CITY OF VICTORIA - Victoria's Official Community Plan

0 downloads 338 Views 3MB Size Report
efforts to establish a Capital Regional District (CRD) Food Policy Council or, ...... Victoria: Province of British Colu
CITY OF VICTORIA FOOD SYSTEM DISCUSSION PAPER December 2009 Prepared for:

City of Victoria By

“Eaters, that is, must understand that eating takes place inescapably in the world, that it is inescapably an agricultural act, and how we eat determines, to a considerable extent, how the world is used. This is a simple way of describing a relationship that is inexpressibly complex. To eat responsibly is to understand and enact, so far as we can, this complex relationship.” Wendell Berry, from the “Pleasures of Eating”1

1

Berry, W. 1990. What Are People For? North Point Press, New York.

ACKNOWLEDGEMENTS Written By: Kristina Bouris, Masselink Environmental Design (lead author) Derek Masselink, Masselink Environmental Design Linda Geggie, Linda Geggie Consulting Research Support: Danielle Stevenson With thanks to City of Victoria staff interviewed for this paper: Doug DeMarzo Kim Fowler Michael Hill Mark Hornell Jocelyn Jenkins Rob Johns John Kitson Alison Meyer Gail Price-Douglas Terry Snow Kimberley Stratford Geoff Welham And thanks to community food system practitioners who participated in an issues identification focus group: Lee Fuge, FoodRoots Cooperative Paula Hesje, The Land Conservancy Geoff Johnson, permaculture specialist Patti Parkhouse, VicWest Food Security Collective (Victoria West Community Association) Cover Photograph: Susan Tychie, Share Organics Prepared for: Cameron Scott, Senior Planner Community Planning, City of Victoria

EXECUTIVE SUMMARY The purpose of this discussion paper is to present a synthesis of the issues, opportunities and challenges related to Victoria’s urban food system for the purposes of providing direction for City of Victoria policy. An urban food system is one in which food production, processing, distribution, consumption and recovery are integrated to enhance the environmental, economic, social and nutritional health of a particular community and place. 2 The discussion paper achieves its objectives by introducing the concept of urban food systems; reviewing existing food related initiatives in the Victoria community; creating an inventory of food related regulations, policies, programs, services and projects supported by the City of Victoria; identifying issues related to Victoria’s food system from the perspective of local researchers, City staff and urban food system specialists; examining how the cities of Seattle, Portland, San Francisco and Vancouver support their urban food systems; and by developing a list of lessons learned, considerations and opportunities to explore that can provide guidance and direction to the development of City policy, particularly through the Official Community Planning process. All information is current to October 1st, 2009. Urban food systems have multiple social, ecological and economic benefits. In Victoria, organizations, agencies and businesses deliver many initiatives that enhance urban-based food production, processing, distribution, consumption and the recycling of organic wastes. Recently, a growing number of local governments have become involved in the development of a more sustainable urban food system, particularly through the support of existing community initiatives. Even without a clear mandate for food policy, the City of Victoria is already involved in foodrelated activities across all the stages of the food system. These are wide-ranging – albeit largely disconnected from each other – and involve almost every City department. In spite of the presence of much of the hard and soft infrastructure necessary for a strong urban food system, there are still a number of challenges. The four case study cities also faced many of the same challenges. Two elements made up their responses: 1) an official mandate to support the development of an urban food system, strengthened by the support of City Council, senior staff, community stakeholders and a dedicated City staff position; and 2) a coordinated, comprehensive set of municipal government policies, regulations, programs, services and projects that aim to enhance the urban food system at its various stages. The considerations for the development of a municipal food policy and a supporting program are grouped under five headings and summarized below: Municipal Food Policy Development

2



Consideration should be given to developing an overarching municipal food policy that will achieve social, economic and ecological benefit for Victoria.



Consideration should be given to recognizing the community’s contributions to the urban food system by engaging organizations in City food policy development from the outset and over the long-term.

Based on Garrett, S. and G. Feenstra. 1999. Growing a Community Food System. Pullman, WA: Western Rural Development Center.

City of Victoria Food System Discussion Paper

1



The City’s existing food-related initiatives should be celebrated, and consideration given to unifying these initiatives through a coordinated municipal food policy.

Policy Implementation 

Consideration should be given to developing food system initiatives that draw on the many key roles of municipal government.



Consideration should be given to involving municipal departments, external agencies, other levels of government, and community stakeholders in the development and oversight of food-related initiatives.



Emphasis could be placed on developing food system initiatives that achieve multiple outcomes.



Consideration should be given to involving City Council and key staff in food-related initiatives and policy.

Program Structure 

Consideration should be given to incorporating food system responsibilities within a City staff position.



Thought should be given to where a municipal food program would be housed within the City and the accompanying reporting structure.



Consideration should be given to training City staff in the technical skills and knowledge needed to support food system initiatives.



The City should consider how community organizations can work to co-deliver or support municipal food system programs.

Community Engagement 

Multi-stakeholder Food Policy Councils provide valuable guidance on food policy development and implementation; consideration should be given to supporting existing efforts to establish a Capital Regional District (CRD) Food Policy Council or, alternatively, establishing a similar body at the City level.

Priority food-related opportunities for the City of Victoria to explore are grouped under the stages of the food system and summarized below: Food Production 

Examine options for increasing the number of community allotment gardens and plots in Victoria, including the possibility of establishing allotment plots on Park lands.



Investigate feasibility of establishing community orchards on City lands.



Explore development of edible landscaping guidelines for the public realm.



Clarify the bylaw status of beekeeping, and develop guidelines to encourage the hobby as needed.



Investigate opportunities for Victoria to contribute to the preservation of farmland outside municipal boundaries.

Food Processing 

2

Investigate opportunities for City to support regional food system infrastructure (e.g. abattoirs). City of Victoria Food System Discussion Paper

Food Distribution 

Explore opportunities for the City to support Victoria’s food access sector (i.e. charitable and low-cost food programs).



Consider adding food to the emergency preparedness programs, beginning with an assessment of how much food would be available in an emergency from local farms, gardens and retailers.



Explore opportunities for ensuring that all residents have food services and amenities within walking distance.



Investigate options for a year-round farmers market.

Food Consumption 

Explore opportunities for serving more local and healthy food at City functions and the Victoria Conference Centre.

Waste Recovery 

Explore options for improving the recovery Victoria’s organic wastes, including food recovery programs, commercial and household organics collection and composting, and redistribution of organic waste from City operations.

Food System-Wide 

Facilitate a broad discussion regarding the suitability of certain food system activities, including allotment gardens, street food vendors, fruit trees and edible landscaping, for public parks, streets and/or sidewalks.



Investigate potential for redistributing grant funds to support urban food projects.



Identify information needs necessary to support food system initiatives.



Determine opportunities to support new and existing regional food policy and planning initiatives.

City of Victoria Food System Discussion Paper

3

4

City of Victoria Food System Discussion Paper

TABLE OF CONTENTS 1 INTRODUCTION.................................................................................. 9 1.1

Definitions ............................................................................................. 9

1.2

Purpose ............................................................................................... 10

1.3

Data Sources and Study Process ................................................................. 10

1.4

Scope .................................................................................................. 11

1.5

Organization of Discussion Paper ............................................................... 11

2 THE URBAN FOOD SYSTEM.................................................................. 13 2.1

The Food System.................................................................................... 13

2.2

(Un)Sustainability & the Global Food System................................................. 13

2.3

The Urban Food System Alternative............................................................ 14

2.4

The Principles of an Urban Food System ...................................................... 16

2.5

Benefits of Urban Food Systems ................................................................. 17

2.6

Urban Food System Characteristics............................................................. 18

2.7

Food Policy as a Municipal Government Issue ................................................ 21

3 VICTORIA’S URBAN FOOD SYSTEM ........................................................ 23 3.1.

Introduction .......................................................................................... 23

3.2.

Historical Overview of Victoria’s Urban Food System ...................................... 23

3.3.

Regional Context.................................................................................... 24

3.4.

Snapshot of Victoria’s Existing Food System Activities & Stakeholders ................ 25

4 INVENTORY OF LOCAL FOOD-RELATED INITIATIVES .................................. 35 4.1

Introduction .......................................................................................... 35

4.2

Food-Related Programs, Services, Projects and Corporate Policies .................... 35

4.3

Food-Related By-Laws, Zoning and Regulations ............................................. 39

4.4

Food-Related Policies and Guidelines .......................................................... 41

4.5

Food-Related Initiatives at the Regional & Provincial Levels ............................. 42

4.6

Summary of Findings ............................................................................... 44

City of Victoria Food System Discussion Paper

5

5 ISSUES IDENTIFICATION...................................................................... 47 5.1

Introduction .......................................................................................... 47

5.2

Review of Existing Research ..................................................................... 47

5.3

Interviews with City Staff ......................................................................... 47

5.4

Professional Expertise ............................................................................. 48

5.5

Key Assets Supporting Victoria’s Food System ............................................... 48

5.6

Issues Overview ..................................................................................... 49

5.7

Regional Issues that Affect Victoria’s Food System ......................................... 50

5.8

Issues Specific to Victoria’ Food System....................................................... 53

5.9

Summary of Issues .................................................................................. 60

6 CASE STUDIES.................................................................................. 61 6.1

Introduction .......................................................................................... 61

6.2

Selection of Case Study Communities .......................................................... 61

6.3

Methodology ......................................................................................... 62

6.4

Portland ............................................................................................... 63

6.5

San Francisco ........................................................................................ 64

6.6

City of Seattle ....................................................................................... 66

6.7

Vancouver ............................................................................................ 69

7 COMPARABLE ANALYSIS ..................................................................... 73 8 LESSONS LEARNED & NEXT STEPS......................................................... 83 8.1

Municipal Tools to Support Urban Food Systems ............................................ 83

8.2

Lessons Learned and Considerations ........................................................... 86

8.3

Priority Municipal Opportunities to Explore .................................................. 92

8.4

Conclusion ............................................................................................ 94

APPENDIX 1 -

KEY ISSUES FACING VICTORIA’S URBAN FOOD SYSTEM .............. 97

APPENDIX 2 -

KEY FOOD SYSTEM INITIATIVES PROVIDED &/OR SUPPORTED BY THE CITY OF VICTORIA...........................................................103

APPENDIX 3 -

KEY ASSETS SUPPORTING VICTORIA’S FOOD SYSTEM ...............109

6

City of Victoria Food System Discussion Paper

APPENDIX 4 -

MUNICIPAL GOVERNMENT INITIATIVES THAT SUPPORT THE URBAN FOOD SYSTEM IN PORTLAND, SAN FRANCISCO SEATTLE & VANCOUVER ..................................................................113

APPENDIX 6 -

PRIORITY MUNICIPAL OPPORTUNITIES TO EXPLORE & OPTIONS FOR IMPLEMENTATION ...........................................................129

APPENDIX 7 -

GLOSSARY ....................................................................133

City of Victoria Food System Discussion Paper

7

8

City of Victoria Food System Discussion Paper

1 INTRODUCTION Along with air and shelter, food is a basic need and central to the survival of human populations. Within cities, the food system shapes many aspects of daily life and the built environment. The availability and quality of food influences the social sustainability of neighbourhoods and the health of residents. Community gardens, farmers markets and food festivals animate streets and bring people together. Pedestrian and vehicle travel patterns follow routes to food shops, restaurants and fast food outlets. Street food vendors, eateries, food processors, wholesalers and composting businesses provide employment and economic benefits. Land use decisions determine whether rural land will be used for agriculture or new housing developments. The effects of poorly functioning food systems, such as hunger, are often most visible in cities. In short, the food system plays a central role in urban sustainability. Currently, the majority of Victoria’s food is delivered through the global food system. This system is increasingly seen as unsustainable, however, as more evidence of its negative social, environmental and economic consequences emerge, such as the climate change impacts of transporting food across the globe. Re-localized food production, processing and distribution networks are promoted as an alternative, more sustainable approach. While most food production will remain located in peri-urban areas, there is significant potential to strengthen the practices and processes that support urban food systems. Much of the work to develop a more sustainable alternative has emerged from the grassroots. Recently, a growing number of local governments have seized the opportunity to support existing community efforts and to take a prominent role in the development of a more sustainable, urban food system. While many responsibilities for the food system fall outside the jurisdiction of local government, there are many responsibilities that also fall within it. Municipalities have drawn on their roles in key areas - as facilitators, regulators, policy-makers, educators, funders, owners of land and infrastructure, and partners – to support activities that enhance the environmental, social, cultural and economic goals of an urban food system.

1.1

Definitions

In the face of increasing concerns over the sustainability of the dominant food system, growing interest has emerged from the grassroots and some governments in establishing an alternative, namely a re-localized food system based predominantly at the urban level. An urban food system is one in which food production, processing, distribution, consumption and disposal of end products are integrated to enhance the environmental, economic, social and nutritional health of a particular community and place. 3 Urban food systems aim at increasing self-reliance in food, decreasing negative ecological and social externalities, improving health and nutrition, fostering community capacity and ensuring food security for all community members at all times. 4 The specific boundaries of 3

Garrett, S. and G. Feenstra. 1999. Growing a Community Food System. Pullman, WA: Western Rural Development Center.

4

Food security is defined as every community member having access at all times to food that is safe, nutritious, culturally appropriate and personally acceptable from non-emergency sources.

City of Victoria Food System Discussion Paper

9

“urban” vary depending on the issue and context, and range from the neighbourhood to the regional level. Urban agriculture is an important part of an urban food system. Urban agriculture refers specifically to the range of activities involved in growing, raising, processing, marketing and distributing food and non-food products in an urban area. These activities include backyard gardens, community gardens, beehives, orchards, greenhouses, market gardens, livestock production (chickens and other animals) and even small-scale aquaculture, hydroponic greenhouses and closed-loop buildings. Urban agriculture is more than gardening; it also includes those activities necessary to get food from the garden to the dinner plates of urban dwellers, including food preserving, packaging, marketing, selling and transporting. Food security is one of several end goals for an urban food system. Food security exists when all citizens obtain a safe, personally acceptable, nutritious diet through a sustainable food system that maximizes healthy choices, community self-reliance and equal access for everyone. 5 In a fully functioning urban food system, charitable food services such as food banks, soup kitchens and coupon programs would not exist, as every person would have the means to access food from non-emergency sources such as grocery stores, farmers markets, community gardens, and other outlets that provide customers choice, high nutritional quality and dignity. Many of these sources promote food security while supporting urban agriculture, demonstrating that safe, accessible, appropriate food can also be sourced as locally as possible.

1.2

Purpose

This discussion paper has two purposes: 1) to identify urban food system-related issues, opportunities and challenges in the City of Victoria; and 2) to provide direction for the development of City of Victoria policy. The objectives of this paper are: 

To review existing food-related policies, programs and services within the City of Victoria;



To identify, from the perspective of existing community reports and research, issues affecting Victoria’s urban food system;



To survey other municipalities for precedents related to food policy and food-related initiatives; and



To outline considerations that can provide guidance and direction to the City’s development of food system policy and initiatives, including the City’s Official Community Plan process, other policy areas, services and operations.

1.3

Data Sources and Study Process

This paper presents an initial exploration of the City of Victoria food system and food-related initiatives in four other cities. Chapters 1 – 3 and 5 draw heavily on secondary sources, including academic research (primarily unpublished), reports by local community

5

10

Public Health Services Authority. 2008. Community Food Assessment Guide. Accessed from www.phsc.ca, August 3, 2009.

City of Victoria Food System Discussion Paper

organizations, and policy and planning documents from a variety of jurisdictions. Primary research was limited to a small focus group with urban agriculture specialists and one-on-one interviews with City of Victoria staff to complete an inventory of food-related activities and elaborate key issues (Chapters 4 and 5, respectively). The case studies (Chapter 6) draw from a literature review, web research, planning and policy documents, as well as brief interviews with relevant staff in case study cities. The study process was as follows: 1. Documentation of community food system activities and stakeholders in Victoria 2. Literature review of local sources to identify regional/local issues and context 3. Meetings with City of Victoria staff to identify key issues and create inventory of corporate food-related initiatives 4. Review of identified issues by focus group of urban agriculture specialists 5. Identification and survey of urban agriculture and food security initiatives in four leading municipalities 6. Comparative analysis of case study communities 7. Identification of opportunities and recommended next steps

1.4

Scope

This paper takes an urban food system approach in both research and analysis, and therefore considers activities that supports five stages of the urban food system: food production, processing, distribution, consumption and the recycling of end products. These interconnected activities support numerous objectives, including food security. While recognizing the interconnections among food issues at different geographic and jurisdictional scales, the paper has a strategic focus on areas where the City of Victoria has the jurisdiction and capacity to act. The paper is particularly focused on those activities that directly support urban agriculture, and particularly urban food production. A comprehensive review of all activities that support the objective of food security is beyond the scope of this paper. Although Victoria is surrounded by rich marine environment, this paper focuses only on the land-based food system.

1.5

Organization of Discussion Paper

The remaining sections of the paper are organized as follows: Chapter 2 provides an overview of the objectives, characteristics and benefits of urban food systems. It also describes the context for municipal government involvement in the urban food system.

City of Victoria Food System Discussion Paper

11

Chapter 3 describes Victoria’s current urban food system. It provides a brief historical overview and the current regional context. A snapshot of current activities and key stakeholders is provided in tabular form. Chapter 4 identifies food-related initiatives that are supported and/or provided by the City of Victoria. These include programs, services, projects, policies, bylaws and regulations. Regional and provincial regulations that affect Victoria’s food system are also profiled. Chapter 5 presents key assets and challenges confronting Victoria’s food system. These issues are grouped according to theme and scale of impact. Chapter 6 provides four case studies of municipal governments (Vancouver, San Francisco, Portland and Seattle) actively involved in supporting their urban food systems, including an overview of food system initiatives within each city. Chapter 7 presents tabular comparisons of the four case study cities. Chapter 8 summarizes lessons learned and gives a list of considerations that are intended to guide and provide direction to the review and update of the City’s OCP and other initiatives.

12

City of Victoria Food System Discussion Paper

2 THE URBAN FOOD SYSTEM 2.1

The Food System

The Food System is, like the name suggests, an interconnected network of practices, processes and places that link food on its path from production to disposal, and the inputs and outputs along the way. A properly functioning food system relies first and foremost on the air, water and energy produced and consumed within the earth’s ecosphere. Food systems exist at a variety of scales, from the household to the neighbourhood, local, regional, provincial, national, continental and the global. Many interconnected ecological, social, cultural and economic factors and biophysical processes shape these different food systems. For centuries, food systems were rarely bigger than the regional scale. Families would hunt, raise, preserve and consume food for themselves and their extended groups. Surpluses might be traded within the community or the larger region, but the distances people could travel limited the range. Diet and survival depended intimately on local ecological and climatic factors. International exploration gradually opened the door for the trade of food among nations. In the last century, advances in transportation, refrigeration and agricultural techniques have rapidly expanded the opportunities for trading outside the home region, and created a food system that increasingly operates at a global scale. Customers in a supermarket in Victoria, and a small tienda shop in La Paz, Bolivia, can find many of the same food products and brand names.

2.2

(Un)Sustainability & the Global Food System

Where food systems used to be primarily labour-dependent, seasonal, and oriented toward local trade, the global food system trends towards one that is more mechanical, capitalintensive, fossil fuel-dependent and oriented toward global trade. While the choice, quality and convenience for the consumer have generally increased, so too have the global food system’s negative social, economic and environmental consequences. There is a large body of evidence pointing to the unsustainability of the current global food system. 6,7,8,9,10 The list below presents a summary of the key issues: 

In spite of major gains in agricultural yields and productivity, millions of people are undernourished or go hungry;

6

Ableman, M. 2005. Fields of Plenty: A Farmer’s Journey in Search of Real Food and the People Who Grow It. San Francisco: Chronicle Books.

7

Nestle, M. 2002. Food Politics: How the Food Industry Influences Nutrition and Health. Berkeley: University of California Press.

8

Schlosser, M. 2002. Fast Food Nation. Boston: Houghton Mifflin.

9

Saini, S. and J. Volpe. 2007. Why Food is an Environmental and Sustainability Issue. Prepared for University of Victoria Sustainable Gastronomy program. Accessed from www.sustainablegastronomy.com/enviro_sustain_issue.pdf.

10

Pollan, M. 2008. In Defence of Food: An Eater’s Manifesto. New York: Penguin Books.

City of Victoria Food System Discussion Paper

13



Worldwide, the area of arable land is decreasing;



The income of Canadian farmers is at an all-time low;



Synthetic fertilizers and pesticides used in the production of food can contaminate water and soil and affect human health;



Significant greenhouse gas emissions are released in all components of the food system, and exacerbated by a globalized food system, including transportation, agricultural production, processing, retail, food service and household storage and preparation;



Energy costs continue to rise, threatening the ready access to cheap fossil fuels upon which the current food system depends;



Watersheds and aquifers in some key agricultural areas are threatened by contamination, salinization and/or changing precipitation patterns;



World fish stocks are declining;



Increased corporate control has consolidated food production, processing and distribution in the hands of a shrinking number of companies;



Increase use of charitable emergency food services by low-income Canadians;



Mounting obesity and malnutrition in Canada associated with over consumption of poor-quality food; and



Many urban consumers remain largely disconnected from “where their food comes from” and there is low literacy around food consumption and related health issues.

2.3

The Urban Food System Alternative

In the face of the sustainability issues related to the dominant food system, growing interest has emerged in shifting the food system to one that integrates its various stages to enhance the environmental, economic, social and nutritional health of a particular community and place. 11 The urban food system is a connected set of practices, processes and spaces that serve to feed people and communities in place. The food system itself is made up of five different stages, including food production, processing, distribution, consumption, and waste recycling (Figure 1). Inputs such as water, nutrients, sunlight, biodiversity, energy and land are required to “power” the urban food system. People and human processes shape the system through knowledge, science and technology, cultural practices, economic systems, politics and management practices.

11

14

Based on Garrett, S. and G. Feenstra. 1999. Growing a Community Food System. Pullman, WA: Western Rural Development Center

City of Victoria Food System Discussion Paper

Figure 2.1. The Urban Food System.

Each stage of the food system has a different role and activities.12 Food Production is concerned with raising the ‘raw products’ of the food system – fruits, vegetables, eggs, meat, milk, grains and other products- using a variety of methods. These include: boulevard, community, backyard, rooftop and demonstration gardens; commercial urban farms; backyard livestock; beekeeping; food production on public lands (such as City parks); edible landscaping; and peri-urban agricultural lands.

12

Based on City of Vancouver. The Food System – Greater than the Sum of its Parts. Accessed from vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/systems/index.htm, September 15, 2009

City of Victoria Food System Discussion Paper

15

Food Processing turns the raw products into food that can be eaten, and concerns small- and large-scale food processing (including home-based); community kitchens; public commercial kitchens; and private food processing businesses. Food Distribution moves food around the food system through different networks, and ultimately connects people to their food through outlets such as stores; markets and food programs; farmers markets; charitable food services; food access programs; grocery stores; street food, restaurants & cafes; and food marketing (e.g. buy local campaigns and directories). Food Consumption involves the act of ‘eating’, and its broader role in a community’s health and well-being: dining out, food festivals, health, nutrition and active living; public education; and public health. Recovery of food wastes refers to “leftovers” of the food system - the organic matter, nutrients, water, seeds, packaging and other components that are both outputs and inputs in a well-functioning urban food system. Activities include composting; perishable food diversion; redistribution of surplus food; water conservation and soil health. System-wide initiatives cut across all five stages of the food system, and include activities such as comprehensive food system planning and policies; sustainability policies; food policy councils; and public education.

2.4

The Principles of an Urban Food System

Ultimately, the principles that guide an urban food system should be defined by - and unique to – a particular community. There are several commonalities, however, among communities that are already engaged in food systems work. The following six core principles often underlie urban food system initiatives in North America: An Urban Food System: Provides Food for All. At the heart of the urban food system is the principle that all people – including those who are hungry and marginalized- have the right to sufficient, healthy and culturally appropriate food. Food is not just another commodity. Localizes Food. It reduces the distance between farm and plate in a manner that also increases community sustainability, health, resilience and liveability. It celebrates the unique characteristics of local food – the quality, the diversity, the manner in which it was produced or prepared and its significant cultural qualities and importance. Considers Community. It meets the needs and interests of local eaters and food providers and actively engages the community the redevelopment of their food system, particularly over the long-term. Builds Knowledge, Skills, and Capacity. It acknowledges and builds on local knowledge and skills to produce, process, prepare, eat and ultimately recycle food. It uses research, education and informal networks to support and pass on knowledge. Works with Nature. It values local ecosystems. Production methods encourage healthy biological processes, the recycling of water and organic nutrients (waste), and improve 16

City of Victoria Food System Discussion Paper

resilience. Urban food systems embrace low-energy, low-waste methods that do not damage the global environment or contribute to climate change. Values Food Providers. It acknowledges and respects the work of those engaged in the food system, and supports sustainable livelihood for farmers, food processors and other food service workers, many of whom are undervalued.

