buy more local food if itwere labeled as such. One of the recommendations of theGrowing Food and Economy Advisory Committee was to“initiate a process for Waterloo Region branding of locallygrown and processed products” (HCA, 2003). FoodlinkWaterloo Region and Region of Waterloo Public Health co-own rights to the logo on the Buy Local! Buy Fresh!Map, and have done some research with WLU studentsinto the viability of expanding the brand for other uses(ROWPH, July 2005). Further research may explore thepossibilities of a label that defines "local" more broadlythan Waterloo Region.

31

County Taste the SeasonCountry Taste the Season is a food wholesaler and distributor that markets foods to and from the South East region ofEngland. Over 70 different independent food and drink companies from four counties supply their products through this co-operative local food distribution scheme. With support from the counties of Kent, Sussex, Surrey, and Hampshire, thisenterprise is an example of a successful public-private partnership. http://www.countyproduce.co.uk/


Objective 7: To forge a dynamic partnership to implement the Community Food System plan

Many of the interventions suggested in this interim reportare beyond the jurisdiction of the Region of Waterloo. The goal of achieving a healthy food system for WaterlooRegion will require that many different organizationsendorse the plan and co-operate in pursuing its aims.

A body comprised of diverse stakeholders in WaterlooRegion’s food system, such as Regional and localmunicipal planners, Foodlink Waterloo Region, WaterlooFederation of Agriculture, economic development, foodsystem entrepreneurs, etc., will be necessary to advancethe strategies and policy options developed.

32

Section 5: ConclusionThe concept of broad communityfood system planning is providing anintegrated response to the seeminglydisparate food-related problemsaffecting public health. A healthycommunity food system approachgoes beyond individual behaviouralchange, and examines the broadercontext in which food choices occur.It seeks to build healthy communitiesby considering the ways in whichsocial, economic and environmentalconditions determine health. The goalis to create a system in which all residents have access to, and canafford to buy safe, nutritious, and culturally-acceptable food that has

been produced in an environmentallysustainable way and that sustains ourrural communities.

The interim report Towards a HealthyCommunity Food System for Waterloo Region integrates the findings of a number of local studiesrelating to local agriculture, ruralhealth, food availability, buying practices, environmental issues anddietary intake of the population. InSection 1, the connection is madebetween a community food systemapproach and the social, economicand environmental determinants ofhealth. Section 2 describes the state

of the local food system today, anddocuments the impacts it is havingon public health. Section 3 points outsome trends for the future, highlightingchallenges and opportunities presentedby population growth and demographicchange. Section 4 provides objectivesand preliminary strategies to guidefurther planning in Waterloo Region.


33

References

AAFC (Agriculture & Agri-Food Canada). 2005. Agriculture Policy Framework. Retrieved fromwww.agr.gc.ca/cb/apf/index_e.php

AAFC. May 2005. Overview of the Canadian Agriculture and Agri-Food Sector.Retrieved from www.agr.gc.ca/cb/apf/pdf/bg_con_overvu_e.pdf

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Self Improvement

Towards A Healthy Community Food System