2.5

Benefits of Urban Food Systems13

Given the problems facing the global food system, an urban food system is offered as a more sustainable alternative. The key benefits of urban food systems include: Climate Change: By reducing distance travelled from seed to plate, sustainable, local, organic agriculture has the potential to mitigate nearly 34% of greenhouse gas emissions and save one-sixth of global energy use. 14,15 A localized food system also eliminates many of the global food system’s energy-intensive intermediary steps including synthetic pesticides and fertilizer, large-scale processing, storage, refrigeration, and packaging. 16 Economic Development: Even a small shift in annual purchases to local food has spin-off benefits for the local economy through direct food marketing, green collar jobs in farming, food processing and distribution, and agri- and culinary tourism. 17,18 Urban food systems can reduce municipal costs for water management, organic waste disposal and associated transportation infrastructure. Household Food Security: Urban food production plays an important role in providing access to healthy and nutritious food, particularly for low-income families. 19 A small home or allotment garden can reduce a household’s annual food bills by $500 to $1,200. Health Promotion: Given the significant rise in obesity and diet-related chronic disease, many features of local food systems promote a healthy lifestyle, including increased consumption of fresh fruits and vegetables, local grocery stores within walking distance, active use of greenspace, and awareness of good nutrition.

13

Based on Kaethler Murphy, T. 2006. Growing Space: The Potential for Urban Agriculture in the City of Vancouver. Unpublished Final Project, School of Community and Regional Planning, University of British Columbia.

14

Wan-Ho, M. 2008. Organic Agriculture and Localized Food & Energy Systems for Solving Climate Change. Institute of Science in Society Report, 15/10/08. Accessed from www.i-sis.org.uk/OAMCC.php, July 21, 2009.

15

Wan-Ho, M. 2008. Mitigating Climate Change through Organic Agriculture and Localized Food Systems. Institute for Science in Society Report, 31/1/08. Accessed from www.i-sis.org.uk/mitigatingClimateChange.php, July 21, 2009.

16

National Resources Defense Council. 2009.Fact Sheet: Eat Green: Our Everyday Food Choices Affect Global Warming. Accessed from www.nrdc.org/globalWarming/files/EatGreenFS_0509.pdf, July 21, 2009.

17

Pretty, J. 2001. The Living Land: Agriculture, Food and Community Regeneration in Europe. London: Earthscan.

18

Tootelian, D.H. 2003. The economic impact of shifts in consumer purchasing patterns to more California-grown agricultural commodities. Sacramento: California Department of Food & Agriculture (Buy California Initiative).

19

Resource Centre on Urban Agriculture and Food Security. Ny. Why is Urban Agriculture Important? Accessed from www.ruaf.org/node/513, October 19, 2009.

City of Victoria Food System Discussion Paper

17

Recreation: Gardening is already practised by over 70% of the Canadian population, making it the most popular past time in the country. Charitable Food Services: Increased urban food production can further supply local charitable food agencies such as soup kitchens and food banks with much-needed fresh, lowcost and nutritious perishable food. Ecological benefits: Within the city, food production sites such as allotment and home gardens can increase local biodiversity, create habitat, sequester carbon, restore green space and improve local air quality. Culture: A localized food system can provide many opportunities for production, celebration and consumption of food from across cultures. Allotment gardens provide low-cost source of traditional plant varieties, as well as interaction between cultures. Food festivals, restaurants and specialty food shops reflect the cultural diversity of a city. Waste & Nutrient Management: The recycling of urban food waste can divert over 30% of the waste stream from landfills while producing inexpensive, high-quality soil. Sustainable food production practices can reduce the use of synthetic fertilizers and pesticides, reduce stormwater run-off, and reuse greywater. Emergency Preparedness: An increased proportion of food that is produced and processed locally can help mitigate potential shortages in the event of an emergency. One food security organization suggests that communities should be able to produce or supply at least one third of perishable food needs in order to prepare for emergencies. 20 Capacity Building: Many local food programs, from community gardens to produce buying clubs and community kitchens, adopt an empowerment-based model, and aim to build the skills and capacity of individuals to provide for themselves. Following a community development approach, clients receive a “hand-up”, rather than a “hand-out.” Sense of Community: Food gardens in public space promote land stewardship, civic engagement and neighbourliness. Green, productive landscapes provide a soothing alternative to the noisy, concrete landscape of the city.

2.6

Urban Food System Characteristics

Activities & Approaches Urban food systems include a wide range of activities, from the growing of food through to the recycling of food scraps. These many activities lie along a continuum (Table 2.1). On the left side, the options are relatively simple and inexpensive to implement, and are already common to Victoria or other cities (Stage 1). Towards the right side, activities require greater investment of time, energy and regulatory change (Stages 2 and 3). Table 2.1 is presented as an initial introduction to the sheer number of urban food system activities, and their relative effort.

20

18

Community Food Security Coalition. 2003. Community Food Security in the United States: Farming from the City Center to the Urban Fringe. Accessed from www.foodsecurity.org/PrimerCFSCUAC.pdf, July 23, 2009

City of Victoria Food System Discussion Paper

Table 2.1. A Continuum of Approaches for Urban Food System Activities21 Element

Stage 1 (simple)

Stage 2 (moderate)

Stage 3 (more complex)

Food Production Private & semi-private gardens

Food-bearing trees & bushes on public land

Balconies

Rooftop food gardens

Backyard poultry

Beekeeping

Private food-bearing trees

School gardens

Urban farms Edible landscaping on public lands Micro-livestock in open space

Community gardens in parks/public land

Intensive aquaculture/

Public/ Co-op commercial kitchens

Mobile abattoir (slaughterhouse)

Bioponics

Food Processing Home-based Private companies

Food training facility (incubator) Links between local food sector (value chains)

Food Distribution

Food Access Programs (part of Food Distribution)

Temporary farmers market

Farmers markets (for noncommercial growers)

Urban food producers cooperative

Direct home delivery

Year-round permanent farmers market

Urban farm stands

Food buying clubs Specialty retailers

Walkable grocery stores

Community cold storage facility

Buy “regional” campaigns

Supermarket local procurement policy for local products

Produce at charitable food providers

Widespread community kitchens

No need for charitable food providers

School meal programs

Farmers market vouchers

Hot meal programs (atcost)

Farm-to-cafeteria programs

School cafeterias serve school garden produce

Food buying clubs

Food Consumption Restaurant & chef promotion of local products

Urban food on menus Local procurement policies for institutions

Restaurant/ hospital/school kitchen gardens

Nutrition education Healthy snacks in vending

21

Table adapted from1) Barrs, R. 1999. Sustainable Urban Food Production in the City of Vancouver. University of British Columbia School of Community and Regional Planning: Unpublished Masters Thesis ; 2) Holland Barrs Planning Group. 2002. Southeast False Creek Urban Agriculture Strategy. Vancouver. Accessed from www.hblanarc.ca/projects/project_details.asp?ProjectID=68, October 19, 2009; and 3) with additional information from Moreland, F. and S. Mark. 2006. Canadian Community Responses to Food System Issues. Making Waves, 17(2): 26-27.

City of Victoria Food System Discussion Paper

19

Element

Stage 1 (simple)

Stage 2 (moderate)

Stage 3 (more complex)

machines

Recovery Home composting of kitchen & garden waste

Curbside organics collection

Collection and use of rainwater in barrels

Community-based composting of solid wastes (paper, meat, etc)

Diversion of healthy perishables from restaurants and grocery stores

Reuse of grey water Central warehouse for diversion of leftover commercial perishables, with food processing capacity

All organic waste recycled Vertical buildings (closedloop) Local solar aquatic sewage treatment system integrated with food production Greenhouse reusing waste heat from heating ducts, industry and laundromats

Economic Regime Production for immediate family (& friends) needs only

Income patching – production for immediate needs, selling surplus through farmers markets & food box schemes

Commercial horticulture, aquaculture, processing businesses

Social Regime Charitable

Community development Social enterprise (grant based)

Social enterprise (marketbased) Private grassroots/ ethical business

The Food Production Potential of Cities Victoria’s moderate year-round climate means that there is the potential to grow a wide diversity of fruits, vegetables, mushrooms, grains, eggs, dairy products, meat, poultry, honey and fish. But how much food can realistically be produced within city limits? Various experts have estimated the amount of land required to meet annual fruit and vegetable needs from urban gardens. These estimates range from 600 – 2,400 square feet for a family of four.22 One Victoria urban agriculture specialist produces 100% of his household’s (two people) yearly fruit and vegetables in a 250-square foot garden in Fernwood. He attributes his production level mainly to years of experience, particularly with soil-building practices.23 Urban gardens are often grown using more intensive techniques that those used on rural farms. Using rural production methods, the BC Ministry of Agriculture looked at the land required to support a complete nutritious diet. The study concluded that, “over half a hectare of farmland (0.524 ha) is needed to produce food for one person for one year. This is

22

Holland Barrs Planning Group. 2002. Southeast False Creek Urban Agriculture Strategy. Vancouver. Accessed from www.hblanarc.ca/projects/project_details.asp?ProjectID=68, October 19, 2009

23

Johnson, Geoff (Urban Agriculture Specialist, Victoria). Personal Communication, September 22, 2009.

20

City of Victoria Food System Discussion Paper

roughly equivalent to six city lots.” 24 Approximately 10% of this land needs to be irrigated. While this estimate uses low-intensity growing methods, it makes the point that a significant area of land is needed for a city to be self-reliant in food. Using these generous estimates, 40,902 ha would be necessary to provide food for Victoria’s 78,057 residents. The entire City of Victoria land base is 1968 ha. The total area of the Agricultural Land Reserve in the Capital Regional District (CRD) is 16,407 ha. Clearly, more land is needed to be available and in production to achieve greater self-sufficiency. An urban food system will only be as viable and far-reaching as the infrastructure that supports it. While much attention is given to the production of food in and around the city, it is just as important that the necessary facilities and skilled people are in place so that food can be processed, distributed, consumed and recycled to meet nutritional requirements. Seed suppliers, cold storage, facilities for canning, juicing, drying and packaging foods, pastures for grazing livestock, dairies, bakeries, slaughterhouses, retail stores, markets and commercial transportation are some examples of infrastructure needed close-by to support urban food production.

2.7

Food Policy as a Municipal Government Issue

To date, much of the work to develop sustainable local food systems has emerged from the grassroots. Generally, food has been neither an area of attention nor interest for local governments.25 There are few municipal policies, programs or regulatory tools in place to support urban food systems. Yet recent attention to the environmental, social and economic problems of the global food system – and the seeking of a local alternative - has prompted an increasing number of municipal governments to support existing community efforts and take an active role in the development of more sustainable urban food systems. While some of the resources and policy tools needed to support an urban food system fall outside the jurisdiction of municipal governments, many cities are already involved in food system issues without even realizing it. For example, in cities across British Columbia, staff are involved in the siting of food stores, preserving (or developing) agricultural land, zoning for food processing, promoting food-related economic development, facilitating community gardens and mitigating agricultural-related environmental impacts. 26 In spite of these activities, most municipal governments address the food system neither comprehensively nor explicitly. When food system-related activities such as these do appear on the municipal agenda, they are often isolated, piecemeal initiatives that fail to recognize the interactions between food and other urban systems. In the end, the present uncoordinated efforts may actually undermine or impede efforts to create strong, stable local food systems. The lack of attention to urban food system issues also undervalues the close relationship between food and other local political, economic, ecological and social issues.

24

BC Ministry of Agriculture and Lands. 2006. British Columbia’s Food Self-Reliance: Can BC’s Farmers Feed Our Growing Population? Accessed from www.agf.gov.bc.ca/resmgmt/Food_Self_Reliance/BCFoodSelfReliance_Report.pdf, October 19, 2009.

25

Pothukuchi, K. and Kaufman, J. 1999. Placing the food system on the urban agenda: The role of municipal institutions in food systems planning. Agriculture and Human Values, 16(2): 213-224.

26

Bouris, K. 2005. Of Planners, Politicians and the Public: The Challenges and Opportunities for Food System Planning in the Georgia Basin. University of British Columbia School of Community and Regional Planning: Unpublished Masters Thesis.

City of Victoria Food System Discussion Paper

21

There is evidence of a shift towards a more comprehensive approach, however. In the last few years, a number of cities, like Victoria, have responded to community efforts and introduced new municipal initiatives to support their urban food system, including Nanaimo, Kaslo, Richmond, Kamloops, Vancouver, North Vancouver, Kelowna, Saanich and Langford. While many of these are initiatives are still isolated, others are linked to a broader foodrelated policies or strategies. These include community gardens policies (e.g. North Vancouver, Richmond), Official Community Plan policies (e.g. Saanich, Langford), urban agriculture strategies (Kelowna) and overarching food policy & planning programs (Vancouver). The impetus for involvement varies according to political and community priorities, such as hunger, neighbourhood development, loss of farmland or demand for garden space.

22

City of Victoria Food System Discussion Paper

3 VICTORIA’S URBAN FOOD SYSTEM 3.1. Introduction The residents of Victoria have a long-standing tradition of civic involvement in the food system, whether harvesting camas fields, milling flour, delivering groceries or starting soup kitchens. Collectively, people and practices create the urban food system. The purpose of this section is to answer the question: What does Victoria’s urban food system look like? More specifically: 1. What community-led food system initiatives are currently underway in Victoria? and 2. Who is involved? The chapter begins with some historical and regional context. It then goes through each stage of the food system, and provides a tabular “snapshot” of key activities. The snapshot includes a brief description of the state of each food system activity in Victoria, as well as key stakeholders.

3.2. Historical Overview of Victoria’s Urban Food System The lands of Victoria have a long history of providing abundant food. The Lekwungen, the First Nations people of this area, have managed local lands for centuries. Wild plants, berries, shellfish, fish, birds, eggs and small game round out the rich and diverse traditional diet provided by land and sea. In the mid-1800s, Sir James Douglas chose the location of Fort Victoria because of the extensive grasslands - lands that were regularly burned, cultivated and managed by the Lekwungen for camas bulbs, a starchy food staple similar to potatoes. 27 The Hudson Bay Company called for settlers to come and establish farms and Victoria quickly became a small farming centre of British Columbia. The south-facing aspect, abundant sunshine and temperate climate provided ideal growing conditions, and Victoria was soon dotted with farms, orchards and greenhouses. Many orchards remnants remain in backyards across the city. The Saanich Peninsula and nearby Gulf Islands exported produce to the mainland, and became known as “Vancouver’s Market Garden”. A commonly cited statistic suggests that, from Settlement until 1950, 80% of Victoria’s food originated from Vancouver Island. The two World Wars prompted intensive urban food production. In 1917, in response to a worldwide food shortage, Victoria City Council initiated an active campaign to cultivate vacant land under the coordination of the volunteer “Vacant Back-Yard and Lot Brigade”. Citizens volunteered their time on various committees and successfully food production. In 1918, Victoria City Council persuaded the Provincial Government to pass The Greater Food Production Act, which enabled cities and municipalities to take possession of vacant, unused tracts of land for cultivation purposes, without paying compensation to the owner. Similar legislation was subsequently adopted in Ontario. 28 During the Second World War, many homes 27

Ringuette, J. 2004. Beacon Hill Park History. Accessed from www.beaconhillparkhistory.org/contents/chapter1.htm, October 19, 2009.

28

Buswell, S. 1980. The Garden Warriors of 1942. City Farmer (3):2. Accessed from www.cityfarmer.org/victgarA57.html, October 22, 2009.

City of Victoria Food System Discussion Paper

23

and schools in Victoria planted Victory Gardens in order to free up food for overseas troops and address the shortage of agricultural labour. Following the Second World War, Victoria’s food system mirrored many of the trends seen throughout North America, including the rise of supermarkets (and decline of neighbourhood food stores), increased consumption of convenience and fast foods, and advances in refrigeration and road networks that increased availability of far-away foods. From the 1950s until the 1990s, Victoria’s food-related activities fell into four distinct groups: charitable food services, government nutritionists/dieticians, urban (organic) gardeners and local farmers. In 1993, these four groups came together and formed Cornucopia Coalition. This group eventually evolved into the current Capital Region Food and Agriculture Initiative Roundtable (CR-FAIR), a regional food policy and networking organization. Two cornerstone urban agriculture groups, LifeCycles and the Compost Education Centre, were also established during in the mid-1990s, as were several new community gardens and the Moss Street Market. In the past decade, new initiatives have emerged in Victoria, including food co-ops, buying clubs, Community Supported Agriculture farm box subscriptions, speciality food shops, healthy eating programs, agritourism, guerrilla gardening, commercial backyard Small Plot INtensive (SPIN) gardening, permaculture demonstration sites and the Slow Food- supporting chefs and eateries. What began as an alternative movement to support access to local and healthy food has now gone mainstream.

3.3. Regional Context29 As one of the 13 municipalities and three electoral areas that make up the Capital Regional District (CRD), Victoria occupies a relatively small and compact land base. On a daily basis, Victoria residents seek services and amenities both inside and outside municipal boundaries. The food system is no exception, as Victoria residents and businesses depend on the periurban lands of the Saanich Peninsula, Gulf Islands and the West Shore for food and other agricultural products, garden supplies, educational programs, processing facilities, distribution networks, food businesses and waste recycling (Figure 3.1). For its part, Victoria is a cultural and economic hub, offering food events, restaurants, markets and light industry. Agriculturally, the CRD is characterized by its small, diverse farms, variety of farm products, and excellent growing climate. The region’s population has increased by over 40% since 1971 to 345,164 residents (2006), increasing the pressure for land development and urbanization. A significant portion of the region is located within the Agricultural Land Reserve (ALR) and municipal agricultural zones, however not all of this land is in production. Of the land that is being used, approximately 64% is used to grow food for human and livestock consumption. There are 991 farms in total in the CRD.

29

24

All statistics obtained from 1) Ministry of Agriculture and Lands. 2008. Capital Regional District Agricultural Overview. Victoria: Province of British Columbia; and 2) Ministry of Agriculture and Lands. 2008. Agriculture in Brief: Capital Regional District. Victoria: Province of British Columbia. Unless stated, all statistics reflect 2006 figures.

City of Victoria Food System Discussion Paper

Figure 3.1. The Relationship of Victoria’s Food System within the CRD.

Small farms that earn less than $10,000 per year dominate agriculture in the CRD. Total gross farm receipts have held steady over 10 years. The average farmer is 54 years old, and land costs are among the highest in the province. Organic farms are increasing in number while livestock farms are declining. Between 1996 and 2006, the CRD lost 14% of its poultry farms and 81% of its dairy farms. Among the key issues facing the regional food system are the decline of “traditional” agriculture and associated loss of economic viability; shortages of critical infrastructure such as abattoirs; increasing food insecurity for many families and water shortages30. A further description of the regional issues is presented in Chapter 5.

3.4. Snapshot of Victoria’s Existing Food System Activities & Stakeholders While acknowledging the many links to the greater region, many food-related activities and practices are primarily focused within Victoria’s municipal boundaries. Collectively, these initiatives create Victoria’s own urban food system. The following table presents a snapshot

30

Geggie, L. and K. Platt. 2007. Our Farmlands, Our Foodlands…Our Future: Tools and Strategies for Ensuring Productive and Accessible Farmlands in the CRD. Accessed from http://lifecyclesproject.ca/conferences/focusonfarmlands/docs/OurFarmlands-Our-Foodlands-Conference-Findings-Report-07-2009.pdf on August 5, 2009.

City of Victoria Food System Discussion Paper

25

of the key food system activities underway in Victoria, and the stakeholders that carry them out. Some groups and activities may be based outside Victoria’s municipal boundaries, but all directly support Victoria’s food system. The table focuses on the work of community groups and public agencies; further work is needed to identify additional stakeholders, particularly food-related private businesses. A few examples are provided where appropriate. The activities and groups are categorized by the stage of the food system that is deemed to best describe their work, and each may have involvement in other stages. The list is not exhaustive, and focuses on key initiatives. Table 3.1.

Overview of Activities, Description & Stakeholders Comprising Victoria’s Urban Food System

Food System Activity

Description

Key Stakeholders

Food Production Agricultural Land Conservation (regional)

2819 ha of regional farmland lost since 2001

Agricultural Land Commission

Loss of farmland has slowed since 2005

The Land Conservancy CRD Roundtable on the Environment

Agricultural Production (regional)

991 farms in CRD

South Island Organic Producers Association Island Farmers Alliance Private farm businesses Direct Farm Market Association

Backyard Poultry & Livestock

Victoria has an estimated 50 homes with backyard chickens

Compost Education Centre Individuals

Bylaw allows the keeping of backyard chickens and no roosters over six months Keeping of livestock (other than poultry) not permitted Some rabbits also raised for food Beekeeping

Exact number of hives unavailable; Beekeepers Association has 100 member apiarists, including some in Victoria

Capital City Beekeepers Association Swan Lake (Mason Bees)

Bylaw status of beehives (apiaries) is unclear; bees are not specifically defined in bylaw as a “farm animal”, but they do produce food and are technically not allowed Organizations promoting conservation of native bee populations (e.g. Mason Bees) for pollination

26

City of Victoria Food System Discussion Paper

Food System Activity Community Commons Gardens

Description

Key Stakeholders

Three Commons Gardens in city - Wark Street, Banfield and Spring Ridge

Blanshard Community Ass. (CA)

Commons are permaculture sites with food and flower plants where for public can harvest freely

Vic West Community Ass. (CA)

LifeCycles

Commons located on Parks land (2) and School District land (1) Maintained by community groups through agreement Purpose is primarily educational and recreational Community (Allotment) Gardens

Victoria has five community gardens: Michigan St. (20 plots); James Bay (54); Chambers St. Allotments (34); Earth Bound (20); Rayn or Shine (12) Gardens grow food and flowers in plots, usually for personal use of gardeners Gardens are located on land owned by City (2); Province (1); School District (1) and private business(1)

Fernwood (Earthbound & Chambers St. Gardens) Michigan Street Garden Association James Bay Allotment Garden Association Vic West NA (Banfield & Rayn or Shine)

Gardens maintained and coordinated by community group Victoria has highest number of allotments in region VIHA has therapy gardens for client use at Sobering Centre (detox), and Styles St. House and Garden St. House (mental health facilities) Demonstration Sites

3 public sites demonstrate urban agriculture practices

Compost Education Centre

Compost Education Centre (site and workshops teaching composting, water conservation and food growing); Children’s Petting Zoo (interaction with livestock); St. Anne’s Academy (heritage fruit orchard)

St. Anne’s Academy

Children’s Petting Zoo SOUL (private sites)

Several private sites also exist Edible Landscaping

3 public sites landscaped with food plants: Banfield Commons, Wark St. Commons and Spring Ridge Commons Vegetable garden outside City Hall Private homes also have edible landscaping (number unavailable) Several Victoria companies specialize in edible landscaping

Fruit and Nut Trees

Hundreds of fruit trees on private and public property, many of them remnants from colonial orchards

City of Victoria LifeCycles Blanchard CA Private edible landscaping businesses (e.g. Edibella) Vic West CA

LifeCycles’ Fruit Tree Project Private arboriculture businesses

Fruit Tree Project picks surplus fruit from private land and donates to food access programs

City of Victoria Food System Discussion Paper

27

Food System Activity Gleaning

Description

Key Stakeholders

Two programs harvest surplus/unused produce:

Charitable food services (recipients of food)

LifeCycles’ Fruit Tree Project picks unused fruit from backyard trees and donates it to 40 social service agencies (48,000 lb picked in 2009)

Individual gardeners LifeCycles (Fruit Tree Project)

Grow-A-Row concept encourages gardeners to grow extra row of vegetables and donate them to community organizations Home Gardens – (Back)Yard & Balcony

Unknown but significant number of gardens in rented and owned housing Gardens built in raised beds, plots and containers

LifeCycles (Sharing Backyards) Private nursery and garden businesses

Demand for seeds and seedlings up by 30% in 2009 at area nurseries Gardens supported by range of local nurseries and garden stores Sharing Backyards Program (LifeCycles) matches those with unused garden space to those looking for garden space. Now a model for other North American cities. Home Gardens Boulevard

Several examples where adjacent property owners/ tenants cultivate the boulevard in front of home

Individuals

Plantings include food and flower gardens, edible shrubs, fruit trees Exact number unavailable Most gardens located on boulevards where residents have opted out of City Boulevard Maintenance Program City currently conducting a review of Boulevard Maintenance Program Home Gardens - Rooftop

Examples of rooftop food gardens on some private homes and a few apartment buildings (including Dockside Green)

Developers Individuals

Exact numbers unavailable Rooftop food gardens use raised beds or container Different from “green roofs” that feature lowmaintenance plantings for temperature regulation and water cycling rather than food production School Gardens

Several Victoria pre-, elementary- and high schools have schoolyard food gardens

LifeCycles (Growing Schools) School District 61

Exact number unknown, however four Victoria schools have garden plots (total of 12) supported by LifeCycles’

28

City of Victoria Food System Discussion Paper

Food System Activity Urban Farms (includes all commercial activities)

Description Victoria has two properties licensed for homebased urban agriculture (2009)

Key Stakeholders Private Urban Farms (e.g. City Harvest, Mason St. Farm)

Several properties participate in Small-Plot Intensive (SPIN) gardening, where small company uses several yards to grow food and sell it locally. Number of properties unknown. Small greenhouses on residential property used for commercial production of seedlings Some Victoria beekeepers sell small batches of honey

Food Processing Community Kitchens

3 public community kitchens in operation

Blanshard CA

Community kitchens bring people together to plan, purchase and prepare meals which can then be taken home to eat

Fairfield CA

Some organizations offer kitchens for clients only (Cridge Centre, Kiwanis House) Food Preparation

Cooking skills taught through various institutions

Fernwood NRG VIHA Community Nutritionists

VIHA Community Nutritionists (Cooking Skills for Families) Camosun College Community Centres (cooking classes) Island Chefs Collaborative School District 61 (Culinary Arts Program) Slow Food Victoria Youth Empowerment Society (Youth Hospitality Training Centre)

Food Processors

Number needs to be determined

BC Food Processors Association

Establishment of several independent, organic bakeries in recent years

Private Businesses (e.g. Wildfire Bakery; Sunrise Foods; Phillips Beer)

Includes beverage processing such as coffee roasters and breweries

Small-Scale Food Processors Assoc.

Food Storage Facilities (Commercial)

Number needs to be determined

Private Businesses

Public Commercial Kitchens

Public commercial kitchens are certified and equipped for food processing and cooking large batch meals and available for rental

Fairfield CA Bayanithan CC

Victoria has two Other certified commercial kitchens exist at community centres and restaurants, but are not broadly available for rent.

Distribution Community Supported Agriculture/ Farm Box Programs

12 CRD-based farm box programs serve Victoria customers

Private farm businesses (e.g. Saanich Organics)

Consumers take some of the risk of the farm by purchasing a share of the season’s produce grown by a local farm.

City of Victoria Food System Discussion Paper

29

Food System Activity Community Bulk Buying

Description

Key Stakeholders

Members reduce food costs by purchasing in volume directly from farmers or wholesalers

FoodRoots Distributors Co-op

Good Food Box provides affordable monthly box of fresh fruits and vegetables

Informal groups

Good Food Box

FoodRoots buying club for produce, groceries, dairy and meat products Other buying clubs exist through organizations and groups of individuals Charitable Food Services

39 agencies provide 46 charitable meal programs

Downtown Churches (Breakfast Program; Youth Shelter)

Programs include meals, snacks, community meals, cooking classes, frozen meals and home delivery, vouchers and food banks

Food Not Bombs

Agencies provide up to 20,195 meals and 5770 snacks weekly to 2375 guests (2007 statistics)

Mustard Seed Food Bank Our Place Society Salvation Army Society of St. Vincent de Paul Victoria Cool-Aid Society Victoria Youth Empowerment Society 9-10 Club (St. Andrew’s Church)

Food Marketing

Food Retail Stores

Regional farms marketed through listings (Direct Farm Marketing Guide; Good Food Directory) and branding (“rooster booster” campaign; in-store identification)

Island Chef’s Collaborative LifeCycles

Local media and food industry publications (EAT Magazine)

South Island Direct Farm Marketing Association

Estimated 140 general grocery stores (2004) in CRD, large and small, that provide sufficient food options for good nutrition

Supermarkets (Thrifty’s, Fairway Market, Safeway, Wellburns, Market on Yates, etc)

Interest is growing from larger and smaller retail stores in providing local products

Neighbourhood Food Stores

Specialty stores provide natural, organic, local foods, as well as ethnic foods (number needs to be determined) Markets

BC Agritourism Alliance

Specialty stores (e.g. Plenty, Village Family Market)

Local produce available at 6 public markets and 12 small Pocket Markets

FoodRoots Distributors Co-op (Pocket Markets)

Three dedicated farmers markets: Moss Street, Mayfair Mall and Bastion Square

Fernwood NRG (Fernwood)

Public markets with some produce stands: Government Street, James Bay Market, Fernwood Square FoodRoots Distributors Coop runs 12 small, Pocket Markets through region, including six locations in Victoria (Centennial Square, Fernwood, Humboldt Valley, Dockside Green, Mayfair Mall and Government Street Market)

Island Chef’s Collaborative (Bastion Square) Moss Street Market Society James Bay Market Society

Markets are seasonal and outdoors Statistics for total market attendance and gross receipts need to be determined Seniors’ Meals

30

Several agencies provide affordable hot lunch programs and other meals for seniors

Monterey Centre (Oak Bay) Other Seniors Centres

City of Victoria Food System Discussion Paper

Food System Activity School Meals

Description 14 schools in School District 61 participate in Breakfast for Learning program

Key Stakeholders School District 61 VIHA (Prevention Services)

26 schools participate in Fruit and Vegetable Snack Program 9 schools participate in Eat Well, Get Moving program 800 students receive lunches through School Meal program every week Street Food Vending

22 carts and 3 kiosks are licensed by the City

VIHA (Environmental Health)

Carts are located on private land, kiosks on public land

Private Business Private Landowners

An application for an outdoor food court located on private land in Cook Street village is being considered Wholesalers/ Distributors

7 retail food wholesalers/distributors on Vancouver Island that supply most food stores Due to volume requirements, most wholesalers purchase from large non-local suppliers

FoodRoots Distributors Co-op Private Business (e.g. Cold Star Freight Systems, Albion Fisheries, Island Vegetable Coop)

Smaller, specialized wholesalers (e.g. Albion Fisheries) supply restaurants Local produce wholesalers include Island Vegetable Co-op in Central Saanich (5000 tons of produce annually; 80% of this is marketed locally) and FoodRoots (caters to small stores, restaurants and individuals)

Consumption Healthy Eating Promotion

Vancouver Island Health Authority nutritionists provide classes, workshops, talks and one-onone consultations Several organizations offer nutrition/food skills programs, including Best Babies for pregnant women, Kiwanis House and others (number needs to be determined)

Fernwood NRG (Best Babies) Victoria Native Friendship Centre VIHA (Prevention Services)

School District 61 offers Culinary Arts Programs at Esquimalt, Spectrum High Schools Local Procurement Policy

Local Food Plus certifies farms and processors using sustainable and fair practices for procurement by restaurants, consumers and institutions

The Land Conservancy (Local Food Plus)

Restaurants, Cafes and Caterers

The CRD has an estimated 615 restaurants (2004)

Private restaurants, cafes, caterers and other food service outlets

Exact number of restaurants, cafes, caterers and other retail food outlets need to be determined

Island Chef Collaborative

Some local restaurants and chefs creating relationships directly with farmers

City of Victoria Food System Discussion Paper

31

Food System Activity Traditional (Aboriginal) Food

Description

Key Stakeholders

Several programs in Greater Victoria to improve nutrition and re-establish traditional diet in urban Aboriginal community

LifeCycles (Indigenous Food Sovereignty Project) Victoria Native Friendship Centre Feasting for Change, VIHA (Aboriginal Health)

Recycling of Waste Food Diversion (Perishable Food Donations)

Victoria’s social service agencies rely on donations of food and money to provide food to clients Retail outlets donate unused baked goods, breads and other perishables food directly to organizations

Charitable Food Organizations Private business and individuals Capital Region Food and Agriculture Initiatives Roundtable (Food Access and Recovery Working Group)

Research underway to increase interagency cooperation for food recovery Grocery stores provide coupon-based donation program for food bank Many individual and group food drives to collect food Backyard Composting

Anecdotally, CRD has among highest home composting rate in Canada; mid-90s study estimated 50% of single family homes have a composter

Compost Education Centre CRD

Compost Education Centre delivers workshops and sells bins for backyard use Organic Waste Collection

Household and commercial organics collection provided at cost by 3 companies in Victoria

CRD

Some businesses make organic waste available to individuals (e.g. coffee grounds, fruit and vegetable scraps for home compost)

Private Organic Waste Collection Businesses (e.g. ReFuse, Community Composting, Pedal to Petal)

CRD is proposing ban on organics in landfill for 2012

Licensed Composting Facilities

System-Wide Policy & Planning

Capital Region Food and Agriculture Initiatives Roundtable (CR-FAIR) brings together organizations, educational institutions, businesses and government together to develop local food system-supporting food policies and programs. CRD exploring potential for a Food Policy Council VIHA conducting research on Food Policy Councils and funds food system planning initiatives through the Community Food Action Initiative Several neighbourhood food system maps have been made for the purposes of assessing local services and amenities

ActNow BC BC General Employees Union (Cool Communities) Canadian Cancer Agency Capital Regional Food and Agriculture Initiative (CR-FAIR) CRD (Roundtable of Environment – Food & Agriculture Subcommittee) Common Ground Community Mapping Network (Food maps) Fernwood Neighbourhood Resource Group (Food Security Collective) Ministry of Agriculture (District Agrologist) Ministry of Agriculture (Economic Analysis & Info Mgmt.) Peninsula Agriculture Commission The Land Conservancy Vancouver Island Health Authority

32

City of Victoria Food System Discussion Paper

Food System Activity

Description

Key Stakeholders (Food Security; Prevention Services) Vic West Food Security Collective

Culinary & Agricultural Tourism

Public Education & Awareness

The region seems to have a growing culinary tourism, regional cuisine and agri-tourism sectors

Individual Farms

Statistics need to be determined

Slow Food

Victoria has a broad range of public education initiatives around local food

Compost Education Centre

Methods range from workshops, articles, farm tours and festivals

EarthFuture (EcoNews Newsletter)

South Island Direct Farm Marketing Association

CR-FAIR (Newsletter) Island Chef’s Collaborative LifeCycles Slow Food University of Victoria (Environmental Studies; Continuing Education - Sustainable Gastronomy)

City of Victoria Food System Discussion Paper

33

34

City of Victoria Food System Discussion Paper

4 INVENTORY OF CITY OF VICTORIA FOOD-RELATED INITIATIVES 4.1

Introduction

Even without an official mandate to plan for an urban food system, the City of Victoria is already directly involved in many food-related activities. A detailed inventory and description of the many food system-related municipal regulations, policies, programs, services and projects was created with the assistance of meetings with City staff (Appendix 2). The result is a wide-ranging list of activities where the City of Victoria has a direct role in supporting the initiatives. For ease, the results of the inventory are presented in tabular form, organized by food system stage and activity. Table 4.1 describes key City-supported programs, services, projects and corporate policies. Table 4.2 outlines City of Victoria bylaws and regulations that address aspects of the food system, while Table 4.3 identifies related policies. Because of the cross-jurisdictional nature of food system issues, it is important to understand the roles and responsibilities of other levels of government. For this reason, Table 4.4 and 4.5 present the key regional and provincial regulations that affect Victoria’s urban food system.

4.2

Food-Related Programs, Services, Projects and Corporate Policies

The City of Victoria is involved in delivering a number of food-related programs, services and projects that relate to the urban food system. The City also has several corporate policies that relate to food issues, policies that direct internal operations rather than the community at large. These initiatives include the following: Table 4.1. Key food system- related services, programs, projects and corporate policies provided and/or supported by the City of Victoria Food System Activity

Lead Department

Description of Activity

Food Production Agricultural Land Conservation (regional)

--

Agricultural Production (regional)

--

Backyard Poultry & Livestock

Legislative & Regulatory Services (Bylaw Enforcement)

Beekeeping Community (Allotment) Gardens



Delegation of powers to enforce Animal Control Bylaw, which allows unspecified number of hens in backyards

-Parks, Recreation & Community Development (Community Development)

City of Victoria Food System Discussion Paper



Working with a community advisory established a Community Gardens Policy in 2005



Two of Victoria’s 5 allotment gardens are on City land (Earthbound and James Bay). The land is not in the City of Victoria Parks inventory.



City’s role is to maintain public list of gardens, implement Community Gardens Policy, provide land as appropriate, facilitate site assessment, supply mulch and compost if available, and provide some funding through Neighbourhood Enhancement

35

Food System Activity

Lead Department

Description of Activity Matching and Greenways grants 

Seven of the City’s 8 community gardens have received a Neighbourhood Enhancement Matching Grants ($5,000). Some gardens have also received additional $5,000 for Phase 2 funding. Funding supported garden bed design/creation, irrigation, supplies and other infrastructure.



$5,000 Neighbourhood Matching Grant (2009) for planning and design for a new Burnside Gorge Community Association community garden to replace the one lost during community centre relocation.

Parks, Recreation & Community Development (Community Development)



Two permaculture commons gardens on Parks land (Banfield and Wark Street Commons), maintained by community groups for shared harvesting and enjoyment by all residents



See above for City’s role

Parks, Recreation & Community Development (Community Development)



Two demonstration edible landscaping sites established by community groups on Parks land (Banfield Commons and Wark Street Commons)

City Council



City Council directed City Hall First Steps Garden, a demonstration food garden outside City Hall with harvest shared with local charitable food agencies

Engineering (Public Works)



City provides annual operating grant for Compost Education Centre demonstration garden

Edible Landscaping

Parks, Recreation & Community Development (Community Development)



See Demonstration Sites for Banfield Commons and Wark Street Commons

Fruit and Nut Trees

Parks, Recreation & Community Development (Parks)



Remnant fruit trees in parks and boulevards are maintained as ornamental trees

Community (Commons) Gardens

Demonstration Sites

Gleaning Home Gardens – (Back)Yard & Balcony Home Gardens Boulevard Multiple Family Home Gardens - Rooftop

-Sustainability



$10,000 Special Project Grant for LifeCycles’ Urban Agriculture Hotline & public Workshop Series (2009)

Parks, Recreation & Community Development (Parks)



Boulevard Maintenance Program is under review and will consider edible plantings

Planning & Development (Development Services)



Landscape and building design and plans reviewed by City staff

School Gardens

--

Food Processing Community Kitchens

36

Parks, Recreation & Community Development (Recreation)



Community kitchens held in community centres (Fairfield, Blanchard, Fernwood)

City of Victoria Food System Discussion Paper

Food System Activity Food Preparation

Public Commercial Kitchens

Lead Department

Description of Activity

Parks, Recreation & Community Development (Recreation)



Cooking and nutrition classes held at community and recreation centres

Planning & Development (then Social Planning & Housing)



2007 Special Project Grant ($3,000) to YM-YWCA youth cooking skills project

Parks, Recreation & Community Development (Bylaw Enforcement)



Public commercial kitchen facilities in Fairfield Community Place

Distribution --

Community Supported Agriculture/ Brown Box Programs Community Bulk Buying

Charitable Food Services

Emergency Food Preparedness

Planning & Development (former Social Planning & Housing)



2005 Special Project Grant ($5,000) to Good Food Box program

Various



Staff-driven initiatives to collect food for food bank and other charitable food services (e.g. Our Place, Cool-Aid)



Communication with downtown charitable food providers through Downtown Service Providers meetings and homelessness initiatives



City provides emergency preparedness workshops, including necessary food and water supplies.



City has powers to seize food from retail sector in case of emergency; specific quantity available is unknown.

Emergency Management Agency

Food Marketing Markets

-Parks, Recreation & Community Development (Community Development);



Department administers Special Event permits to non-profit groups for neighbourhood markets and pocket markets. Three neighbourhood markets include produce stands.



City produces promotional brochure publicizing markets

Planning & Development (Community Planning)



Department administers operating agreements for downtown markets. Bastion Square market has a dedicated produce market; Government Street has started to include prepared foods and some produce.



Downtown markets promoted as economic development activity



City has commissioned consultants’ report to review of Government and Bastion Square markets, including brief analysis of potential for year-round indoor produce market.

City of Victoria Food System Discussion Paper

37

Food System Activity

Lead Department

Description of Activity

Consumption Healthy Eating Promotion

Restaurants, Cafes and Caterers

Street Food

Parks, Recreation & Community Development (Recreation)



Healthy Choices Vending Machine Policy shifted Crystal Pool Recreation Centre vending machines to 70% healthy choices (2009)



Policy under development to increase healthy choices at meeting and events at recreation facilities

Regulatory & Legislative Services (Legislative Services)



Free-Range Egg Motion stipulates only free-range eggs to be used by caterers for City Hall functions



Catering and Dining Policy states that no singleserving bottled water is to be used and that only Fair Trade coffee is to be served at City Hall functions



Departments responsible for catering budgets and selections

Victoria Conference Centre



Victoria Conference Centre serves breakfast, lunch, dinner and snacks to delegates. Sample of items served from January to November 2009 includes: 1,169 servings of Saanich greens; 7,027 servings of BC wine; 1086 dozen fresh cookies and coffee and tea service for 61,416 people. Empress Hotel responsible for food preparation and service, under a 50-year agreement 1989-2037. Local foods are featured as a marketing tool; healthy foods also featured in response to delegate demand. City has little involvement in menu planning.

Regulatory & Legislative Services (Bylaw Enforcement)



City provides business licenses for street food vendors - 19 restaurant carts on private property and 3 kiosks on City property. Carts must obtain business license, permission of land owner and VIHA approval. Existing kiosks pre-date Council directive in 1992 that hawking activities be restricted to designated areas. New kiosks are not being approved on City property.

--

Traditional (Aboriginal) Food

Recovery --

Food Diversion (Perishable Food Donations) Backyard Composting

Engineering (Public Works)



City provides $13,500 operating grant to Compost Education Centre to provide composting and gardening information, and to provide retail sales for worm and compost bins.

Organic Waste Collection

Engineering (Public Works)



Public Garden Waste Drop-off collected 734 tonnes of yard and garden waste (2007). City pays for contractor to remove and compost waste.

Parks, Recreation & Community Development (Streets & Sidewalks)



Leaf collection from city streets collected 1376 tonnes (2007), used by Parks Division.

38

City of Victoria Food System Discussion Paper

Food System Activity

Lead Department

Description of Activity

Parks, Recreation & Community Development (Parks)



Parks and boulevard maintenance generates leaves, wood chips and compost (7,200 tonnes annually). Most is used by Parks operations, but surplus is sold to contractor for removal and composting. Some surplus donated to community organizations (e.g. community gardens).

Engineering (Building Services)



City contracts to private company to collect organic waste from City buildings (food scraps, paper plates, etc) that are maintained by Building Services. Essential to have janitorial staff help with separating of waste. 108 tonnes collected in 2007 and sent to Cobble Hill composting facility.

Engineering (Public Works)



City is collaborating with CRD on development of region-wide curbside organics collection program (piloted in 2009)

City Council



Urban Agriculture Resolution states City support in principle for urban agriculture and pledges to collaborate with stakeholders

Legislative & Regulatory Services (Legislative Services)



City has provided free meeting space to local food organizations, including the annual Regional Food Forum that attracts 100+ food system stakeholders.

System-Wide Policy & Planning

--

Culinary & Agricultural Tourism Public Education & Awareness

4.3

Communications



City’s Website provides links to many City foodrelated initiatives

Engineering (Public Works)



Compost Education Centre funding (see above)

Sustainability



Urban Agriculture Hotline and Workshop series (see above)

Planning & Development (then, Social Planning & Housing)



2005 Special Project Grant ($2500) for LifeCycles’ event profiling regional agricultural products

Food-Related By-Laws, Zoning and Regulations

Several City of Victoria by-laws and regulations impact the urban food system. These are summarized in Table 4.2, and serve to emphasize the scope of activities that fall within the City’s jurisdiction.

City of Victoria Food System Discussion Paper

39

Table 4.2. Food-related Bylaws, Zoning and Regulations in the City of Victoria Food System Activity

Regulation

Description

Food Production Backyard Poultry & Livestock

Animal Control Bylaw No.92189



Regulates the keeping of farm animals and poultry within the City.



Prohibits the keeping of “domesticated animal(s) normally raised for food, milk or as a beast of burden and includes cattle, horses, swine, sheep, goats, mules, donkeys, asses and oxen” and roosters.



Unspecified number of poultry are allowed.

Fruit and Nut Trees

Tree Protection Bylaw No.05106



Outlines the protection of urban trees, including conditions for the removal of hazardous trees or those that are “inconveniencing the public”.

Community Gardens, Home Gardens, Edible Landscaping, Urban Farms

Pesticide Use Reduction Bylaw No. 07-094



Protects the natural environment by regulation and reducing the non-essential (ie. cosmetic) use of pesticides on outdoor trees, shrubs, flowers, plants or turf.



Commercial, institutional or industrial properties are exempted from the bylaw, as is land used for agriculture.

Zoning Bylaw



In most residential zones, greenhouses and nurseries are permitted as accessory use only and not for commercial purposes.

Zoning Bylaw Schedule D Home Occupations



Permits urban agriculture, defined as “the cultivation of a portion of the parcels for the production of fruits and vegetables”.



Limits the number of people involved (2), parking and other home occupations onsite.



The municipal tax schedule for agricultural lands was also amended in conjunction with this bylaw amendment, in order to avoid urban agriculturists from claiming provincial farm status (lower tax rate).

Business Licence Bylaw No. 8971



Describes provisions for licensing and regulation of businesses, including food processors, coffee roasters and breweries.

Food Retail Stores, Wholesalers/ Distributors

Business Licence Bylaw No. 8971



Describes provisions for licensing and regulation of businesses, including grocery stores and other food retail outlets.

Emergency Preparedness

Emergency Program Bylaw No. 04-23



Outlines municipal powers in a declared State of Emergency, including the powers to “procure, fix prices for or ration food…” from local businesses.

Urban Farms (includes all commercial activities)

Food Processing Food Processing

Food Distribution

40

City of Victoria Food System Discussion Paper

Food System Activity

Regulation

Description

Markets

Outdoor Market Bylaw No. 93121



Regulates the operation and licensing of outdoor markets. Only the operator, and not individual vendors, need to obtain a permit.

Street Food

Street Vendors Bylaw No. 89-72



Regulates “hawking and peddling” (mobile vending) on City property.

Business Licence Bylaw No. 8971



Describes provisions for licensing and regulation of businesses, including restaurants, caterers, cafes and bars.

Sidewalk Cafes Bylaw No.02-75



Regulates the location and conditions for sidewalk cafes.

Food Consumption Restaurants, Cafes and Caterers

4.4

Food-Related Policies and Guidelines

The City of Victoria has adopted several policies and guidelines that impact different aspects of the urban food system. Many of these are currently under development. Table 4.3 summarizes the policies and guidelines. Table 4.3. Food-related Policies and Guidelines in the City of Victoria Food System Activity

Policy and/or Guideline

Description

Community Gardens Policy (2005)



Encourages the development and retention of community gardens in partnership with nonprofit groups on public and private lands.



Policy outlines policy goals, site selection guidelines, and differentiates the conditions of use on private, park and City-owned property.



The emphasis is on retaining existing gardens, and working with community groups to identify and establish new ones.



Gardens are encouraged as a public amenity in land use redevelopment



Urban Forest Master Plan (Draft) is currently being developed to review and establish strategies for urban forest planning and management.



Section 4.3.2. proposes investigating planting of fruit and nut bearing varieties in public spaces, including appropriate locations and associated delegation of responsibility for maintenance.



Plan will provide an overall vision, integrate parks planning with other City plans and initiatives, and identify public and ecological needs and priorities. Existing urban agriculture activities in parks (e.g. community commons gardens, edible landscaping) will be considered and addressed by the Plan.

Food Production Community Allotment and Commons Gardens

Fruit and Nut Trees

Community Gardens, Fruit and Nut Trees, Edible Landscaping (anticipated)

Urban Forest Master Plan (Draft) (2009)

Parks Master Plan (Under development)

City of Victoria Food System Discussion Paper



41

Food System Activity

Policy and/or Guideline

Description

Policy & Planning

Sustainability Framework (Draft) (2009)



Sustainability Framework (Draft) will guide corporate decision-making and operations, and includes food security elements

Policy & Planning

Official Community Plan (1995)



Official Community Plan (1995) mentions the need to support “wide range of human services” but does not mention food, specifically.



OCP encourages corner stores, small shopping centres and neighbourhood pubs.



Urban Agriculture Resolution states City support in principle for urban agriculture and pledges to collaborate with stakeholders

Urban Agriculture Resolution (2007)

4.5

Food-Related Initiatives at the Regional & Provincial Levels

Both the CRD and the Province have roles and responsibilities that address different – but often complementary- areas of the food system. These are helpful in illustrating where the municipality’s jurisdiction begins and ends with regard to certain food system issues. Only those bylaws that directly impact Victoria’s food system are highlighted here. Table 4.4. Capital Regional District Bylaws Related to Victoria’s Urban Food System Food System Activity

Bylaws

Description

Capital Regional District Regional Growth Strategy (2003)



The strategy outlines the region’s social, economic and environmental goals and priority actions.



Many of the RGS’ eight strategic initiatives, support the region’s food system(s): 1) protect integrity of rural communities; 2) keep urban settlements compact; 3) improve housing affordability; 4) build complete communities; and 5) strengthen the regional economy.



The RGS defines a complete community as (emphasis added), “…urban development projects [that] are located within a 10 minute walk of existing commercial/employment centre, neighbourhood store, recreation facility, school, park or community allotment garden”.

Recovery Organic Waste Collection

Capital Regional District Composting Facilities Operation No. 2736



Bylaw regulates the operation of commercial composting facilities.

Water Cycling

Capital Regional District Water Conservation Bylaw No. 3061



Bylaw regulates the use and waste of water in Capital Regional District.



Vegetable gardens are exempt from most restrictions. Nurseries and farms are exempt from all restrictions.

Capital Regional District No. 2750



Sets rate for water.

42

City of Victoria Food System Discussion Paper

Table 4.5. Provincial Regulations Related to Victoria’s Urban Food System Food System Activity

Regulation

Description

British Columbia Agricultural Land Commission Act



Act regulates the provincial Agricultural Land Reserve (ALR) and the mandate to preserve ALR land, encourage farming and ensure that farming and compatible uses are accommodated in plans, policies and bylaws.



While there is no ALR land within Victoria, regional ALR lands produce a significant amount of the “local food” eaten in Victoria.

British Columbia Assessment Act and B.C. Regulation 411/95



Act sets out the requirements that must be met for land to be classified as a farm for property assessment and tax purposes

British Columbia Food Safety Act – Food Premises Regulation



Regulates the preparation and distribution of food in private businesses, including farmers markets.



Only low-risk foods (e.g. high-acid jams and jellies; most fresh produce) can be from home-based operations. Others must be prepared in a certified commercial facility.



Act regulates the access and inspection to meat and meat products.



The regulations stipulate licensing, operational and equipment requirements, as well as animal welfare standards.



New regulations require significant infrastructure upgrades and led to multiple closures, making it more difficult to purchase regional meat in Victoria stores.



Agreement promotes barrier-free trade between BC and Alberta



Municipal policies that require governments to purchase food locally could be subject to the TILMA if budget exceeds $75,00031



Both Acts regulate the treatment and disposal criteria for sewerage from residential properties, including the reuse of greywater (water from sinks, showers and bathtubs) for irrigation purposes.



Currently, greywater irrigation is restricted to some types of multi-family sewerage systems.



Regulations are currently under review as part of the Province’s WaterSmart program.

Food Production Agricultural Land Conservation

Agricultural Land Conservation

Food Processing Processors, Public Commercial Kitchens

Processors

British Columbia Food Safety Act – Meat Inspection Regulations

Food Distribution Procurement

Trade, Investment and Labour Mobility Agreement

Recovery Water Cycling

31

British Columbia Public Health Act – Sewerage System Regulations & Environmental Management Act – Municipal Sewerage Regulations

Province of British Columbia and Alberta. 2009. Trade, Investment and Labour Mobility Agreement. Accessed from www.tilma.ca/pdf/TILMA_Agreement_April2009.pdf#Article10, September 17, 2009.

City of Victoria Food System Discussion Paper

43

Food System Activity

Regulation

Description

British Columbia Local Government Act



Act gives local governments the power to include four types of policy statements in Official Community Plans, two of which could support the local food system: 1) the enhancement and maintenance of farming; and 2) social needs, social well-being and social development.



The OCP is required to include targets and policies for Greenhouse Gas reduction. Food systems objectives (such as reduction in food transportation miles, increased consumption of local food) could potentially be included.



Act regulates many food-related issues, including business licenses and inspections; restrictions on ingredients or practices that are “impediments to health” (e.g. trans fats); and control of diseases that may affect local agriculture (e.g. swine or bird flu).

System-Wide Policy & Planning

Policy & Planning

4.6

British Columbia Public Health Act

Summary of Findings

This chapter served to introduce the scope of municipal activities, policies and regulations that impact the urban food system. It also presented relevant regional and provincial regulations. The list below highlights certain characteristics and trends when the inventory is considered as a whole. It does not identify the merits of individual policies, regulations or activities; further analysis is presented, where relevant, in Chapter 5. 

Even without a strong mandate for urban agriculture or food security, the City of Victoria has a wide-ranging involvement in food system issues.



Seven of 11 departments are involved in supporting food system activities.



The activities draw on many of the key roles of municipal government, and include public education (e.g. support for Compost Education Centre); funding (e.g. Neighbourhood Enhancement Matching Grants); operational programs (e.g. yard waste and leaf collection); enforcement (e.g. urban agriculture home occupation bylaw); economic development (e.g. downtown markets); community partnerships (e.g. community gardens, hosting food meetings at City Hall); and policy & planning (e.g. sustainability guidelines for private developments)



Overall, the City has more involvement in programs, services and corporate operational policies. Relatively few food system initiatives are of a regulatory nature.



Attention is particularly focused on community gardens, markets, organic waste collection and regulation of food-related businesses.



The City has limited involvement in supporting charitable food services, (regional) agricultural land preservation, beekeeping, agricultural tourism and food marketing. These activities traditionally fall outside the City’s jurisdiction, and present potential partnership opportunities.

44

City of Victoria Food System Discussion Paper



Within the City’s jurisdiction, there is limited involvement in including food as part of the City’s emergency preparedness program.



Several plans and policies that are under development will address aspects of the urban food system. Emerging initiatives such as Healthy Vending Machine Policy, Parks Master Plan and Sustainability Guidelines for private development have the potential to broaden the City’s scope of involvement.



As the urban food system develops, a comprehensive assessment is needed to explore the impact of regional and provincial regulations at the municipal level.

City of Victoria Food System Discussion Paper

45

Highlights of Key City of Victoria Food-Related Activities The list below presents some particularly notable or unique food-related activities already undertaken by the City of Victoria – activities that set the City of Victoria apart from other municipalities.

46



An Animal Control Bylaw that permits an unspecified number of chickens, with few restrictions, making it one of the most permissive in North America.



An innovative model of edible community commons gardens in parks, maintained in partnership with community organizations, where the food is available for anyone to harvest.



A demonstration vegetable garden at the front door of City Hall.



An annual operating grant for the non-profit Compost Education Centre, which teaches composting and organic gardening skills.



An Urban Agriculture Hotline and urban agriculture workshop series, funded through a Special Project Grant.



An Urban Agriculture Resolution that pledges City support in principle for urban agriculture and pledges to collaborate with stakeholders.



A certified commercial kitchen facility available for rent by small-scale food processors and other food businesses, organizations and individuals, through Fairfield- Gonzalez Community Place.



On-going communication and partnership with downtown emergency food service providers on a variety of homelessness and downtown initiatives.



The active promotion of public markets through a City-produced promotional brochure, website links, operating agreements with market operators and ongoing support from City staff. “Pocket Markets”, located throughout Victoria – including City Hall-, demonstrate an innovative approach to small farmers markets.



A Healthy Choices Vending Machine Policy, which has shifted Crystal Pool Recreation Centre vending machines to feature mainly “healthy choices” and will soon affect the types of food served at departmental meetings and events.



A Catering and Dining Policy for City Hall functions that states that no singleserving bottled water is to be used and that only Fair Trade coffee is to be served at City Hall functions.



The collection of food scraps, paper plates and other organic waste from many City buildings.



A range of Special Project Grant Funding in past years for food projects including youth-at-risk cooking classes, regional agricultural festival, and fruit and vegetable bulk buying program.



Start-up funding for many of Victoria’s community gardens through Neighbourhood Enhancement Matching Grants.

City of Victoria Food System Discussion Paper

5 ISSUES IDENTIFICATION 5.1

Introduction

While Victoria is affected by many of the global, national and provincial trends mentioned in Chapter 2, Victoria’s food system also faces many issues that are unique to the region and municipality. This purpose of this chapter is to present the range of issues that both enhance and challenge the development of Victoria’s food system. The issues were identified through a review of local food system research and meetings with City staff and Victoria urban agriculture practitioners. While efforts have been taken to present a complete picture, it is likely not an exhaustive list – rather, the purpose is to identify the key issues, from a broad perspective and definition.

5.2

Review of Existing Research

This chapter presents the issues related to Victoria’s urban food system. The list of issues is drawn primarily from a review of web- and print-based literature. There is a growing body of research and reports that explore many of the issues confronting Victoria’s food system. The majority of these documents were prepared by local non-profit groups or university students, and for a variety of purposes. Some of these documents are broad in subject and scope, such as a baseline assessment of the regional food system, while others focus narrowly on a particular topic (e.g. charitable food programs). Eleven documents were reviewed for the purposes of issue identification. Most were unpublished. The documents were selected 1) from reputable sources known to the consulting team and, 2) to represent a broad range of current issues related to the food system. Nine of the documents are specific to Victoria and/or the Capital Region District. Two additional reports reviewed were prepared for Vancouver, but were included because there was no relevant information for Victoria and the issues are general enough as to be transferable. A listing of all issues identified during the literature review process is found in Appendix 1, Columns 1-11.

5.3

Interviews with City Staff

A total of 12 staff from the following City of Victoria departments participated in in-person or telephone interviews: 

Sustainability



Engineering



Victoria Emergency Management Agency



Planning & Development – Development Services; and Community Planning



Legislative & Regulatory Services – Bylaw Enforcement; and Legislative Services



Parks, Recreation & Community Development – Community Development; Parks; and Recreation Services

City of Victoria Food System Discussion Paper

47



Victoria Conference Centre

While the primary purpose of these interviews was to gather information for the Inventory of the City’s Food-Related Activities (Chapter 4), the meetings also provided an opportunity to highlight key challenges and other issues. Specific questions were circulated in advance of the interviews. The meetings occurred in July- October, 2009. These issues emerging from the interviews are recorded in Appendix 1, Column 12.

5.4

Professional Expertise

The consulting team reviewed the initial list of issues identified through the document review and meetings with City staff. At this point, a list of assets was also identified and described, based on the reviewed research and the consulting team’s experience. These lists were then reviewed for completeness during a small focus group with Victoria urban food system practitioners. Four practitioners were invited to participate, representing expertise in different facets of Victoria’s food system: farmers markets/food distribution; neighbourhood-based food planning; agricultural conservation/food policy; and urban agriculture. Drawing on the consulting team’s and focus group’s collective knowledge of the local and regional food system, additional issues were added to the list (Appendix 1, Column 13).

5.5

Key Assets Supporting Victoria’s Food System

In considering the development of an urban food system, it is easy to focus on the many challenges to be overcome. Yet, such an approach overlooks the strengths that already exist in a community – the assets- that can be drawn upon to respond to challenges and craft solutions. Initiatives will be more effective and sustainable if they build on existing strengths instead of trying to respond to individual problems as they arise. Victoria has many of the pieces needed to sustain an urban food system. Not only is there a growing appreciation for food security and local food, but there is also a wide range of strategies and tools available and being employed on all levels. Talented farmers, a fertile land base, a long growing season and a diversity of agricultural products support the city’s food supply on a regional scale. Within the city, individuals, groups and organizations are working on specific initiatives to collaboratively to strengthen the local food system. Academic institutions, the local health authority and local governments are also in the process of examining their support and role in promoting a localized food system. The following table lists the key assets that support Victoria’s food system, grouped by theme. The consulting team compiled the list, with the input of urban food system practioners’ focus group. A complete description of the assets appears in Appendix 3.

48

City of Victoria Food System Discussion Paper

Table 5.1. Key Assets That Support Victoria’s Urban Food System Type of Asset

Description

Social & Cultural Growing appreciation for food security “Green” community values Strong demand for local food Revitalization of traditional First Nations diets Biophysical Diversity of products raised on local farms Moderate climate and arable land Victoria’s compact size Infrastructural Plentiful underutilized urban land Vibrant public markets Restaurants and shops that showcase “local” Demonstration sites that model urban food system features Rise of “new farming” – small, mixed farms that produce specialty products Community & Institutional Supportive, existing municipal regulations & policy An established regional food policy organization Strong network of food and farming organizations Government institutions supportive of food and agricultural initiatives Existing food-related training and educational programs

5.6

Issues Overview

Any discussion of the issues confronting Victoria’s food system necessarily includes regional issues. Victoria’s urban food system is tightly linked to that of the region. Victoria residents depend on regional lands, facilities and people for food production, processing, wholesaling, marketing, retailing and the disposal and recovery of food waste. The surrounding region relies on Victoria’s concentration of food organizations, food-related cultural events and outlets for selling farm products. Although Victoria does have many of the ingredients for a strong urban food system, the City and region face many challenges. Regionally, local production capacity is far below what is required to feed the CRD’s population. Production is hindered by an aging farm population facing a host of regulatory burdens, rising input costs, shortages in farm labour and skilled labour, high cost of land, and flagging supportive processing and distribution infrastructure. Within Victoria, there is an increasing demand for charitable food services, and a lack of fresh or nutritious food to offer clients. Those wishing to grow their own may lack access to yard or community garden for a garden plot. There is on-going tension about the suitability of food production activities on public land, including parks and boulevards. Consumer food habits City of Victoria Food System Discussion Paper

49

are influenced interest, busy schedules and household income. Food stores may not be available within walking distance, and those that do exist may not always offer affordable, nutritious options. The next section outlines in more detail the many issues that Victoria’s food system faces. The issues raised have been classified here into common themes, and under general headings. The themes were then classified according to their scale of impact: 1) issues that affect food systems across the region or beyond (Regional Issues); and 2) issues that affect the food system located within Victoria’s municipal boundaries (Victoria- Specific Issues).

5.7

Regional Issues that Affect Victoria’s Food System

Social & Cultural Issues Rising Food Insecurity & Obesity: Thirty-nine agencies in Greater Victoria provide over 28,000 meals, snacks or other food-related services each week32. Local agencies have identified an increase in the numbers of immigrants, foreign-born Canadians, international students, mentally ill clients, single and older adults, as well as more families, children and dogs accessing food services.33 Two-thirds of agencies report that they are serving a high proportion of homeless or unstably-housed clients.34 Currently, there are about 1,500 people without homes in the Capital Regional District, 35 and therefore lacking food security. Current BC income assistance is insufficient to pay rent and buy enough healthy food, and those living on income assistance are very likely to report food insecurity (59.7%).36 Evidence suggests that people on limited incomes are more likely to buy cheaper, energy-dense and nutrient-poor food, a diet contributing to the rise in obesity. 37 In spite of growing food security within certain regional populations, Southern Vancouver Island as a whole has lower obesity rates and higher fruit and vegetable consumption rates than the national and provincial averages.38 Lack of Skills: People may be reluctant to become involved in growing or processing their own food due to a lack of skills. Serious food production requires commitment, perseverance and some degree of training/education. Greenhouses, rooftop gardens and commercial operations may require special skills. Classes may not be affordable for all. 32

Boecski, A. and M. Annand. 2008. Agency Community Foods & Meals Survey. Victoria, BC: Prepared for Vancouver Island Health Authority, Salvation Army and University of Victoria.

33

Boecski, A. and M. Annand. 2008. Agency Community Foods & Meals Survey. Victoria, BC: Prepared for Vancouver Island Health Authority, Salvation Army and University of Victoria.

34

Boecski, A. and M. Annand. 2008. Agency Community Foods & Meals Survey. Victoria, BC: Prepared for Vancouver Island Health Authority, Salvation Army and University of Victoria.

35

Greater Victoria Coalition to End Homelessness. Accessed from www.solvehomelessness.ca, August 5, 2009.

36

Health Canada. 2007. Canadian Community Health Survey: Income-related household food security in Canada. Accessed from www.hc-sc.gc.ca/fn-an/surveill/nutrition/commun/income_food_sec-sec_alim_e.html, August 5, 2009.

37

Kerstetter, S.Goldber,M. 2007. A Review of Policy Options for Increasing Food Security and Income Security in British Columbia: A Discussion Paper. Prepared for BC Provincial Health Services Authority.

38

Victoria Foundation. 2008. Victoria’s Vital Signs: Greater Victoria’s 2008 Annual Check-up. Accessed from www.victoriafoundation.bc.ca/web/files/vital_signs_2008.pdf, August 5, 2009.

50

City of Victoria Food System Discussion Paper

Lack of Interest, Time or Commitment: Although gardening is North America’s most popular recreational activity, not everyone has the time for, or an interest in, growing their own food. Time constraints can be particularly challenging for families living on low-income. A small food garden requires an estimated 30 minutes of work per day throughout the growing season; a bigger garden can require several hours. New gardeners may have unrealistic expectations about what is possible. Lack of Understanding of Local Food System Issues: The public-at-large may not have sufficient understanding of many of the issues associated with local farming and the food system. This includes such issues as consumers not recognizing the true cost of producing food locally, customers’ unwillingness to pay more for local food and a lack of appreciation for the multiple benefits of local food (health & nutrition, local economy, quality, etc). Consumers may be unaware of where to purchase local foods, which products are seasonally available, and alternative ways of purchasing local foods (co-ops, buying clubs, brown box programs). Public Perception: Many people feel that agricultural activities do not belong in urban areas. Residents can be concerned about unsightliness, vandalism, costs, odours, pests and the effect of urban agricultural activities on neighbouring property values, in spite of research that indicates otherwise.39,40,41 High Cost of Locally-Produced Food: Most people make food buying decisions based on price. Local food is expensive to produce. Even so, current prices still do not always reflect the true cost of local food, as customers would be even more unwilling/unable to pay. Local agriculture cannot compete with large-scale agribusiness. For those living on low-income, the purchase of local food is often beyond reach unless it is available through subsidized programs. The current economic downturn means that people are even less willing and/or able to buy more expensive local products.

Biophysical Issues Availability and Cost of Water: The availability of water is a constraint to regional agriculture, including urban agriculture. There is concern about regular water shortages on Southern Vancouver Island in the future, particularly due to a changing climate. The regional watershed is being degraded due to fertilizer run-off, poor manure management, contaminants and stormwater run-off. Water-conserving irrigation techniques and plantings require an investment of education and money. Unknown Effects of Climate Change: As temperatures change, Canada as a whole may become a refuge for those fleeing impacts of climate change in other countries, and the region will need agricultural land to support a growing population and demand for food. The

39

MacNair, E. 2002a. The Garden City Handbook: Creating and Protecting Community Gardens in Greater Victoria. Victoria, B.C.: POLIS Project on Ecological Governance

40

Been, V. and I. Boicu. 2006. The effect of community gardens on neighbouring property values (DRAFT). New York University: Law & Economics Working Paper Series. Accessed from lsr.nellco.org/cgi/viewcontent.cgi?article=1049&context=nyu_lewp, October 19, 2009.

41

Gateway Greening. Ny. Whitmire Study: Reversing Urban Decline in Gateway Greening Community Garden Areas. Accessed from www.gatewaygreening.org/WhitmireStudy.asp, October 19, 2009.

City of Victoria Food System Discussion Paper

51

specific effects of climate change on watersheds and soil are poorly understood for the region.

Infrastructural Issues Decline of Traditional Agriculture: Traditional farming in the CRD is challenged by the need for better land protection, the need for more affordable land, and the need to make farming more economically viable. 42 While the ALR appears to be protecting land from recent development pressures, lands may still lie fallow or underused due to lack of labour or profitability. Development pressures and speculation are driving up the cost of local farmland. The high cost of land is prohibitive to most new farmers or those who want to expand or diversify their operations. As farmers age, many families cannot afford to take on the farm. Traditional ways of farming are increasingly supplemented by off-farm, agritourism or valueadded product income. Provincially, the economic viability is challenged by increasing regulatory pressures, shifts in taxation policy and farm assessments, labour shortages, increases in input costs as well as on-going competition from global food economy and subsidized industries. Regionally, the loss of meat processing plants, restrictions on on-farm housing and purchasing requirements (such as quantity, consistency, packaging, labelling and pricing) of major retailers has further impacted the viability of local farms. Critical Infrastructure Gaps: The availability of local food in the CRD is limited by a number of important infrastructure elements that are not available or are in short supply. Anecdotally, even if every CRD resident wanted to increase the amount of local food in their diet, the infrastructure gaps would likely prevent more than a 20% shift to local food. 43 Recent regulatory and health requirements have imposed new challenges, most notably for meat and other food processing facilities. Elements in short-supply include: local meat processing and storage facilities (the closest one is in Duncan); refrigerated trucking; longterm cold storage facilities; adequate food processing facilities for fruits, vegetables and other products; grazing pasture for livestock; and local commercial composting facilities. Several human infrastructure elements are also absent, including veterinarians and sheepshearers, and financial institutions sensitive to small-scale food producers and processors. Garden Start-up, Maintenance and Coordination Costs: There are maintenance and infrastructure costs for new public and private gardens, including labour, management, soil, water, tools, fencing, rent, insurance, processing and packaging. Specialized activities such as beekeeping, chickens, irrigation, greenhouses and commercial operations may have additional needs. A new community garden can cost between $5,000 and $8,000, not including volunteer labour. 44

42

Geggie, L. and K. Platt. 2007. Our Farmlands, Our Foodlands…Our Future: Tools and Strategies for Ensuring Productive and Accessible Farmlands in the CRD. Accessed from lifecyclesproject.ca/conferences/focusonfarmlands/docs/OurFarmlands-Our-Foodlands-Conference-Findings-Report-07-2009.pdf, August 5, 2009.

43

Fuge, Lee ( Manager, FoodRoots Distributors Co-op). Personal Communication, September 22, 2009

44

Kahn, D. and T. Dixon. 2006. Administrative Report: Community Garden Pilot Project. City of Vancouver Social Planning Department. Accessed from vancouver.ca/ctyclerk/cclerk/20060516/documents/a8.pdf, July 14, 2009.

52

City of Victoria Food System Discussion Paper

Impacts of “Peak Oil": The predicted worldwide shortages of oil in the next few decades, and a corresponding increase in transportation costs may have significant impacts for Vancouver Island’s food supply, distribution and costs.

Community & Institutional Issues Health and Legal Concerns: The nature of food production, processing and recycling can present potential health hazards, nuisances, and legal liability concerns. Potential issues include groundwater and soil contamination, pesticide use, odour or noise pollution, bee stings, diseases from backyard livestock and toxic plants (e.g. rhubarb leaves, green potatoes). Very little is known about the impact of urban air pollution and soil contamination on food crops. Maintenance and Aesthetics: The planting of edible plants in public parks, boulevards and on building grounds raises special concerns for a clear plan for maintenance, harvesting and distribution of the produce. Proponents of public food gardens point to high-maintenance ornamental species in parks such as roses, annual flowers and horse chestnuts and claim that the maintenance, safety and aesthetic concerns of edible plants are not really that different than their ornamental counterparts.

5.8

Issues Specific to Victoria’ Food System

Social & Cultural Issues Increased Use of Charitable Food Services: The use of Victoria’s charitable food services has increased in recent years, particularly among homeless and unstably housed populations. 45 Every week, 39 agencies in Greater Victoria serve up to 20,195 meals and 5770 snacks as well as provide food, food vouchers and hampers for 2375 guests to take away.46 Major issues facing Victoria’s charitable food services include operational funding shortages, need for food donations, limiting restrictions on food pick-up, increasing liability concerns, and changing regulations regarding food safety (particularly the need for refrigerated trucks and storage). Suitability of Food-Related Activities in Public Space: Some key activities that would support the urban food system are challenged by different public perceptions of the appropriate use of public space. There are diverging viewpoints on whether activities such as street food carts, sidewalk cafes, concession stands (and other food outlets) in parks and public streets, boulevard gardens, allotment gardens in parks, and edible landscaping in parks are appropriate uses of the public realm. Some oppose the expansion of these activities as because they are perceived to restrict or privatize public space, and feel that the benefits will flow only to a small few. Proponents of these activities suggest that food-related activities, particularly those that support food production, achieve multiple community benefits and a greater diversity of uses for public space.

45

Boecski, E. and M. Annand. 2008. (Victoria) Agency Community Food and Meals Survey. Victoria, BC: Unpublished report prepared for Vancouver Island Health Authority, University of Victoria and Salvation Army.

46

Boecski, E. and M. Annand. 2008. (Victoria) Agency Community Food and Meals Survey. Unpublished report prepared for Vancouver Island Health Authority, University of Victoria and Salvation Army.

City of Victoria Food System Discussion Paper

53

Biophysical Issues Low Overall Population: Although dense by regional standards, Victoria may not have the population capacity necessary to support food system infrastructure, including a permanent year-round farmers markets.

Infrastructural Issues Access to Home Garden Space: The availability of land for food production is a significant obstacle to promoting food production in Victoria, on both private and public lands. Multi-unit dwellings such as apartments, duplexes and row houses account for 84% of Victoria’s housing stock. 47 Across the City, 60% of residents are renters. In some neighbourhoods such as James Bay, North Park and Downtown, this share increases to more than 70%. 48 Both renters and those living in multi-family dwellings may have limited access to household garden space due to small yards, a lack of common space, or unsuitable exposure. 49 Restrictive strata regulations and tenancy agreements can also limit access to yard space due to strata concerns about aesthetics and long-term maintenance. As the City’s properties densify and the housing stock shifts towards more multi-family housing, there will be smaller yards and less space for household gardens. 50 Boulevards present another opportunity for home (or close to home) garden space. The City of Victoria is currently reviewing policies regarding the cultivation and maintenance of boulevards, including potential food production. Currently, a small amount of food production occurs on blocks that do not pay for City boulevard maintenance. Little is known about the safety and toxicity of food grown near roads. Succession of ownership also needs to considered: some boulevard gardens in Portland, Oregon have been reportedly been returned to turf when the gardeners moved away. Green roofs provide yet another potential site for food production. Given the small, fragmented nature of many roofs, important concerns about structural loading, and the relatively large amount of underused land in Victoria, the potential for rooftop food gardens should not be overstated. However, under the proper conditions, roofs can provide growing space. Recent initiatives with the provincial construction and insurance industries are looking at options for intensive (high-maintenance) green roofs, including food production activities. High Land Values: Victoria has among the highest land values in the country. Under the current economic system, the returns from urban agriculture, even intensively managed market gardens or greenhouse operations, would not provide economic returns that would compete with land (re)development. This equation may change in the future as the price of food increases, thus making food production a more valuable use.

47

City of Victoria. 2009. Victoria Housing Characteristics. Accessed from www.victoria.ca/cityhall/pdfs/sustainabilitycensus-housing.pdf, October 16, 2009.

48

ibid.

49

MacNair. 2002a. The Garden City Handbook: How to Create and Protect Community Gardens in Greater Victoria. Victoria, B.C.: POLIS Project on Ecological Governance.

50

ibid.

54

City of Victoria Food System Discussion Paper

Barriers to Commercial Operations: Not everyone has the interest in or skills for growing their own food, even if they want to eat as locally as possible. For this reason, for-profit urban agriculture operations are essential if urban food is to significantly contribute to the local diet and food security of residents. Customers then have the option to purchase urbanproduced food, grown by skilled and dedicated producers. Victoria recently amended the Home Occupation Bylaw to include urban agriculture as a permitted home occupation for up to two occupants. This amendment considered key issues, particularly that increased commercial urban agriculture activities could lead to loss of municipal tax revenue and have impacts (noise, odour, signage and parking) on neighbouring properties. While the amendment is generally viewed positively, local producers point to several restrictions that may negatively impact potential urban agriculture operations. First, the bylaw’s prohibition of home-based retail sales, including gate stands/sales, as a challenge to small growers who might lack resources or volume to sell elsewhere. 51 Potential parking, noise and licensing issues would also need to be resolved for home-based retail sales to take place, however. Second, given the intensive nature of urban agriculture, it is foreseeable that more than two residents will be engaged in operations. Third, the stipulation that activities must be carried out by home occupants also restricts other homes from sharing their unused garden space with non-resident commercial operators, such as SPIN-farming operations (Small Plot INtensive), already underway in Victoria. Fourth, the stipulation that no other home occupation can take place on-site effectively prohibits commonly practiced urban agriculture activities, including produce delivery businesses (“mail-order”) or value-added activities (“making or processing…” products on a small-scale). Fifth, the complementary amendments to the City’s farm tax rate, which peg farm tax rates to residential tax rates, intentionally makes it difficult for urban farmers to claim provincial Farm Classification (and claim the associated tax benefits). While protecting the City from a loss of tax revenues for specific properties, this measure also effectively eliminates a dramatic incentive for high-yield urban food production. Accessory building uses also present a challenge to commercial operations. In most residential zones, greenhouses and nurseries are permitted as accessory use only and not for commercial purposes. The development of greenhouses and nurseries would need to be carefully considered, in order to address important issues of aesthetics, odour, light pollution, energy use, water use and size. Currently, a lack of commercial greenhouses or nurseries, even small ones (under 100 square feet) presents two key issues that impact the self-reliance of the urban food system: 1) Commercial urban agriculture operator are restricted from raising plant, berry and tree seedlings for sale. Home gardeners are therefore reliant on seedlings imported from outside the city and region; and 2), the lack of covered growing space significantly restricts types of crops that licensed urban agriculture operators can grow, and that customers can consume, particularly over-wintering crops. Shortage of Community Gardens: Those currently looking for a plot at a Victoria’s few community allotment gardens are met by waitlists and an undersupply of garden plots.52,53,54

51

Barbulak, W., K. Gauvin and S. Janz. 2008. Urban Agriculture in the City of Victoria: Policy Shifts Toward Food Security. Victoria, BC: Unpublished paper, prepared for University of Victoria SOCW560, April 2008.

52

LifeCycles Project Society. 2007. Benefits of Urban Agriculture for the City of Victoria: Background Paper. Victoria, BC: Unpublished paper, submitted to Victoria City Council, January 2007.

City of Victoria Food System Discussion Paper

55

Despite an existing City Community Gardens Policy, the creation of new community gardens is limited by a lack of information about suitable sites, competing land uses that make gardens unfavourable and existing land use restrictions that make it difficult to find new sites. 55,56,57,58 Public and private landowners may be reluctant to establish a new community garden due to fear that once the community garden is established, the community assumes de facto ownership of the land. Support for community (allotment) gardens on City Parks land has been mixed, as some residents are reluctant to see public lands used for what is perceived as a private activity. 59,60 Neighbours of community gardens may oppose potential noise, the irregular hours of gardeners, as well as people from outside the neighbourhood coming into the gardens. Community garden advocates claim that allotment gardens are not unlike tennis courts, skateboard parks or lawn bowling clubs, public facilities that are used by only a small percentage of the population. Many of these facilities, like allotment gardens, require membership or use fees. Where artificial turf and tennis courts can be used for a single purpose, allotment gardens achieve multiple uses, including biodiversity, education, recreation, community development and food production. The City’s Community Gardens Policy (2005) supports community gardens (allotments and commons) on City-owned land, including Parks. The City’s practice appears to be a departure from the policy, however, in response to community opposition to new Parks-based allotment gardens. Although not stated in the Community Gardens Policy, the City’s current practice has been to allow only community commons (shared) gardens -and not allotment gardens- on Parks land, thereby giving free access to all members of the public to enjoy the gardens and its bounty. The commons garden approach meets the primary objectives of public access and education, however the contribution to household food supply may be relatively low, as anyone can share the harvest.

53

Barbulak, W., K. Gauvin and S. Janz. 2008. Urban Agriculture in the City of Victoria: Policy Shifts Toward Food Security. Unpublished paper, prepared for University of Victoria SOCW560, April 2008.

54

MacNair. 2002a. The Garden City Handbook: How to Create and Protect Community Gardens in Greater Victoria. Victoria, B.C.: POLIS Project on Ecological Governance.

55

Barbulak, W., K. Gauvin and S. Janz. 2008. Urban Agriculture in the City of Victoria: Policy Shifts Toward Food Security. Unpublished paper, prepared for University of Victoria SOCW560, April 2008.

56

MacNair. 2002a. The Garden City Handbook: How to Create and Protect Community Gardens in Greater Victoria. Victoria, B.C.: POLIS Project on Ecological Governance.

57

LifeCycles Project Society. 2007. Benefits of Urban Agriculture for the City of Victoria: Background Paper. Victoria, BC: Unpublished paper, submitted to Victoria City Council, January 2007.

58

Ewald, Y. 2003. Hopeful Harvest: Exploring Socio-Geographic Limitations to Food Access in Hillside-Quadra. Victoria, BC: Unpublished Graduating Essay for the University of Victoria Honours Bachelor of Arts in Geographc, 2003.

59

Barbulak, W., K. Gauvin and S. Janz. 2008. Urban Agriculture in the City of Victoria: Policy Shifts Toward Food Security. Unpublished paper, prepared for University of Victoria SOCW560, April 2008.

60

MacNair. 2002a. The Garden City Handbook: How to Create and Protect Community Gardens in Greater Victoria. Victoria, B.C.: POLIS Project on Ecological Governance.

56

City of Victoria Food System Discussion Paper

Under current City practice, new community allotment gardens may be considered on Cityowned land that is not part of the Parks system. There is a lack of and a need for a definitive gauge of public support for Parks-based allotment gardens, and how this support might vary across neighbourhoods. Barriers to Street Food Vending: Street food carts and kiosks can animate public space, provide low-cost food options, encourage economic development, and showcase local cuisine. Victoria has small but diverse street food vending sector. Most stands are concentrated on private property, as City licensing restricts (new) vendors from locating on public property. VIHA Health regulations also limit the types of foods that can be prepared on-site and requires hygiene facilities. There is a perception in the business community that street food vendors will compete with adjacent restaurants, 61 in spite of the fact that the two food and dining experiences are quite different. Lack of School Gardens: School gardens play an important role in educating children about their food system. Currently, few schools in Victoria have school gardens. While gardens are generally not costly to create, they do require a considerable amount of volunteer time and coordination, and put burdens on an already taxed teaching staff. Additional questions over liability, responsibilities of school maintenance staff, and upkeep during the summer breaks also need to be addressed for each school. Lack of Small Scale Food Processing Facilities: Little information exists about the commercial food processing sector in Victoria. More is known about the small-scale food processing, which includes such activities as baking, creating jams, preserves or ready-made meals. Provincial Food Safety regulations require most goods produced for commercial sale must be processed in certified licensed kitchens. These facilities are costly to install and normally beyond the capacity of small operations. There are a few licensed operations accessible to processors but often these kitchens are oriented to meal production for large groups and do not have the types of equipment needed for specific types of processing. There are some models of cooperative processing kitchens that may meet the needs of the small producers and processors. Lack of Year-Round Farmers Markets: Farmers markets animate public space, provide education, support local agricultural economy and provide fresh, local food. However, they are labour intensive for small farmers to attend, new markets can have trouble attracting customers until they are well established, and – because they reflect the true cost of local food- can be expensive. 62 Issues specific to Victoria’s markets include poor attendance, a small number of vendors and limited operating hours. 63 A year-round facility is particularly lacking, given the 12 -month growing season. Under current conditions, constraints exist with respect to the local market suppliers and capacity of the community to support a year round local market.

61

Hill, M. (Downtown Coordinator, City of Victoria). Personal Communication, August 8, 2009.

62

Jacobsen, C. 2006. Planning for Farmers Markets and Sustainable Food Systems. Vancouver, BC: Unpublished Masters Thesis, UBC School of Community and Regional Planning. Accessed from vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/tools/pdf/Jacobsen_FarmersMkts.pdf, July 14, 2009.

63

MacNair, E. 2004. A Baseline Assessment of Food Security in British Columbia’s Capital Region. Victoria, BC: Capital Region’s Food and Agriculture Initiatives Roundtable (CR-FAIR).

City of Victoria Food System Discussion Paper

57

Lack of Fresh, Nutritious Charitable Food: Nutritious, perishable food such as fresh fruit and vegetables are in short supply due to storage and preparation challenges, and the fact that breads and baked goods are the most commonly donated food products. Agencies spend their own funds to supplement donations; collectively, agencies in Greater Victoria spend $30,000 on the purchase of food per week, primarily from major food retailers. 64 A coordinated food diversion system, where farmers, stores and restaurants donate surplus perishable food, could meet both the need for more fresh foods, and the need for better organic waste management. Shift in Food Retail Operations: The types of businesses selling food have changed in recent years. Many independent, owner-operated supermarkets have given way to supermarkets owned by regional or national chains. This shift can affect the type and selection of products offered for sale, as well as corporate purchasing policies. For example, many chains such as Thrifty’s have volume requirements for fruits and vegetables that are largely unattainable for small, local farmers. Traditionally, Victoria’s small, independent neighbourhood grocery stores provided convenient and walkable access to daily staples such as milk, eggs and bread. However, faced with declining revenues and changing buying habits, many of these stores are closing. Gas station convenience stores and drug stores are new faces on the food retail landscape. Gas stations tend to provide convenience and “junk” foods, while drug stores offer range of non-perishable items, dairy, frozen foods and natural foods. These new food outlets may increase the proximity to food in local neighbourhoods. It is unclear the degree to which these will change purchasing habits and locations of local residents. Lack of Coordinated Nutrient Cycling: The availability of rich, fertile soil is a basic requirement for successful urban food production. The composting of household or institutional food waste presents the opportunity for on-site gardeners to produce muchalthough likely not all- of their soil needs. While household composting has been relatively successful, there is further room for improvement, as organic material (yard, garden and food waste, and soiled paper products) still accounts for 30% of the solid waste sent to the Capital Regional District’s landfill. 65 There is particularly low organic waste collection from the commercial sector in the CRD, including grocery stores and restaurants. One local study estimated that the average grocery store throws out 200 pounds of food waste per day.66 A Vancouver study identified key composting challenges for small businesses as the cost of pick-up and the lack of an easy system for sorting organics. 67

64

Boecski, E. and M. Annand. 2008. (Victoria) Agency Community Food and Meals Survey. Unpublished report prepared for Vancouver Island Health Authority, University of Victoria and Salvation Army.

65

Capital Regional District. 2009. Food Composting Overview. Accessed from www.crd.bc.ca/waste/organics/index.htm

66

Angrove, G. 2008. Dishing Out Excess: Sustainable Food Recovery in Commercial Grocery Stores of Greater Victoria. Unpublished paper, University of Victoria Geography Department.

67

Vancouver Food Policy Council. 2006. Vancouver Recovered Food Assessment. Prepared for the City of Vancouver Social Planning Department, 2006. Accessed from vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/tools/pdf/Food_Diversion.pdf, October 19, 2009.

58

City of Victoria Food System Discussion Paper

Regionally, there are few commercial composting facilities for household/business waste, likely due to the onerous process and multiple permits required. 68 Victoria’s closest commercial composting facility is in Cobble Hill, creating a significant carbon footprint as food waste is collected in Victoria, trucked over the Malahat, trucked back and sold in the form of compost. Wood chips and leaves are also used as important soil amendments for food gardens. The City of Victoria picks up leaves and organic waste from parks, streets and households. While much of the organic material is turned into mulch for City operations, the City does not use all of it. The City pays to have surplus leaves and wood chips picked up by a private hauler; finished mulch is then sold through landscape companies and other businesses. Leaves and compost are not usually available to the public, although donations can be made to non-profit groups and community gardens.

Community & Institutional Issues Lack of Basic Food System Data: There is an absence of basic data needed to support both broad-scale policies and site-specific plans for supporting local food systems. Among the information needed is a land inventory of public and private lands available for food production, energy needs of urban agriculture, water needs of urban agriculture, cost-benefit analysis of certain crops and financial viability of certain urban food production and processing ventures. Also needed is qualitative information on the level of support for certain food-related activities, such as boulevard gardens and community allotment gardens in parks. Lack of Coordinated Institutional Approach to Food System Issues: Institutions, including the City of Victoria, are currently involved in multiple food-related issues. However, the lack of a coordinated approach within and among agencies means initiatives are often piecemeal and disconnected from a coordinated strategy of significantly improving urban food security. Within the City, for example, staff would need to gain experience and technical skills necessary for supporting food system projects. Lack of Funding for Food Organizations: In Victoria, non-profit organizations are responsible for the delivery of essential food system services such as building and coordinating community gardens; charitable food distribution; managing public commercial kitchens; distributing backyard compost; maintaining public food gardens; coordinating farmers markets; and teaching skills including composting, food gardening and raising backyard chickens. However, Victoria’s food organizations, like those across the country, are challenged with maintaining stable, long-term funding in order to support their services. The current economic challenges have exacerbated funding availability. Organizations want to be able to provide affordable programs, such as gardening skills training. With a few exceptions, most organizations do not receive on-going funding from local governments for these activities. Some are exploring revenue generation and social enterprise models. Lack of Food- Related Emergency Preparedness: Vancouver Island imports 90% of its food; if ferry access were cut off, the Island would have an estimated three-day supply of food. The City does possess powers to seize commercial food supplies under a state of emergency. However, there is little formal planning in this area beyond encouraging individual households to keep a three-day food supply. There is a lack of knowledge of the extent of regional or

68

ibid.

City of Victoria Food System Discussion Paper

59

local food supplies, including food from retailers, farms or gardens, and a lack of formal relationships with potential food suppliers, refrigerated transporters, and food processors that might support an emergency response.

5.9

Summary of Issues

Table 5.2 summarizes the issues facing Victoria’s food system, from both the regional and urban perspective. Table 5.2. Summary of Key Issues Facing Victoria’s Urban Food System Issues Specific to the Entire Region

Issues Specific to Victoria

Cultural & Social Attributes 

Rising food insecurity and obesity



Increased use of charitable food services



Lack of skills



Suitability of food activities in public space



Lack of interest, time of commitment



Public perception



High cost of locally-produced food



Lack of understanding of local food system issues



Low overall population

Biophysical Attributes 

Availability and cost of water



Unknown effects of climate change



Development pressure on food producing lands

Infrastructure 

Decline of “traditional” agriculture



Access to home garden space



Critical infrastructure gaps



High land values



Start-up, maintenance and coordination costs for gardens



Barriers to commercial operations



Shortage of community gardens

Decreasing availability of oil and increasing price of transportation



Barriers to street food vending



Lack of school gardens



Lack of small scale food processing facilities



Lack of year-round farmers market



Lack of fresh, nutritious charitable food



Shift in retail food outlets



Lack of neighbourhood food store



Lack of coordinated waste/nutrient recycling



Lack of basic food system data



Lack of coordinated institutional approach to food system issues



Lack of funding for food organizations



Lack of emergency preparedness for food supply



Community & Institutional Capacity 

60

Health and legal concerns

City of Victoria Food System Discussion Paper

6 CASE STUDIES 6.1

Introduction

This section provides a detailed review and analysis of the approach to urban food systems by four West Coast cities. The case study cities are Portland, San Francisco, Seattle, and Vancouver, four different municipalities each renowned for their progressive approaches to urban agriculture and the broader food system. The case study reviews are presented to provide a better understanding of the different ways that cities within the West Coast bioregion are considering and supporting urban food systems. The reviews introduce key municipal government- supported urban food system activities within each city, focusing on educational, policy & planning, economic development and research activities. Also included is a summary of strengths and weaknesses from the consultants’ point of view. The following chapter provides a comparative analysis with a view to drawing lessons and considerations that could help guide Victoria’s involvement in this area. This discussion paper promotes no single case study as the model that Victoria should emulate. The cities vary in their mandate for and length of involvement in urban food systems initiatives. Seattle, for example, has a long-standing municipal community gardening program but, until 2008, did not have an overarching directive to engage in urban food systems work. San Francisco’s city government has had some limited involvement in food system issues over the last five years, and received a Mayor’s directive for comprehensive food system planning and service delivery last year (2009). Vancouver and Portland have each had a clear mandate for municipal government food policy since 2003 and 2002, respectively. In all four cities, many food-related initiatives also pre-date an official mandate. As a result, the case studies describe a mix of activities that have already been implemented, as well as activities that have only recently been announced. Because municipal involvement in urban food systems is such a young field, the intent is to find commonalities and differences, rather than present a definitive evaluation of the successes and failures.

6.2

Selection of Case Study Communities

The review and comparison of four different cities’ approaches provides helpful lessons on how Victoria might consider and support its own urban food system. The four case studies profiled in this report are Portland, Oregon; San Francisco, California; Seattle, Washington; and Vancouver, British Columbia. The selection of case study cities was based on a two-step process: 1) an Internet and literature review of municipal approaches to urban food systems; and 2) an informal survey of professionals working in urban food systems. The selection of case studies was driven by the desire to profile leading-edge approaches of municipal government involvement in the urban food system, irrespective of location or jurisdiction. While the selection was not limited to North America, it became clear in the end that the strongest and most relevant examples are all on the West Coast.

City of Victoria Food System Discussion Paper

61

The cities were chosen using the following rationale: •

The cities share common Pacific coast geography, climate, agricultural zones and cultural values.



Each one of these cities is internationally recognized for its urban agricultural initiatives, food-related programs, and involvement in food system planning.



No other Western Canadian municipalities have a comparable depth of involvement in food system issues.



While all four case study cities are much larger than Victoria, size is not a critical element in the determination of a City’s approach to food systems.



Although the three American cities do have different jurisdictional roles and responsibilities from their British Columbia counterparts (notably with respect to health, legal context and municipal powers), jurisdiction does not appear to be critical difference in the types of food-related activities that a municipality undertakes.

While it would have been preferable to profile more Canadian cities than just Vancouver, it became apparent through the research process that few municipalities had the desired scope or depth of involvement in food issues. Montreal and Toronto were considered; Montreal’s involvement is narrowly focused on its successful municipal community gardening program, while Toronto has broad involvement but as many jurisdictional differences with Victoria (e.g. a municipal health department, a metropolitan government) as some of the other American cities that were being considered – cities that shared cultural and bioregional similarities that Toronto did not.

6.3

Methodology

The methods used to prepare the case studies followed two distinct steps: 1) an internetbased review of literature, reports, websites and policies for each city; and 2) a phone interview with a key City staff person responsible or closely connected to the delivery of each city’s food system programs. The case studies were prepared in September and October 2009. The case studies present highlights of the City’s work, program structure and implementation, key initiatives and staff reflections. In the interests of space, this information is summarized here. More information on the food-related initiatives provided and/or supported by each municipal government – including a brief description and references - can be found in Appendix 4.

62

City of Victoria Food System Discussion Paper

6.4

Portland69

Program Overview

Population:

575,930

Area:

376.5 km2

Density: 1,603 people/km2 Portland is considered by many North Americans to be the “poster child” of urban planning, with its well defined and defended growth boundary and network of small city blocks. Agriculture is a significant and increasingly supported activity both inside and outside the municipal boundary. The Mayor is a keen food gardener and has personally directed the implementation of a community garden at City Hall. Portland has an active and growing food culture and a population that understands and is concerned with a wide-range of issues associated with food. Most members of City Council support food-related issues, as do key staff within many of the City’s Departments.

Program Structure & Implementation Portland has had a mandate for food issues since 2002, when the City and County established the Portland-Multnomah Food Policy Council, an advisory committee to bring citizens and professionals together to address issues such as food access, land use planning and regional agriculture. The Peak Oil Task Force and consultation process (2006) also reaffirmed the City’s commitment to a sustainable urban food system. One staff person in the Office of Sustainability supports food-related initiatives. Portland’s culture of City departments that collaborate on multi-departmental issues has helped to insert food-related initiatives across the City government. This has been supported by the political prominence of the Planning and Sustainability Department, as well as a strong community food and sustainability culture. Funding and leadership for food system initiatives is generally provided through the City’s Bureau of Planning and Sustainability.70 Funding for some programs is also provided through the Portland Development Commission and Portland Parks and Recreation.

Key Activities71 Portland’s involvement in food system issues is wide-ranging, particularly in the areas of food production and waste recycling. The Parks & Recreation Department Community Gardens Office predates the official mandate for food involvement. Established in 1975, the Office administers 32 community gardens throughout the city, of which over 60% are on parkland, and the balance on private, institutional and other public lands. The gardens host workshops, feature fruit tree orchards, and provide fresh produce to charitable food services through the Produce for People program. The City supports food production through an urban agriculture workshop series, no-cost summer gardening camps for children, a City-owned dairy farm that provides educational programs in partnership with volunteers, public schools and Portland State University. A 700 square foot vegetable garden at City Hall promotes growing and sharing produce.

69

Cohen, Steve (Food Policy Program Coordinator, City of Portland Bureau of Planning & Sustainability). Telephone interview: October 2, 2009.

70

www.portlandonline.com/bps/index.cfm?c=41480

71

A comprehensive list, description and references are provided in Appendix 2

City of Victoria Food System Discussion Paper

63

The City’s policies allow the keeping of bees, pygmy goats, rabbits and chickens. The relaxation of health and zoning bylaws has encouraged a thriving street food scene. Yard waste is collected bi-weekly in roll carts on the same day as recycling and garbage collection. The City also encourages organic waste collection in private businesses and provides technical assistance and training through the Portland Composts! for Business program. The City has also partnered with local universities to conduct food system and food policy research.

Reflecting on the Portland Experience In discussing the City of Portland’s approach to urban food system issues, staff noted the following strengths and weaknesses: 72 Strengths: 

Supportive Mayor (and active gardener) and Council



Culture of City departments that work together to tackle multi-departmental issues



Regional nature of Food Policy Council



Portland’s food culture and interest and involvement in food issues



Effective food activist community



Reporting structure –the department within which the Food Policy Coordinator position is housed (Planning and Sustainability) reports directly to the Mayor

Weaknesses: 

Limited funding and resources



Temporary nature of Food Policy Coordinator staff position (funded on an annual basis)

6.5

San Francisco73

Overview

Population:

808,976

Land Area:

600 km2

San Francisco is a highly urbanized and progressive city Density: 6,686 people/km2 that has been actively engaged in the development of food system and urban agriculture policies within the past year. The City has a new Mayor that appears intent on making healthy and sustainable food a central part of the City’s business. His recent Executive Directive on Healthy and Sustainable Food has propelled the City into the forefront of food policy and planning in North America, and has the potential to significantly impact the City’s involvement with and management of its food system.

72

Cohen, Steve (Food Policy Program Coordinator, City of Portland Bureau of Planning & Sustainability). Telephone interview: October 2, 2009.

73

Jones, Paula (Food Systems Director, Food Systems Program, SF Department of Public Health). Personal Communication. Telephone Interview, September 18, 2009.

64

City of Victoria Food System Discussion Paper

Program Structure & Implementation The City of San Francisco is a large government organization with responsibilities far beyond most American municipal governments. The City is made up of over 50 departments including Public Health- many of which have an interest or involvement in food. The Mayor recently issued a Healthy and Sustainable Food Directive that establishes both a temporary Food Policy Council and a central coordinating body, the Food Policy Office, within the Department of Public Health. All City departments are required to provide preliminary plans on how they will execute the directive and to designate a key contact for advancing the food policy objectives within their departments. Departmental members of the Food Policy Council include the Mayor’s Office and seven other departments. Through this directive efforts are being made to establish a systematic approach to effectively consider and deal with the multi-departmental/disciplinary topic of food and food systems.

Key Initiatives74 Food has been on the municipal agenda since the San Francisco’s Sustainability Plan (1997) was released with a chapter on food and agriculture. The Recreation & Parks Department supports and manages 40 community gardens on Cityowned property, operated in partnership with community volunteers. The construction and maintenance of community gardens in parks is facilitated through the San Francisco Parks Trust. The City promotes new home food gardens through the Victory Gardens 2008+ program in order to achieve greater food security and reduced food miles. The Farmers Market Ordinance requires all farmers markets to accept food stamps, that all Parks & Recreation land to be considered for future markets locations, and underserved neighbourhoods be assessed for their potential to support new farmers markets. San Francisco has one of the first large-scale urban organic waste collection programs in the United States, and collects over 400 tons of food scraps, yard trimmings and soiled paper every day from households, restaurants and other businesses. Other initiatives include commitments for fair trade and organic food, a bottled water ban, the promotion of healthy eating environments in the workplace and the San Francisco Food virtual resource centre, hosted by the City’s website. Many of these initiatives predate the Mayor’s Directive on Healthy and Sustainable Food (2009), a groundbreaking, comprehensive food policy that holistically considers all stages of the food system. It outlines ambitious objectives for hunger, healthy food planning and procurement, food production on City-owned land, the marketing of regionally grown food, support for the City’s food businesses and advocacy for consistent state and federal policies. The Directive was a result of a process of urban-rural roundtables with over 50 leaders who met several times to discuss the development of a “foodshed” for the city.

74

A comprehensive list and description is provided in Appendix 2

City of Victoria Food System Discussion Paper

65

Reflections on San Francisco’s Experience The following strengths and weaknesses facing San Francisco’s municipal food policy and programs were identified during an interview with staff:75 Strengths: 

Deep and growing social interest in food and gardening



Established community groups and organizations with a focus on urban food and agriculture issues



Motivated Mayor and Board of Supervisors, City staff and electorate



Comprehensive and extensive nature of City government - including responsibility for Public Health



Innovative and motivated staff in key positions



Direct connection between Mayor’s office and Food Systems Director



Effective non-profit advocacy groups



Strong food culture

Weaknesses: 

Decreasing budgets



Changing political scene – Mayor is expected to run for Governor



Departmental “siloing” makes it difficult for staff and elected officials to understand and effectively deal with systemic initiatives



Staff retention



Requires strong senior staff advocates

6.6

City of Seattle76

Overview

Population:

602,000

Land Area:

369 km2

Density: 2772 people/km2 Seattle has long been regarded as a hotbed of urban food gardening and neighbourhood-driven planning. The city’s P-Patch Community Gardening Program is one of the longest running and widest known community gardening programs in North America. Growing interest in food and food system-related opportunities has prompted the recent passing of the Local Food Action 75

Jones, Paula (Food Systems Director, Food Systems Program, SF Department of Public Health). Personal Communication. Telephone Interview, September 18, 2009.

76

Shulman, Phyllis (Legislative Assistant to Seattle City Council President). Personal Communication. Telephone Interview: September 18, 2009.

66

City of Victoria Food System Discussion Paper

Initiative Resolution, which commits the City to taking a more systemic, coordinated and comprehensive approach to the way that it approaches the urban food system.

Program Structure & Implementation Since the 1970s, Seattle has funded staff positions to coordinate the community garden program. These positions, assisted by a volunteer program, are now housed within the Department of Neighbourhoods. The City of Seattle’s approach to food system issues was neither centralized nor formally recognized until recently. Food system issues are addressed by a variety of City departments in an ad hoc manner. Council’s Local Food Action Initiative (2008) proposes a coordinated approach, and identifies the need for a formal staff coordinator role that can help link the various departments and activities needed to deliver food-related initiatives. While $100,000 was received through a federal grant to assist with the creation of the Local Food Action Initiative, no additional resources from the municipal budget are anticipated for new staffing or any other new food-related initiatives. The Seattle-King County Acting Food Policy Council (2006) is a community coalition made up of 11 citizens from key food sectors, including the City, and has supported the City of Portland’s research and development of the Local Food Action Initiative. It is anticipated that a permanent, officially sanctioned, Food Policy Council may be established at the regional level.

Key Initiatives77 Seattle is best known for its P-Patch community gardening program, administered by staff in the Department of Neighbourhoods in partnership with the non-profit P-Patch Trust. Over 1,900 garden plots serve more than 3,800 gardeners on 23 acres of land. The gardens are an integral part of neighbourhood development, particularly in low-income, immigrant and youth populations; Seattle’s Comprehensive Plan (1995) states the goal of 1 garden for every 2000 households in every “urban village”. A Parks and Green Spaces Levy (2008) will provide $2 million in new funding for the P-Patch program, and the identification of new locations and infrastructure is anticipated as a result of the Local Food Action Initiative (2008). Community gardens are recognized through Resolution as a recreational use in parks and open space through the City, and encouraged in co-location with other amenities. Unique to Seattle, three community garden sites are used as commercial market gardens, and gardeners can earn extra money by selling produce to the 100 customers of a Community Supported Agriculture program (produce box program). Boulevard gardens are permitted, as are small animals, farm animals, domestic fowl and bees, subject to restrictions. The City is currently exploring the potential to preserve agricultural land outside municipal boundaries through a Transfer of Development Rights agreement with King Country, where the development rights for rural farmland would be transferred from King County to a number of designated high-density sites within the City of Seattle. To address growing hunger and food insecurity, the City’s Human Services Department is a primary funder of food banks, hot meal programs and other food distribution programs. The

77

A comprehensive list and description is provided in Appendix 2.

City of Victoria Food System Discussion Paper

67

Local Food Action Initiative commits the City to exploring options for the region to be selfsufficient in local food for 2-3 months in the event of an emergency. Food and yard waste is collected for all single-family households, including apartment buildings. The City offers organic waste collection to private businesses at a reduced cost. In partnership with other organizations, the City funds composting workshops, as well as education and gardening programs at an urban farm. Most of the initiatives mentioned predate the Local Food Action Initiative (2008), which aims to further coordinate the City’s approach to food. Anticipated actions include additional community gardens, securing the tenure of farmers markets by finding permanent locations, and the development of a City Food Policy Action Plan (underway).

Reflections on Seattle’s Experience The following strengths and weaknesses in relation to the City’s involvement in food system issues were noted during an interview with City of Seattle staff: 78 Strengths: 

Deep and growing interest in food and gardening within community



Increasing availability, diversity and quality of local food



Growing number of farmers markets



Creativity of residents, city staff, non-profit groups, farmers and businesses



Motivated electorate and Council



Very active, involved community- lots of non-profit groups and active neighbourhood groups



Federal interest and support for local food initiatives is increasing



Increasing connection between City departments is occurring



Decreasing regulatory barriers (e.g. removal of restrictions on boulevard gardens)



Emergency preparedness work brought attention to Seattle’s food system

Weaknesses:

78

68



Decreasing budgets



Lack of supporting data



Conflicting policies still exist (e.g. local procurement policies that increase food costs for emergency food programs)

Shulman, Phyllis (Legislative Assistant to Seattle City Council President). Personal Communication. Telephone Interview: September 18, 2009.

City of Victoria Food System Discussion Paper



Lack of a systemic approach to food system issues



Lack of political support



Food is a complex, long-term issue



Jurisdictional issues – inability to address issues occurring outside the City’s purview

6.7

Vancouver79

Overview

Population:

578,041

Land Area:

114.67 km2

Vancouver is internationally recognized for its Density: 5,041 people/km2 sustainability, urban planning and food system initiatives. The City has a strong and increasingly sophisticated food culture, an extensive network of community gardens, and cultural groups and neighbourhoods actively pursuing and pushing the bounds of urban agriculture. Vancouver has a number of very active and established food and agriculture organizations that collectively lobbied the City to become more involved in urban food policy issues.

Program Structure & Implementation The City’s Food Policy Coordinator, housed in the Social Development Department, coordinates the Food Policy Council and is the official designated to handle food policy and urban agricultural issues. Depending on the issue, it may also be addressed by staff in other city departments. For the first two years of the City’s Food Policy program (2004 – 2005), there was an additional staff position (Food System Planner). Part-time staff and student interns have also assisted on individual projects. Recent management and staffing changes have reduced the Food Policy staff’s capacity. The City’s food policy initiatives are supported by the 16-member Food Policy Council. The Council is a working committee made up of representatives from all stages of the urban food system. The Council’s primary goal is to provide ideas and policy recommendation on how the city’s food system can be improved. The Council is a working committee, and the Council identifies and carries out its own work plan and initiatives. As a result of this role, the program has struggled at times to define and differentiate the roles of the Food Policy Council and staff.

Key Initiatives80 As with other case study communities, many food-related initiatives predate the City’s official Food Action Plan (2003). Vancouver has 52 community gardens on Parks Board, School District, City and transit authority-owned land that provide 1,600 community (allotment) garden plots. 900 additional community-shared (commons) gardens are integrated into new developments around the City. Only 18 community gardens existed prior to 2006, when the City launched a concerted expansion effort. The 2010 Gardens for 2010 program encourages groups and developers to establish 2010 new garden plots as an Olympic legacy; as of October

79

Kahn, Devorah (Food Policy Coordinator, Social Development Department, City of Vancouver). Personal Communication. Telephone interview: September 20, 2009.

80

A comprehensive list and description is provided in Appendix XX.

City of Victoria Food System Discussion Paper

69

2009, Vancouver was just 210 plots shy of the goal. One new community garden is located on the front lawn of City Hall. No additional staff or community funding is provided for community gardens on City or Parks Board land, although the respective agencies do provide assistance with site identification, design, water provision and free compost. Some newly established community gardens have beehives, as well as orchard plots, where gardeners tend fruit trees. Several parks, particularly in East Vancouver, have community orchards. To assist with garden implementation, the City has developed voluntary guidelines for community garden and edible landscaping design in the public realm. Hobby beekeeping is also encouraged through voluntary guidelines, as are backyard hens. The recycling of organic waste is supported in various ways, including annual operating funds for a compost education centre, the sale of low-cost compost and worm bins, and the curbside collection of yard trimmings. Vancouver has integrated the food system with new developments in several innovative ways. The Official Development Plans for two new neighbourhoods (Southeast False Creek and East Fraser Lands) contain provisions encouraging urban agriculture. The False Creek North Development Plan identified the inclusion of a full-service grocery store as a designated retail use. The City has successfully negotiated with grocery retailers to locate in other new, underserved areas. The Food Policy Council has led the development of the Vancouver Food Charter that sets out the City’s commitment to the development of a coordinated municipal food policy, community engagement and specific initiatives. The Council has also supported research initiatives such as a food system assessment, a report on (perishable) food recovery and collaboration with several university research projects.

Reflections on Vancouver’s Experience The following strengths and weaknesses facing Vancouver’s municipal food policy programs were identified during an interview with staff:81 Strengths:

81

70



Strong community appreciation and support for food



Three successive City Councils that support food system planning and policy work



Policy-savvy local food organizations



City-wide sustainability initiatives



Growing interest and support for urban agriculture



Current mayor with an interest in and experience with food system

Kahn, Devorah (Food Policy Coordinator, Social Development Department, City of Vancouver). Personal Communication. Telephone interview: September 20, 2009.

City of Victoria Food System Discussion Paper

Weaknesses: 

Overly bureaucratic program



Food issues are not considered important by all departments



Difficult for City organization effectively handle multi-jurisdictional issues like food



Lack of funding



Location of Food Policy Coordinator position in less prominent department



Changes in management and staffing

City of Victoria Food System Discussion Paper

71

72

City of Victoria Food System Discussion Paper

7 COMPARABLE ANALYSIS The following section presents a comparable analysis of the four case study communities. Table 1 compares the characteristics of case study communities to those of Victoria. Table 2 summarizes the context and events that led each of the four municipal governments to focus on the urban food system. Table 3 lists the principles that guide municipal involvement, and Table 4 provides an overview of the structure and implementation of food-related initiatives. Table 5 briefly describes the initiatives that are supported and/or provided by municipal governments in each of the case study cities. Some initiatives have yet to be implemented, and these are noted accordingly. Table 7.1. Characteristics of Municipalities Population

City Area (land only)

Density (people/km2)

Portland, Oregon

575,930

360 km2

1,603

San Francisco, California

808,976

121 km2

6,686

Seattle, Washington

602,000

265 km2

2,272

Vancouver, British Columbia

578,041

115 km2

5,041

Victoria

78,057

20 km2

3,903

City

Governing Legislation Governance Structure Portland Charter City Commission government San Francisco Charter Consolidated City-County government Seattle City Charter Mayor-Council government Vancouver Charter Mayor-Council government Local Government Act Mayor-Council government

Table 7.2. Context for Municipal Involvement in Urban Food System Portland Municipal mandate for involvement in food issues

Scope Key factors that led to municipal mandate for involvement in food system

San Francisco

Seattle

2002

2005

Resolution to Establish the PortlandMultnomah Food Policy Council

Food Policy Task Force established

1970s P-Patch Community Garden program established

City and County 

High rate of hunger and barriers to food access



Urban land use policies that negatively affect urban food production



Lack of public awareness of food issues



Lack of viability of

2009 Mayor’s Executive Directive on Healthy and Sustainable Food City and County 

Progressive and motivated Mayor



Informed by City’s Peak Oil Taskforce



Supportive senior staff members





City of Victoria Food System Discussion Paper

Support from interested citizens and non-profit sector Good timing –

2008 City Council Local Food Action Initiative City and County

Vancouver 2003 Vancouver Food Action Plan & Food Policy Council established

City

Food insecurity, hunger and chronic disease, particularly in low-income populations



Municipal mandate for sustainability





Municipal mandate for sustainability

Socially and environmentall y-minded City Council and Parks Board





Concern about climate change and peak oil

Support from well-organized, experienced, policy-savvy non-profit sector





Zero waste

Zoning challenges for



73

Portland

San Francisco

farming 



Current food system issues



Low-income communities’ access to food Economic development



Municipal attention to climate change and peak oil



Growth management



Childhood nutrition







Support from wellorganized, experienced, policy-savvy non-profit sector





74

Progressive Mayor and Council

food is a “hot” issue

Regulations that impede urban agriculture activities Growing interest in local food Waste reduction

Hunger, food insecurity and poor nutrition



Hunger, food insecurity and poor nutrition



Local impacts of climate change and peak oil

Seattle 



Neighbourhood economic development Progressive Mayor and Council



Support from wellorganized, experienced, policy-savvy non-profit sector



Neighbourhood food access



Availability of locally grown foods



Urban food production



Economic development





Loss of a key urban agriculture organization (S.L.U.G.)

Sustainability concerns



Community gardens role in neighbourhood development



Regulations that impede urban agriculture activities



Regulations that impede urban agriculture activities



Food security

Effects of economic downturn



Waste reduction

Economic development



Waste reduction



Celebration of local food

 

Vancouver

policy

farmers markets 

Growing regional interest in food issues



Strong nonprofit community that links emergency food, nutrition, organic gardening, rural agriculture and food policy



Strong interest in local and organic food



Demand for community garden plots



Local impacts of climate change and peak oil



Densification and lack of land to grow food



Urban livestock



Regulations that impede urban agriculture activities



Waste reduction, including perishable food recovery

City of Victoria Food System Discussion Paper

Table 7.3. Principles/ Objectives Guiding Municipalities’ Involvement in Urban Food System City Portland Multnomah Food Policy Council Governing Principles 82

Guiding Principles The City of Portland and Multnomah County will promote, support and strengthen a healthy regional food system, based upon the following principles: 1.

Every City and County resident has the right to an adequate supply of nutritious, affordable and culturally appropriate food (food security).

2.

Food security contributes to the health and well being of residents while reducing the need for medical care and social services.

3.

Food and agriculture are central to the economy of the City and County, and a strong commitment should be made to the protection, growth and development of these sectors.

4.

A strong regional system of food production, distribution, access and reuse that protects our natural resources contributes significantly to the environmental wellbeing of this region

5.

A healthy regional food system further supports the sustainability goals of the City and County, creating economic, social and environmental benefits for this and future generations.

6.

Food brings people together in celebrations of community and diversity and is an important part of the City and County’s culture.

San Francisco Healthy and Sustainable Food Directive83

“… In our vision, sustainable food systems ensure nutritious food for all people, shorten the distance between food consumers and producers, protect workers health and welfare, minimize environment impacts, and strengthen connections between urban and rural communities…”

Seattle City Council Local Food Action Initiative84

The overall intent of this local food action initiative is to improve our local food system and in doing so, advance the City's interrelated goals of race and social justice, environmental sustainability, economic development, public health and emergency preparedness.

Vancouver Motion to Develop a Just and Sustainable Food System85

Vancouver City Council supports the development of a just and sustainable food system for the city of Vancouver that fosters: 

Sustainable and equitable food production, distribution and consumption



Nutrition



Community development



Environmental health

82

sustainableportland.org/bps/index.cfm?c=42290&a=116812

83

www.sfgov.org/site/uploadedfiles/sffood/policy_reports/MayorNewsomExecutiveDirectiveon HealthySustainableFood.pdf

84

clerk.ci.seattle.wa.us/~scripts/nphbrs.exe?s1=&s2=&s3=31019&s4=&Sect4=AND&l=20&Sect2=THESON&Sect3=PLURON&Sect5=RESN1&Sect6=HITOFF&d=RES3&p=1 &u=/~public/resn1.htm&r=1&f=G

85

vancouver.ca/ctyclerk/cclerk/20031209/rr1.htm

City of Victoria Food System Discussion Paper

75

Table 7.4. Program Structure & Implementation Portland Program Structure

Coordination provided by Food Policy Program Coordinator in Office of Planning and Sustainability Food Policy Council

San Francisco Distributed with central coordinating Food Systems Director position in Department of Public Health Food Policy Council

Seattle

Vancouver

Distributed responsibility for food system issues. No coordinating position. Some coordination being provided through Council President’s office

Distributed with coordination provided by Food Policy Coordinator position in Social Planning Department Food Policy Council

Staffing resources

1 full-time Food Policy Program Coordinator

1 full-time Food Systems Director

Currently no position devoted to food system or policy work

1 full-time Food Policy Coordinator

Funding source

Annual grant Funding year-toyear

City (Department of Public Health)

$100,000 federal grant to conduct a detailed food system assessment

City (Social Development Department)

Budget

$100,000 for position

Budget for one position – created with existing funds

No allocated budget – use existing funds

Budget for one FTE + $15,000/year for Food Policy Council

Table 7.5. Municipal Food Policy Councils86 Portland Municipal Food Policy Council?

Yes (2002)

San Francisco Yes (2009) - limited one-year term Will revert to existing Food Policy Task Force (2005)

Membership of Food Policy Council

15 members representing all stages of the food system City staff coordinates

Food Policy Council currently being established to implement Mayor’s Directive on Healthy and Sustainable Food Staff from 8 City departments, Mayor’s office and community stakeholders

86

76

Seattle No

Vancouver Yes (2004)

(City belongs to “Acting” Food Policy Council, affiliated with King County) 10 members from all food system sectors City Department of Neighbourhoods is a member

22 members representing six sectors of food system City staff coordinates

Coordination provided by King County

Municipal Food Policy Councils are de facto citizen advisory committees made up of food system professionals and citizens that report to local government. While the mandate of individual Food Policy Councils varies, they generally are tasked with providing expertise and advice on the development of food-related initiatives. The amount of actual “policy” work that Councils undertake or support is variable.

City of Victoria Food System Discussion Paper

Table 7.6. Key Food-Related Initiatives Provided and/or Supported by Municipal Government Activity

Portland

San Francisco

Seattle

Vancouver

Food Production Agricultural Land Conservation & Production

Exploring Transfer of Development Rights agreement with County

Exploring Transfer of Development Rights agreement with King County

Backyard Poultry & Livestock

Pygmy goats, rabbits and chickens allowed, with restrictions

Bees, hares, rabbits, guinea pigs, chickens, turkeys, geese, ducks allowed, with restrictions

Small animals, farm animals, domestic fowl allowed, with restrictions

Chickens allowed, with restrictions

Beekeeping

Allowed with restrictions

Allowed with restrictions

Allowed with restrictions

Allowed, with Hobby Beekeeping Guidelines Hives in some community gardens

Community Commons/ Shared Gardens

Edible landscaping in various-sized parks

900 new community shared gardens established in developments as part of 2010 by 2010 initiative Community orchards in parks

Community Allotment Gardens

32 gardens on Parks, public and private lands

40 gardens on City property; more on other lands

72 gardens on parks, public, institutional and private land

52 gardens on Parks, City, School and transit lands

Administered by Community Gardens Office, Portland Parks & Recreation Department

Managed by San Francisco Community Gardens Program, Recreation & Parks Department

P-Patch Community Garden Program (est. in 1970s) run by Department of Neighbourhoods in partnership with non-profit PPatch Trust

Heavily supported – Real Estate, Engineering and Parks and Recreation Departments provide land and water

Workshops and education for gardeners

87

Extensive Community Garden Policies87

Funded staff positions and organized volunteer program

2010 by 2010 Initiative encourages 2010 new garden plots by the Olympics Community

www.sfgov.org/site/recpark_page.asp?id=46469

City of Victoria Food System Discussion Paper

77

Activity

Portland

San Francisco

Seattle Workshops and education for gardeners Supported in Comprehensive Plan (1995) and neighbourhood plans 2008 Parks and Green Spaces Levy will provide $2 mil new funding

Demonstration Sites

Better Together City Hall Garden (2009) City-owned Zenger Farm

Garden for the Environment

City-owned Marra Farm

Temporary City Hall Victory Garden (2008)

Community garden demonstration sites

Community Orchards Edible Landscaping

Fruit and Nut Trees

Being considered for updates to General Plan

Encouraged through P-Patch Program

Encouraged through community gardens Orchard and Small Fruit Program

Vancouver garden resources on City website Community garden walking tours on City website Temporary gardens encouraged on private vacant land while awaiting development Funding for City Farmer compost education and organic garden site City Hall Community Garden Encouraged through Urban Ag. Guidelines for the Public Realm and Edible Landscaping brochure and bulletin Encouraged through Urban Agriculture Guidelines Public orchard in new Southeast False Creek development Community orchards in several parks “Orchard plots” in community gardens

Home Gardens – (Back)Yard & Balcony

Home Gardens – Boulevard

78

Victory Gardens 2008+ program promotes new home gardens

Organic gardening information on City’s website Restrictions on “Parking Strip” gardens removed (2009)

Allowed City’s Green Streets program discourages street vegetable gardens

City of Victoria Food System Discussion Paper

Activity

Portland

Home Gardens - Rooftop

San Francisco

Seattle

Being considered for updates to General Plan

Vancouver Encouraged in new developments Several examples of rooftop plots for growing food

Urban Farms (commercial activities)

Other

Urban Growth Bounty 2009 urban agriculture workshop series

City –owned Alemany Farm collaboratively managed as a working farm and education site

Commercial market gardening in some community gardens

Mayor’s Directive on Healthy and Sustainable Food (2009) calls for:

Pesticide Reduction Program

Cosmetic Pesticide Ban (Health Bylaw)

City funds food banks, hot meals and other food programs

Website promotes GrowA-Row program

City-owned Marra Farm collaboratively managed as working farm and education site

City to coordinate urban agriculture

Food Processing Food Processors, Wholesalers/Distributors

Directive (2009) calls for: Develop a Food Business Action Plan to recruit and incubate new food businesses

Distribution Charitable Food Programs

Produce for People links community garden produce with food pantries

Emergency Preparedness

City of Victoria Food System Discussion Paper

$300,000 grant from Federal government for urban agriculture and nutritious low-income food programs (2009)

City operates two cafeterias in low-income community centres

City will explore options for the region to be selfsufficient in food from regional farms for 2-3 months in state of emergency (2008)

79

Activity

Portland

Food Retail Stores

San Francisco

Seattle

Directive (2009) calls for:

Several new large-scale development plans call for full-size grocery stores

Development of Sustainable Food Business Recognition Program

Food Procurement

Vancouver

City has successfully courted grocery retailers for new, underserved neighbourhoods even with spaces outside standard retail format

Directive (2009) calls for:

Ethical Purchasing Policy

Development of local and sustainable purchasing policy Organic and Safe/Fair Goods Purchasing Resolutions Markets

Supported in principle but not managed by City

Farmers Market Ordinance (2007) requires markets to accept food stamps, all parks to be considered as market locations, and neighbourhood assessment for new locations

Local Food Action Initiative (2008) commits to finding permanent market locations

Managed by nonprofit organization

Restrictive; Mayor is spearheading more streamlined permit process for vendors

Health regulations are restrictive; limited to certain types of prepared food (hot dogs, coffee, nuts); total number of carts less than 60

Staff support to find locations, although City’s zoning and Health regulations are restrictive

City to work with public market to expand location Street food vending

Broadly encouraged

Directive (2009) calls for:

Streamlined permit process for vendors

Food vendors will be required to sell healthy and sustainably produced food as part of licensing

Carts need permission of adjacent property owners to prevent “turf wars” Health regulations relaxed Limited restrictions on

80

City of Victoria Food System Discussion Paper

Activity

Portland

San Francisco

Seattle

Vancouver

size and placement, which encourages businesses to start small Other

Directive (2009) calls for: City to develop a Food Business Action Plan to recruit and incubate new food businesses

Consumption Healthy Eating Promotion

Directive (2009) calls for: Food purchases, catering and vending machines will meet nutritional guidelines

Recycling of Waste Backyard Composting

Information on website

Information on website

Food Diversion (Perishable Food Donations)

Household Organic Waste Collection

Limited to collection of yard debris

Commercial Organic Waste Collection

Provided

Other

City of Victoria Food System Discussion Paper

Provided

Information on website

Low-cost provision of backyard composters and worm bins

Supported in principle (2008 Local Food Action Initiative)

Food Diversion Report commission by Food Policy Council

Provided

Limited to collection of yard debris

Provided Universal Recycling and Composting Ordinance

Funding for Master Composter/Soil Builder Volunteer Program

Funding for City Farmer’s Compost Hotline and Demonstration Garden

81

Activity

Portland

San Francisco

Portland Multnomah Food Policy Council (2002)

Food Policy Task Force (2005)

Seattle

Vancouver

System-Wide Food Policy Development

Diggable City Report – Making Urban Agriculture a Planning Priority (2005)

San Francisco Food Policy Council (2009) Mayor’s Executive Directive: Healthy Sustainable Food for San Francisco (2009)

Seattle King County Acting Food Policy Council (est. 2006)

Vancouver Food Action Plan (2003)

Food Policy Strategic Framework

Urban Agriculture Lands Inventory (2006)

Local Food Action Initiative (2009)

Vancouver Food Assessment Report (2006)

San Francisco Urban-Rural Round Table (2008)

Food Policy Council (2004)

Vancouver Food Charter (2006)

Peak Oil Preparedness Task Force Report (2007) San Francisco Collaborative Food System Assessment (2005) Directive (2009) calls for food policy integrated into General Plan Education

City funds urban agriculture workshop series

City maintains San Francisco Food Website

City sponsors Green Gardening Program Green Seattle Guide for residents

82

Extensive events, links and resources on Food Policy website

City of Victoria Food System Discussion Paper

8 LESSONS LEARNED & NEXT STEPS Urban food systems have multiple social, ecological and economic benefits. This includes increased food security for residents, opportunities for neighbourhood development and social cohesion, creation of ecological habitat, improved nutrition and health, small business opportunities, emergency preparedness, and opportunities for individual skill building and self-reliance. Victoria is already involved in the development of an urban food system, both outside and inside City Hall. Within the community, organizations, agencies and businesses deliver many initiatives that enhance urban-based food production, processing, distribution, consumption and the recycling of organic wastes. Even without a clear mandate for food policy, the City of Victoria is already involved in food-related activities across the stages of the food system. These are wide-ranging – albeit relatively disconnected from each other – and involve almost every City department. In spite of the presence of many of the hard and soft infrastructural elements necessary for a strong urban food system, there are still a number of challenges that keep Victoria from developing a food system that meets the social, ecological and economic health and wellbeing of the community. These challenges are both narrow and broad in scope, and many fall within the City of Victoria’s capacity to act. The four case study cities profiled in Chapter 5 also faced many of the challenges highlighted in this discussion paper. All four case study cities responded to these challenges in two key ways: 1. By adopting an official mandate for municipal food policy and the development of an urban food system, strengthened by the support of City Council, key staff, community stakeholders and a dedicated City staff position; and 2. By establishing a coordinated, comprehensive set of municipal government policies, regulations, programs and services that aim to enhance the urban food system and its various stages. Building on these two key elements, the purpose of this chapter is to present the lessons learned in the creation of this report, and to provide direction for moving forward. The chapter presents three tables to convey these findings. The first presents municipal tools that can be used to support urban food systems, drawn largely from the case study communities. The second present lessons learned and considerations for the development of a municipal food policy and associated program for the City of Victoria. The third identifies specific opportunities or initiatives to be explored to strengthen Victoria’s food system.

8.1

Municipal Tools to Support Urban Food Systems

Municipal governments can support urban food systems in many different ways. The table below presents a summary of various planning tools and how they are, or could be, employed to support urban food systems. These are drawn primarily from case study communities, and supplemented in some cases with the consultant’s knowledge of other cities.

City of Victoria Food System Discussion Paper

83

Table 8.1. Existing Planning Tools and How They Might Be Employed to Advance Urban Food Systems88 Tool/ Implementation Mechanism

Examples of How Tools Can Be Used to Advance Urban Food Systems

Plans Official Community Plans

Used to identify broad objectives and targets for supporting urban food system. Identifies the types of urban food system services amenities that would be encouraged through rezonings (e.g. garden plots, walkable neighbourhood food stores, food processing). Could also be used to identify food-related uses of parkland. Example: Seattle- Comprehensive Plan; Langford, BC – OCP chapter on local food system

Parks Master Plan

Identifies food-related uses, management activities and programming themes in parks (e.g. farmers markets, allotment gardens, commons gardens, community orchards)

Urban Forest Plan

Identifies uses and management activities to promote food-bearing trees (e.g. community orchards, edible boulevard trees, fruit trees on private land)

Neighbourhood Plan

Identifies neighbourhood food system related services and amenities that would be encouraged through rezonings and development permit processes. Example: Seattle - Neighbourhood Plans

Transportation Plans/ Pedestrian Plan

Links objectives for proximate food access to transportation patterns and planning.

Social Plan

Specifies objectives and actions necessary to support social development, including strategies for food access, skills development, health promotion and nutrition. Example: Vancouver – Social Development Plan; Kamloops, BC – Kamloops Social Plan

Policies & Regulation Food Policy/Strategy

Outlines municipal objectives, actions and targets for urban food production, processing, distribution, consumption and waste recycling. Example: Case study cities

Zoning Bylaws

Controls lot size and shape, lot coverage, siting, parking requirements, which are factors in retaining yard space for household food production. Includes regulation for home occupations, which can include urban agriculture and other home-based food businesses (food processing, organic food delivery). Also regulates backyard poultry and livestock. Zoning can also be used to allow commercial uses of greenhouses and nurseries, with controls on size. Zoning can permit specific uses, such as community gardens in parks.

88

84

Based on Oswald, J. 2009 Planning for Urban Agriculture. In Plan Canada, 49(2): 35-38 and Union of British Columbia Municipalities. 2009. Climate Action Toolkit: Promoting Smart Land Use. Accessed from www.toolkit.bc.ca/action/promoting-smart-land-use#plan, October 19, 2009.

City of Victoria Food System Discussion Paper

Tool/ Implementation Mechanism

Examples of How Tools Can Be Used to Advance Urban Food Systems Example: Seattle (gardens in parks); Victoria and Oak Bay (home occupation bylaw)

Density Bonusing

Encourages developers to set up allotment gardens in new developments. Example: Vancouver, BC; Saanich, BC – Community Gardens Policy

Sustainability Checklist

Voluntary tool that can be used to educate and to encourage development that meets a local government’s goals for urban food production, distribution and waste recycling.

Edible Landscaping Guidelines for Public and Private Lands

Outlines design considerations, varieties, site suitability and maintenance considerations for planting of edible species on public streets, gardens and parks. Example: Vancouver – Urban Agriculture Guidelines for the Private Realm

Development Cost Charges (DCCs)

DCC bylaw could be amended to incorporate new or improved foodfocused features in park DCCs, where the features would be need to support the new population growth. For example, shared community gardens (commons), allotment gardens or community orchard in parks.

Development Permit Areas

Encourages food –related initiatives in two ways: 1) Specifies design features that would encourage neighbourhood-oriented food amenities (e.g. buildings need to spill out onto street, ground-oriented seating, large windows, edible landscaping, building design, roll-away windows, courtyard seating).; and 2) Specifies that food features be considered as part of landscaping plan

Amenity Contributions During Rezoning

Amenity contributions from development as a result of the rezoning process. Community food-related amenities could include year-round farmers market facility or community allotment gardens.

Transfer of Development Rights

A commonly used tool in the US, this tool would need to be investigated to determine the applicability BC’s context. A municipal government can protect working agricultural land in a rural municipality by transferring development rights to a designated urban site. Example: Seattle – King County Protecting the Regional Foodshed Ordinance

Projects Edible Streetscape

Fruit trees, berry shrubs, edible flowers and plants can beautify a street, and meet aesthetic, ecological and social and educational objectives. Can be incorporated to existing Greenways projects.

Temporary Community Gardens

Establishes temporary use (provisional) gardens on vacant private land. Examples: Vancouver, BC

Co-location of Neighbourhood Food Services & Amenities

Demonstrates how a neighbourhood centre can successfully provide all basic food services and amenities from across the food system to create a vibrant street life: grocery store, allotment garden, farmers market, edible landscaping, street food, cafes, restaurants, bakeries, charitable food services.

City of Victoria Food System Discussion Paper

85

Tool/ Implementation Mechanism

Examples of How Tools Can Be Used to Advance Urban Food Systems

Economic Trust Fund

Developers contribute to trust funds to pay for food system features. For example, developers of low-density housing could contribute to a Regional Agricultural Land Conservation Trust Fund, or a Food System Trust Fund, used to fund urban food projects. Contributions could be in form of a standard levy, or negotiated during rezoning process. Example: Langford, BC Agricultural Land Reserve Acquisition Fund

Grants

Encourages community groups to provide food system projects and service delivery that support municipal objectives. Existing grant programs can be reoriented to fund operations or specific projects. Example: Victoria Compost Education Centre operating grant

8.2

Lessons Learned and Considerations

Development of Municipal Food Policy A review of the four case study communities suggests that a coordinated and comprehensive municipal government policy for involvement in the urban food system is critical to effectively addressing urban food system issues. This overarching policy is desirable as a framework to anchor and guide the City’s approach, and ensure that the municipal government moves beyond a “piecemeal” approach to food system initiatives. Table 8.2. Lessons Learned and Relevant Considerations for Victoria: Food Policy Lessons Learned

Consideration for Victoria

Municipal Food Policy Development An official municipal government mandate for food policy is effective in focusing efforts, improving coordination among initiatives, and motivating the support of politicians, staff and community. This was demonstrated in all four case studies cities.

Consideration should be given to developing an overarching municipal food policy that will describe principles, objectives and actions to achieve social, economic and ecological benefit for the community. A food policy would be developed in conjunction with other staff and community stakeholders.

All four case studies have demonstrated a significant surge in public and political interest in urban food issues over the past five years. Given issues such as health promotion and interest in food self-reliance, food is anticipated to continue to be a municipal issue well into the future – this is not just a fad.

Consideration should be given to ensuring that the food policy reflects and recognizes the broad public support (both globally and locally) for urban food systems. Additionally, the City should consider establishing an on-going relationship with existing community organizations to ensure that food-related City policies and initiatives meet community needs over the long-term.

Chapter 3 describes the wealth of communitybased initiatives that support Victoria’s urban food system. Even without an official mandate for food system issues, the City of Victoria is already engaged in many municipal initiatives that support the urban food system (Chapter 4).

86

Consideration should be given to broadly celebrating the City’s achievements, and unifying these and new efforts within a coordinated municipal food policy (see above). City of Victoria Food System Discussion Paper

Lessons Learned All four case study cities adopted food policies that went beyond urban food production, and included supports for urban food processing, consumption, distribution and waste recycling.

Consideration for Victoria Consideration should be given to developing a food policy that considers and integrates each stage of the urban food system.

Policy Implementation All case study cities demonstrated that municipal food system initiatives can be implemented through a number of mechanisms: projects, programs, service delivery, operational policies, guidelines, land use policies and regulations.

Consideration should be given to developing food system initiatives that draw on the many key roles of municipal government.

As shown by all case studies, urban food issues are both cross-departmental and crossjurisdictional. Successful food system policies are supported by administrative cultures that think and behave systematically and enable crossdepartmental initiatives, as well as cooperation between levels of government.

Consideration should be given to involving multiple departments in the development and oversight of food-related initiatives. Where initiatives impact the community, consideration should also be given to involving external agencies and community stakeholders from the outset. The City should consider identifying initiatives where it can collaborate and cooperate with other levels of government and agencies.

The four case studies demonstrated that food initiatives are successful when they achieve multiple outcomes (e.g. Portland’s community market gardens addressing employment, neighbourhood beautification, increased street presence, local demand for local food, and ecological habitat).

Emphasis could be placed on developing food system initiatives that have multiple benefits and achieve multiple outcomes.

As demonstrated by all four case studies, food initiatives are most easy to develop and implement when championed by City Council and/or the Mayor. Political support is important to “getting things done”. There is a need to inform senior staff and elected officials about food issues in order to build a broad base of support.

Consideration should be given to involving City Council and key staff in all food-related initiatives, where appropriate.

Program Structure All four case study cities cite the existence of a dedicated staff position as necessary to effectively advance municipal food system objectives.

Consideration should be given to the incorporating food system responsibilities within a designated City staff position.

Cities where the food policy program had a close reporting relationship with Mayor or City Council had more prominence and got more done than where the program was located in a less prominent department.

When considering the creation of an urban food program, thought should be given to where the program is housed and the relevant reporting structure.

City of Victoria Food System Discussion Paper

87

Lessons Learned

Consideration for Victoria

As shown by Seattle, Portland and San Francisco, the support of key staff across the corporation is critical to implementation of new initiatives. A lack of support can be a barrier.

Well-trained and educated staff ensures the food system initiatives are implemented effectively and sensitively. Consideration should be given to the technical skills and knowledge needed by staff at the outset of new food initiatives, particularly as part of an overall strategy.

All four case study communities demonstrate examples where the City has entered into community partnerships to deliver certain foodrelated municipal services, and consequently benefit from the organizations’ expertise and established networks.

The City could consider exploring how community organizations can work to co-deliver or support specific urban food system programs.

Community Engagement Food policy councils are successful at including stakeholders from across the food system to advise on the development of municipal initiatives. Different models of food policy councils exist: regional coalition outside local government (Seattle); standing, official advisory committee (Vancouver, Portland); short-term advisory committees (San Francisco). Food policy councils should be results-oriented in order to demonstrate their value. A clear mandate and terms of reference is critical their effectiveness

Food Policy Councils are unique models of participatory governance and community engagement, and provide valuable advice on policy development and implementation. Consideration should be given to supporting current efforts to establish a regional Food Policy Council, coordinated by the Capital Regional District. In the absence of a regional Council, the City might consider establishing an Urban Food System Advisory Committee.

As shown by all four case studies, the existence of a well-established network of community food groups is important for both putting food on the municipal agenda, and supporting the implementation of initiatives through partnerships

Given the wealth of experience within Victoria’s food networks, consideration should be given to meaningfully engaging existing food organizations in the development of any municipal food policy and/ or initiatives.

As noted in Chapter 5, Victoria has a strong network of food organizations, including a regional organization already promoting the adoption of food policies by local governments

Specific Initiatives Where Table 8.2 presented lessons and considerations affecting an overarching food policy and program, the following lessons and considerations apply to initiatives that support a particular food system activity or practice. Items are grouped according to the stage of the food system in which they occur. Table 8.3. Lessons Learned and Relevant Considerations for Victoria – Specific Initiatives Lessons Learned

Consideration for Victoria

Food Production Agricultural Land Conservation: As described in Chapter 3, Victoria’s food system relies regional lands, services and amenities, beyond municipal borders.

Consideration should be given to exploring opportunities for the City to support the protection of working farmlands that provide local food to the City.

Portland and Seattle have recognized the

88

City of Victoria Food System Discussion Paper

Lessons Learned

Consideration for Victoria

importance of sustaining rural working farms in order to sustain the urban food supply, and have engaged in initiatives to protect these lands. Home Garden Spaces: Victoria is challenged by a lack of available home garden space, due to high number of renters and multi-family dwellings (Chapter 5). As shown by Vancouver and San Francisco, municipal government can support the creation of new home gardens through a low-cost municipal initiative that sets targets for garden creation. Other tools to support new gardens include density bonusing and design guidelines for developers. The City currently funds the Urban Agriculture Hotline and Workshop Series, and the Compost Education Centre, initiatives that teach the skills necessary for new garden development.

Victoria should consider opportunities for promoting new home gardens such as a municipal “new food gardens” initiative, and mechanisms such as density bonusing. The Municipality can work together with community organizations to support skill building and information sharing to support new garden development.

Beekeeping: Bees play a critical role in pollinating urban gardens. All four case study cities support beekeeping. Vancouver demonstrates that developing voluntary guidelines for hobby beekeeping are an effective alternative to amending the zoning bylaw. Victoria’s Animal Control Bylaw is ambiguous with respect to bees and whether they are permitted or not (Chapter 4).

Consideration should be given to clarifying the status of hobby beekeeping in Victoria, and developing voluntary guidelines as needed

Backyard Livestock: In comparison to the case study cities, Victoria has few restrictions on the keeping of chickens. Other cities also allow small goats, ducks and rabbits for food production.

Consideration should be given to expanding the animals permitted for food production purposes, if there is an indication of community support for doing so.

Community Allotment Gardens: All four case studies showed that the number of community allotment gardens can be dramatically increased as a result of a municipal community garden program or initiative. This was clearly shown in Vancouver, where a significant number of new plots have been established since the City began encouraging gardens for new developments, vacant land and public lands (2006). No new gardens had been established in the entire 10 years preceding the initiative.

Consideration should be given to exploring how Victoria can support the creation of more community allotment gardens, including examining the potential for allotment gardens on Parks land. A broad discussion about the community’s needs and support for more gardens is needed as a first step in this process. Careful consideration should also be given to the different tools and mechanisms that other cities (beyond just the case studies) have used to establish and support gardens.

The majority of allotment gardens in case study cities are located on Parks land. A number of different mechanisms exist for municipalities to support community gardens, including staff (Seattle), land (all four cities), a tax levy (Seattle), land use policy (Seattle) and community partnership (San Francisco)

City of Victoria Food System Discussion Paper

89

Lessons Learned

Consideration for Victoria

Edible Landscaping: As shown by Vancouver, design guidelines for edible landscaping can provide motivation and important design considerations for landscape architects and other professionals.

Consider the development of edible landscaping guidelines for the public and private realms, with a focus on permaculture, to provide guidance to City staff, landscape professionals and developers.

Public Fruit & Nut Trees: Victoria has a rich heritage of fruit trees (Chapter 3). Vancouver showcases several approaches to planting and maintaining food-bearing trees on public lands, including community orchards (managed in agreement with community groups), orchard plots at community gardens (one tree looked after by one gardener) and including fruit trees in urban agriculture design guidelines for the private realm.

Consideration should be given to investigating the feasibility of establishing community orchards on City lands, including parks, to meet community demand for public fruit trees and ensure on-going stewardship in partnership with community groups.

Food Processing Food Processing: As described in Chapter 5, the regional food system is challenged by a lack of critical infrastructure such as abattoirs, cold storage and small-scale food processors.

Consideration should be given to identifying options for the City to support regional efforts to attract and/or retain food system infrastructure.

Food Distribution Emergency Preparedness: Seattle’s has identified the need enhance emergency preparedness related to food access and to work towards the goal of establishing regional capacity to feed the population for 2-3 months in the case of an emergency. Victoria’s emergency preparedness program has little involvement with the food supply (Chapter 4).

Consideration should be given to incorporating food access into emergency preparedness plans for the City in order to encourage community resilience. Options should be considered to ensure that all residents have access to enough food during a state of emergency, including an assessment of current food stocks from local retailers, farms and gardens; and building relationships with the commercial food sector. Increasing Victoria’s capacity for urban and regional food production should be considered as a long-term strategy to deal with emergencies and disaster management.

Farmers Markets: All four case studies confirmed the role of farmers markets in supplying local food, animating public space and building rural-urban relationships. Chapter 5 described the beneficial support that Victoria’s markets receive from the community and City, and that the lack of a covered, year-round market facility limits the availability of local food.

Consideration should be given to investigating options for securing a year-round farmers market, such as partnerships with the private sector or establishing a multi-purpose facility on public land.

Food Access Programs: The American case study cities directly supported charitable and/or lowcost food programs through funding, partnerships and ordinances. Chapter 5 identifies key challenges for food access programs, including increased use of food services; a lack of stable funding; a lack of fresh, nutritious food for

Further consideration should be given to explore how the City can support the needs of Victoria’s food access sector and individual initiatives. Particular attention should be given to initiatives that 1) serve fresh, locally-produced food; 2) take a capacity-building rather than a charitable approach; 3) strengthen access to traditional

90

City of Victoria Food System Discussion Paper

Lessons Learned

Consideration for Victoria

clients; and abundant waste of perishable food from local retailers. Chapter 5 identifies a positive resurgence in interest First Nations’ traditional diets.

First Nations foods; and 4) use surplus perishable food recovered or diverted from restaurants, stores or farms.

Walkable Food Services & Amenities: The CRD’s Regional Growth Strategy’s objective to create complete communities encourages a food store and allotment garden within a 10-minute walk (Chapter 4).

Consider the potential for encouraging fullservice grocery store, community allotment garden, farmers market and neighbourhood restaurant as services to be provided within every neighbourhood centre, and within walking distance of all residences.

Food Consumption Food Procurement and Healthy Eating Policies: San Francisco has unveiled ambitious actions for serving local and healthy food, including guidelines for City purchasing, catering policies and requirements that all City-licensed street food vendors serve healthy foods. Victoria has developed Healthy Choices Policy to encourage healthy foods in recreation facilities, events, meetings and vending machines (Chapter 4).

Consideration should be given to expanding the Healthy Choices Policy to all City departments, and to investigating the options for including local and/or sustainably-produced foods in the policy.

Recovery Organic Waste Collection: Gardens need organic waste to produce soil. A significant amount of Victoria’s household and commercial organic waste ends up at the landfill (Chapter 5). City operations produce a surplus of leaves and other organic materials, which the City pays to have removed (Chapter 4). The case study cities demonstrate several municipal models for encouraging organic waste recycling, including curbside household pick-up and the promotion of organics collection to the private sector.

Consideration should be given to exploring options for capturing more of Victoria’s organic wastes, by examining options such as redistributing organic materials from City operations to City residents/organizations, and supporting regional programs for household and commercial organic waste collection. Currently, the CRD is piloting a curbside organics collection program and is examining a region-wide collection program.

Food System Wide Basic Food System Data: As shown by Portland and Vancouver (and underway in San Francisco), an inventory of City lands suitable for urban agriculture provides important information for expanding the number of gardens and in responding to community frustration about lack of knowledge about potential spaces. All four cities have also partnered with other organizations to conduct a food system assessment to obtain up-to-date baseline information on statistics, trends and issues.

Consideration should be given to compiling supporting data and analysis needed for urban food system planning, including creating an inventory of lands suitable for urban agriculture; updating a regional food system assessment (2004); and determining other baseline data needs. Some of this work has been initiated within community organizations. The City could consider partnerships in order to draw from and build on existing efforts.

Food Organizations: Chapter 3 describes the many urban food system functions carried out by community organizations. Chapter 5 describes the funding challenges that face many groups. City of Victoria grants have supported some food-related projects (Chapter 4).

Consideration should be given to examining the potential for re-directing a portion of the City’s grant funds to support food-related projects and operations. As previously mentioned, the City could explore strategic partnerships to fund existing organizations for the delivery of specific

City of Victoria Food System Discussion Paper

91

Lessons Learned

Consideration for Victoria skill building, education or other initiatives on behalf of the City.

Public Realm: Chapter 5 described diverging viewpoints on whether activities such as street food vendors, sidewalk cafes, concession stands (and other food outlets) in parks and public streets, boulevard gardens, allotment gardens in parks, and edible landscaping in parks are appropriate uses of the public realm. Opponents may perceive some of these activities as privatizing or commercialising public space, while proponents perceive them as animating and diversifying the use of public space.

Regional Food Planning & Policy: Chapter 3 establishes that Victoria’s food system will always be tightly connected to the region’s. Seattle and Portland have engaged in regional food policy initiatives, including the development of a regional food policy council (Seattle). Victoria benefits from an established regional food policy organization (CR-FAIR) that is already promoting food policies and Food Charter in CRD municipalities.

8.3

Consideration should be given to facilitating a broad community dialogue on the suitability of certain food system activities for the public realm, including those of a commercial nature. Specifically, is there a public appetite for more allotment gardens, edible landscaping and fruit trees in parks and public lands? For more sidewalk cafes or street food vendors on public streets, parks and sidewalks? Consideration should be given to determining opportunities for the City to engage in food policy and planning at the regional level, and to establish formal inter-govermental collaboration in this area. Consideration should be given to supporting existing CR-FAIR efforts.

Priority Municipal Opportunities to Explore

Earlier chapters in this paper presented a snapshot of current food system initiatives in Victoria, identified assets and challenges confronting the Victoria’s food system, and profiled the response of four communities to their own urban food system issues. This information has been analysed and synthesised in the following table, which identifies priority initiatives that the City of Victoria might explore in order to further strengthen its urban food system. In the opinion of the consulting team, each potential initiative 1) addresses a key challenge facing Victoria’s food system; 2) falls within the City’s capacity to act; 3) is largely based on precedent from another community; and 4) is deemed relatively easy to implement. A brief description of corresponding tools, mechanisms or other activities that might be used to put this initiative into effect is also provided with each point. A more detailed description of options and specific implementation mechanisms/ tools is provided in Appendix 6. Many of these potential initiatives could be considered through the City’s Official Community Plan process and related policies. While it is possible to develop the initiatives independently of a broader strategy, it is valuable, and desirable to link the initiatives to a broader policy or mandate to support urban food systems (see Table 2). This list below is not exhaustive. What is presented here, as a starting point, is a list of opportunities that would create a strong foundation for future efforts.

92

City of Victoria Food System Discussion Paper

Table 8.4. Summary of Priority Municipal Opportunities to Explore Opportunities to Explore Food Policy Development 

Examine opportunities for developing a comprehensive food policy and associated action plan to support the development of Victoria’s urban food system and identify corresponding principles, objectives, actions and targets.



Explore opportunities for designating food policy responsibilities within the role of a City staff person.



Consider developing food policy, an action plan and other initiatives in meaningful collaboration with food system stakeholders.



Consider how the City can partner with existing community organizations and stakeholders to implement initiatives, including co-delivery of services

Food Production 

Examine options for increasing number of community allotment gardens and plots, including a review of different models (e.g. temporary gardens on vacant private lots, commons gardens, street garden), tools (density bonusing, grants, zoning, community gardens initiative, temporary use permits), and the need for a formal City community garden program. Explore the community and City’s support for, and concerns with, establishing allotment gardens in Parks.



Investigate feasibility of establishing community orchards on City lands, including parks, to meet community demand for public fruit trees and ensure on-going maintenance



Explore the development of edible landscaping guidelines for the public realm, to provide guidance to City staff and developers



Clarify the bylaw status of hobby beekeeping, and develop guidelines as needed



Investigate opportunities for Victoria to contribute to the preservation of agricultural land outside municipal boundaries (e.g. trust fund or transfer of development rights)

Food Processing 

Investigate opportunities for City to support the efforts of other municipalities to retain and attract critical food system infrastructure (e.g. abattoirs)

Food Distribution 

Further explore the needs of Victoria’s food access sector (e.g. charitable and low-cost) to identify specific opportunities for City support. Particular attention should be given to initiatives that 1) serve fresh, locally-produced food; 2) take a capacity-building rather than a charitable approach; 3) strengthen access to traditional First Nations foods; and 4) use surplus perishable food recovered or diverted from restaurants, stores or farms.



Consider options for securing enough food to meet the needs of residents in an emergency, including an assessment of the existing inventory of farms, gardens and retailers, and building relationships with the region’s food sector.



Explore potential for including full-service grocery store, community allotment gardens and farmers market within walking distance as basic services in community and neighbourhood plans.

City of Victoria Food System Discussion Paper

93

Opportunities to Explore Investigate options for securing a year-round farmers market, such as partnerships with the private sector or establishing a multi-purpose facility on public land.89



Food Consumption Explore opportunities for serving more local and healthy food at City events and meetings, including possible sources and cost implications.



Recovery Explore the options for capturing more of Victoria’s organic wastes by examining options such as redistributing surplus organic materials from City operations, and supporting regional programs for household and commercial organic waste collection.



Food System-Wide 

Explore potential for re-directing a portion of City grant funds to support urban food systemrelated projects



Facilitate a broad discussion regarding the suitability of food system activities, including allotment gardens, street food vendors, fruit trees and edible landscaping, for public parks, streets or sidewalks.



Explore City’s information needs to support urban food system initiatives, including an updated food system assessment and inventory of potential food-producing lands.



Determine opportunities for City to engage in food policy and planning at the regional level, and to establish formal inter-governmental collaboration in this area. Potential initiatives that are already underway include development of the Regional Food Charter and a Regional Food Policy Council.

8.4

Conclusion

This paper has provided an overview and synthesis of the issues, opportunities and challenges associated with Victoria’s urban food system. This has been achieved by: 

Identifying current urban food system initiatives led by the community and municipal government;



Identifying issues that impact the development of the urban food system; and



Examining how other municipalities approach policy and planning for their urban food system

The findings from this research have been compiled into a list of lessons learned and considerations intended to provide guidance and direction to the City’s development of food system policies and initiatives, including the City’s Official Community Plan process. In summary, a successful approach to developing an urban food system that enhances the social, ecological, economic and nutritional health of a particular place could include 1) an

89

94

A consultant is currently studying the feasibility of a year-round downtown farmers market. Based on the results, alternate options may need to be explored, including locating the market outside of downtown, using an existing facility (e.g. parking lot), creating a new outdoor shared-use facility (e.g. arts and market venue)

City of Victoria Food System Discussion Paper

official municipal policy to support the development of an urban food system; and 2) a coordinated, comprehensive set of municipal government policies, regulations, programs, services and projects that aim to enhance the urban food system at its various interconnected stages. Ultimately, all policy development should be guided by the objective to develop an urban food system that enhances the social, ecological, economic and nutritional health of Victoria and its community.

City of Victoria Food System Discussion Paper

95

96

City of Victoria Food System Discussion Paper

APPENDIX 1 - KEY ISSUES FACING VICTORIA’S URBAN FOOD SYSTEM The following table presents an unedited compilation of issues facing Victoria’s urban food system. The issues were identified as a result of a literature review, interviews with City of Victoria staff, and a focus group with urban food system specialists. The list of references follows the table. Table A1. Compilation of Issues Facing Victoria’s Food System Key Issue

Source (reference listed at end of table) 1

2

3

4

5

6

7

8

9

10

11

12

13





















Food Production Loss of peripheral agricultural land



Fallow/underused land High land prices









Insufficient skilled labour for local farms



















Aging/lack of farmers Low economic return of farming (cheap food consumer mentality/high labour/input costs) Insufficient supply of local products to meet demand







Farm gate sales prohibited in City





Commercial sales restricted to farmers markets





Increasing/changing health and safety regulations related to food production and handling for commercial purposes Commercial use of greenhouses prohibited







Lack of gardening skills



Weak links between urban gardens and farmers markets



Insufficient knowledge about economic potential of backyard/small lot gardens



Hard to find land for community gardens



No long term protection for community garden land



No common knowledge/inventory of land available for community gardens





• • •

• •

City of Victoria Food System Discussion Paper





• •



• •





97

Key Issue

Not enough community garden plots to meet demand (waitlists)

Source (reference listed at end of table) 1

2





3

4

5

6

7

8

9



10

11

12



13 •

Community assumes de facto ownership of community garden lands, even if originally intended for other uses.





City does not support allotment gardens in Parks





Lack of gardening space in condos/apartments/rowhouses



Lack of City support for foodbearing trees on boulevard



Long-term maintenance of foodbearing boulevard trees





• • •



Inadequate parking at community gardens



Lack of accessible transportation to community gardens



Availability of water







Community perception of messiness and increase in vandalism







Restrictive land use bylaws/policies make it difficult to find sites for community gardens



Development pressure on existing community gardens



• •



• •

Interpersonal/management issues in community gardens



Cost of maintenance and upkeep for community gardens





Agriculture/gardening not an aboriginal cultural tradition



Harvesting/gathering not included in food security approaches





Need for culturally appropriate food security approaches





Lack of knowledge of benefits of urban agriculture (social, environmental, economic)





Food Processing and Storage Lack of processing kitchens and copacking facilities Lack of cold storage

98

• • City of Victoria Food System Discussion Paper

Key Issue

Source (reference listed at end of table) 1

2

3

4

5

6

7

Lack of local meat processing facilities (abattoir)

8

9

10







11

12

Lack of infrastructure limits shift to local food to 20%

13



Food Distribution Lack of nutritious food from emergency food providers









Small number of vendors at farmers markets





Lack of year-round farmers markets





Limited hours of farmers markets



Increased use of emergency food services



High cost of food purchased by emergency food services



Lack of food outlets selling aboriginal foods



Insufficient supply of local/BC products for markets







CSA programs expensive



Lack of product choice in CSAs



Lack of consumer/producer awareness of co-op model





Local foods hard to find at food stores





Food deserts (no proximate grocery store) in some neighbourhoods



•90



Food stores not being planned for new developments (e.g. Humboldt Valley)



New retail outlets such as drug stores and gas stations, selling (mostly convenience) foods Lack of nutritious foods at neighbourhood food stores Local residents do not patronize neighbourhood food stores

90

• •



A lack of grocery store in Hillside-Quadra neighbourhood was identified as a key issue in this 2003 paper, however a fullservice Fairways Store subsequently opened in the neighbourhood in 2005.

City of Victoria Food System Discussion Paper

99

Key Issue

Source (reference listed at end of table) 1

2

3

4

5

6

7

8

9

10

11

12

13

Local farms unable to produce volume needed for large retail store specifications





Easier for retailer to deal with one wholesaler over multiple small farmers









Lack of consistent labeling/identification of local foods in stores



Consumers reluctant to pay high cost of local food



Consumer preference for “perfect” produce



Lack of efficient transportation for small quantities of products from farms to markets Food from food security programs not culturally/nutritionally appropriate (e.g. Aboriginal, vegetarian)







Lack of stored food supplies in case of disaster





Food Consumption High cost of living in Victoria shrinks monthly food budget









Income assistance insufficient to meet monthly household food needs









Local foods mostly available only at high-end restaurants





Recovery Lack of easy system for restaurants/stores to sort and store compostable waste



Lack of formal diversion system for edible food from restaurants/stores to non-profits



Contamination of organics from improper sorting



Leaves, compost and yard waste from City collection not available to the public



Lack of greywater recycling/rain catchment programs for garden use



Lack of recognition of the importance of good soil building and nutrient cycling to UA success



100

City of Victoria Food System Discussion Paper

Key Issue

Source (reference listed at end of table) 1

2

3

4

5

6

7

8

9

10













11

12

13

Food System-wide Cheap imported food Poor communication among food organizations



Need for coordination among government agencies touching on food system



Lack of awareness of alternatives for food security (buying groups, co-ops, etc)





Lack of consumer awareness of seasonal availability of food





• •



Organizational and funding uncertainties for food-related organizations



Disconnection between consumer buying habits and greater impacts on community, environment and local economy









Sources 1.

Barbulak, W., K. Gauvin and S. Janz. 2008. Urban Agriculture in the City of Victoria: Policy Shifts Toward Food Security. Unpublished paper for SOCW560, April 2008.

2.

LifeCycles Project Society. 2007. Benefits of Urban Agriculture for the City of Victoria: Background Paper. Victoria, BC: Unpublished paper, submitted to Victoria City Council, January 2007.

3.

InnerCity Aboriginal Society. 2006. Food First Aboriginal Dialogue Process: Building Capacity Report. Unpublished final report.

4.

Boecski, A. and M. Annand. 2008. Agency Community Foods & Meals Survey. Prepared for Vancouver Island Health Authority, Salvation Army and the University of Victoria.

5.

Vancouver Food Policy Council. 2006. Food Diversion Report. Unpublished report.

6.

MacNair, E. 2002a. The Garden City Handbook: How to Create and Protect Gardens in Greater Victoria. Victoria, B.C.: POLIS Project on Ecological Governance.

7.

Neighbourhood Markets Meeting (Victoria). 2007. Unpublished meeting minutes, January 31, 2007.

8.

The Centre for Community Development. 2008. Buy Local Market Actor Project: Final Report. Unpublished report.

9.

MacNair, E. 2004. A Baseline Assessment of Food Security in British Columbia’s Capital Region. Prepared for Capital Region’s Food and Agriculture Initiatives Roundtable (CR-FAIR).

10. Capital Region District Roundtable on the Environment. 2006. Final Report, Phase 1: Putting Food and Food Policy on the Table. Accessed from www.islandnet.com/~vipirg/campaigns/crfair/CRFAIR_Final_Report_Food_Policy_ on_the_Table.pdf, July 10, 2009. 11. Ewald, Y. 2003. Hopeful Harvest: Exploring Socio-Geographic Limitations to Food Access in Hillside-Quadra. Unpublished Graduating Essay for the University of Victoria Honours Bachelor of Arts in Geography, 2003. 12. Issues identified through individual interviews with City of Victoria staff, July – October, 2009. 13. Issues identified through focus group with Victoria urban food system specialists, September 22, 2009.

City of Victoria Food System Discussion Paper

101

102

City of Victoria Food System Discussion Paper

APPENDIX 2 - KEY FOOD SYSTEM INITIATIVES PROVIDED &/OR SUPPORTED BY THE CITY OF VICTORIA Education Compost Education Centre

(Waste Recycling & Food Production)

The City (Public Works) provides an annual operating grant to the Compost Education Centre for $13,530 (2009). The Centre provides composting, organic gardening and urban agriculture workshops, events and information, and is a retail outlet for yard and worm compost bins. The Centre is also supported by the CRD. Urban Agriculture Hotline & Workshop Series

(Food Production)

The City provided $10,000 to LifeCycles for an Urban Agriculture Hotline and Workshop Series through the 2009 Special Project Grants. Both initiatives will provide resources, expertise and workshops to Victoria residents to increase the number of gardens and gardening skills within the city. Cooking & Nutrition Classes

(Food Processing & Consumption)

Victoria’s recreation, community, senior and neighbourhood centres provide a variety of cooking, nutrition, gardening and active living workshops. First Steps City Hall Vegetable Garden

(Food Production)

City Councillors, City staff and community volunteers planted and demonstration food garden at the front door of City Hall. Staff has been directed to explore opportunities for expanding the food garden as part of City Hall’s 2010 landscaping plans.

Policy & Planning Urban Agriculture Resolution

(Food System-Wide)

In 2007, City Council approved an Urban Agriculture Resolution that stated: "Be it resolved that the City of Victoria supports in principle the concept of urban agriculture as a valuable community resource and will work to collaborate with the community, neighbouring municipalities and Capital Region District to support and encourage Urban Agriculture where possible." The resolution was not accompanied by supporting actions or directions for staff. Dining and Catering Policy

(Food Consumption)

Two internal policies affect the foods served for City Hall functions: 1) A 2008 motion encourages the use of free-range eggs by caterers and restaurants providing food for City functions; and 2) The Dining and Catering Policy stipulates that that only Fair Trade coffee is to be served and that no single serving water bottles are to be used for City Hall functions. Department directors are responsible for approving catering expenditures; total annual City expenditures have not been determined. Sustainability Framework (Draft)

(Food System-Wide)

The Sustainability Department is creating a comprehensive Sustainability Framework to guide decision-making and operations. Food security has been identified as a component of the Draft Framework.

City of Victoria Food System Discussion Paper

103

Healthy Choices Vending Machine Policy

(Food Consumption)

Parks, Recreation & Community Development Department is developing policy to increase access to healthy food and beverages offered in vending machines, at meetings, internal and external programs and services, fundraising and social events at recreation facilities. The vending machines at Crystal Pool Recreation Centre were converted in June 2009 to a 70%30% split of healthy vs. less healthy choices. The Policy developed with dietician and funded through UBCM and BC Recreation and Parks Association. Official Community Plan (1995)

(Food Distribution)

Victoria’s Official Community Plan Section 4 mentions the need to support “a wide range of human services” but does not make explicit mention of food-related services or amenities. Section 5, Objective D encourages the City to “…allow for neighbourhood community services such as corner stores, appropriate small neighbourhood shopping centres, home occupations, bed & breakfasts and neighbourhood pubs”. Sustainability Guidelines

(Food Production)

The City is currently developing voluntary Sustainability Guidelines that will provide information for developers and the City on incorporating sustainable features into small and multi-unit developments. Food production features may be included. Draft Parks Master Plan

(Food Production)

The reviewed and updated Parks Master Plan is currently under development. The Plan will present a vision for parks, as well as integrate park planning with other city initiatives. The Plan will address food-related activities on Parks land, including community gardens and edible landscaping, and recommend associated management activities. Community Garden Policy

(Food Production)

The City’s Community Garden Policy (2005) encourages the development and retention of community gardens in partnership with non-profit groups on public and private lands. The Policy outlines policy goals, site selection guidelines, and differentiates the conditions of use on private, park and City-owned property. Urban Forest Management Plan

(Food Production)

The City is currently reviewing and developing Urban Forest Master Plan, aimed at strategies to invest in and maintain Victoria’s 40,000 trees. There was significant public support for food-bearing trees at public consultation sessions. Section 4.3.2. proposes investigating the planting of fruit and nut bearing varieties in public spaces. Pesticide Use Reduction Bylaw

(Food Production)

Pesticide Use Reduction Bylaw No. 07-094 protects the natural environment by regulation and reducing the non-essential (i.e. cosmetic) use of pesticides on outdoor trees, shrubs, flowers, plants or turf. Commercial, institutional or industrial properties are exempted from the bylaw, as is land used for agriculture. Integrated Pest Management

(Food Production)

The purpose of this policy is to develop pest management approaches that eliminate the nonessential use of pesticides on public lands in the City of Victoria. The program is supported by 104

City of Victoria Food System Discussion Paper

practices such as increased pest monitoring and beneficial insect release. All departments involved in landscaping fall under policy, coordinated by the Engineering Department. Animal Control Bylaw – Backyard Poultry

(Food Production)

Bylaw allows unspecified number of hens and no roosters over six months of age. No farm animals are permitted, defined as “ animals raised for food, meat or as beasts of burden that includes cattle, horses, swine, sheep, goats, mules, donkeys, asses and oxen”. No site restrictions are specified. Honeybees are not mentioned. Bylaw enforcement carried out under contract from Victoria Animal Control Services (VACS). VACS reports no noise complaints in last few years; 3-4 calls per year for ‘found’ chickens. Development Applications

(Food Distribution)

While the market often attracts new businesses to a location, planning staff have been involved in ensuring permissive zoning in new mixed-use developments in order to keep options open for different types of businesses, including potential food retail stores that could serve the local neighbourhood. City staff also confront food system issues when reviewing applications for, or that include, commercial food operations.

Regulations Home Occupation Bylaw

(Food Production)

A 2009 amendment to the Home Occupation Bylaw permits urban agriculture activities undertaken by up to two occupants. Urban agriculture is defined as the production of fruit and vegetables. No on-site sales or other home occupations can take place on the same property. Bylaw Enforcement has received and approved 2 licenses in 2009. Changes were also recommend to the City’s Tax Schedule to ensure that the City does not lose tax revenues if urban agriculture operations earn over$10,000 and qualify for Provincial Farm Classification. Business Licences

(Food Processing, Distribution & Consumption)

The City issues business licenses for several food-related operations. No specific numbers are available for the number of food stores, restaurants, processors or wholesalers. The City’s five public markets and six pocket markets must obtain business licenses. The City issues business licenses to non-profit groups or business responsible for coordination of public markets and pocket markets. The City also authorizes the placement of temporary and semi-permanent structures on sidewalks. Currently, 105 permits are issued across three different designated areas. Street (Mobile) Vending 22 street vendors are licensed by City - 19 restaurant carts on private property and 3 kiosks on City property. The breakdown of carts by food type is: 8 hot dog, 4 unspecified, 1 unknown, 1 fish taco, 1 Jamaican, 2 coffee, 1 bubble tea, 1 organic smoothie, 1 waffle, 1 donut, 2 popcorn and 1 ice cream. Carts must obtain business license, the permission of landowner and health authority approval. The existing kiosks pre-date the Council directive in 1992 that says hawking activities be restricted to designated areas. New kiosks are not being approved.

City of Victoria Food System Discussion Paper

105

Programs Integrated Waste Management Program

(Food Production)

Organic waste is sorted and collected in City offices and facilities maintained by the Building Services staff. 108 tonnes was collected in 2007 from office bins and bins put out during meetings and events. Staff play a key role in the program due to the sorting. The waste is then picked up by ReFUSE (contractor), who processes and then sell finished compost. Yard & Leaf Waste Collection

(Waste Recycling)

734 tonnes of yard and garden waste was collected in 2007 from the public Garden Waste Drop-Off. The City pays for a contractor to collect the waste, which is then processed and sold as finished compost and mulch. 1376 tonnes of leaves were collected from street sweeping activities in 2007 ( this is distinct from leaves collected from boulevard maintenance). These leaves are used by Parks for landscaping. Within City Parks, 7,200 cubic metres of leaves, wood chips and compost is generated annually. Most is used for landscaping on City property. The City pays to have surplus woodchips removed. Surplus organic matter is occasionally donated to community organizations. Remnant Fruit Trees

(Food Production)

Few fruit- and nut-bearing trees exist on City property and most are remnants from former orchards. All are managed as ornamental trees, not fruit trees. City has removed fruit-and nut-bearing trees in the past due to maintenance and safety issues. Boulevard Maintenance Program Review The City has 300 kilometres of boulevards within its boundaries. Eighty percent of boulevards are maintained by adjacent property owners (some of these are cultivated and include food and other gardens). The City collects tax to maintain the remaining 20% of boulevards. Any plantings on these boulevards is removed during regular City maintenance. The City is currently reviewing the boulevard program, including whether edible (and other) plantings should be allowed. Emergency Preparedness

(Food Distribution)

The City provides workshops on preparing for an emergency, including encouraging each household to stockpile food and water supplies for 72 hours. The City has the powers to seize commercial food supplies under a state of emergency.

Economic Development Public Markets

(Food Distribution)

Victoria has six public markets on City property, and six Pocket Markets. Five of the six public markets sell local produce. The Community Development Division administers Special Event Permits to non-profit groups to operate the public markets in neighbourhoods. They are located at Moss Street, and in James Bay and Fernwood. The Moss Street market has revenues of $700,000 per year.

106

City of Victoria Food System Discussion Paper

The Government Street and Bastion Square Markets run through operating agreements with the City, administered by Community Planning. Bastion Square Market features the Island Chefs Collaborative local food market (wo days per week). Government Street is adding produce vendors and currently offers prepared foods. Community Development also administers Special Event Permits to non-profit group for six FoodRoots pocket markets at different locations within the City boundaries. Downtown Market Study

(Food Distribution)

A Consultant is currently conducting a review of Government and Bastion Square markets, including a brief analysis of the potential for a year-round indoor produce market.

Community Partnerships Community Gardens

(Food Production)

Two of eight of Victoria’s community gardens are on Parks land (Banfield Commons and Wark Street Commons). Generally gardens on Parks land are currently managed as commons, community gardens for the benefit of the community, and not as allotment gardens. Gardens are managed through agreements with non-profit groups. The City provides contact information for gardens, helps find appropriate sites, reviews site design, and may provide compost and mulch. Water provision varies on case-by-case basis. The City’s Community Garden Policy encourages the development and retention of community gardens in partnership with non-profit groups on public and private lands. The Policy outlines policy goals, site selection guidelines, and differentiates the conditions of use on private, park and City-owned property. Neighbourhood Enhancement Matching Grants

(Food Production)

The City has provided Neighbourhood Enhancement Matching Grants (up to $5,000) for seven of the eight community gardens in Victoria. Some gardens have also received an additional $5,000 for Phase 2 funding. Funding has supported garden bed design/creation, irrigation, supplies and other infrastructure. A 2009 Neighbourhood Matching Grant was awarded to Burnside Gorge Community Association to identify and design the site for community garden plots lost during centre re-location. Special Project Grants

(Food System-Wide)

The City provides grants to non-profit organizations for new initiatives or special events that benefit the Victoria community. The City has awarded $25,500 in last five years to five different food system-related projects. Meeting Space

(Food System-Wide)

The City has provided meeting space at no cost to local food organizations, including the annual Regional Food Matters Forum.

City of Victoria Food System Discussion Paper

107

108

City of Victoria Food System Discussion Paper

APPENDIX 3 - KEY ASSETS SUPPORTING VICTORIA’S FOOD SYSTEM Social & Cultural Assets Growing Appreciation of the Importance of Food Security & Local Food: Vancouver Island is said to have one of the most knowledgeable food consumer-bases in the country. 91 The 100Mile Diet, the Slow Food movement and food security have increased the general public’s awareness of the benefits of local food and organic farming. Anecdotally, demand currently exceeds supply. 92 While few statistics exist, the CRD has seen a recent surge in interest in local food products, events, gastronomic tourism and local cuisine. Revitalization of Traditional First Nations Diets: Traditional foods are central to aboriginal communities and economies. Many aboriginal leaders believe the re-adoption of traditional foods is important to addressing many of the health concerns facing aboriginal populations today (with a particular emphasis on diabetes prevention). Several organizations such as the Native Friendship Centre, local nations and the Vancouver Island Health Authority are supporting Victoria’s urban aboriginal population to maintain existing harvesting and food preparation skills, and improve access to traditional wild foods from forests and sea. Environmental & Social Values: As a population, Victorians have strong environmental and social values. There is significant local expertise in sustainability, with interest and awareness on a broad range of associated issues that include affordable housing, energy, water, and local food production. There is a strong and growing demand for local, organic and natural foods. Demand for Local Food: Farmers and food producers from outside the city have little difficulty selling their products in Victoria. Many residents – although certainly not all- are often willing to pay more for high quality, locally produced food. Some local chefs and caterers are purchasing directly from farmers. Public markets, pocket markets, brown box programs, specialty shops, caterers and restaurants currently provide markets for local farmers to sell products in Victoria

Biophysical Assets Diversity of Local Products: Regional producers offer an impressive range of quality products. These include berries, tree fruits, vegetables, grains, eggs, meat, honey, mushrooms and wine grapes. There is the opportunity to continue the innovation, by drawing on the knowledge, markets and experience of farmers, as well as new technology. Climate and Arable Land: The region boasts class one soils and large areas of agriculture land that are currently available for food production purposes. In addition, the temperate climate provides the ability to grow foods year round.

91

Geggie, L. and K. Platt. 2007. Our Farmlands, Our Foodlands…Our Future: Tools and Strategies for Ensuring Productive and Accessible Farmlands in the CRD. Accessed from lifecyclesproject.ca/conferences/focusonfarmlands/docs/OurFarmlands-Our-Foodlands-Conference-Findings-Report-07-2009.pdf, August 7, 2009.

92

ibid.

City of Victoria Food System Discussion Paper

109

Compact Scale: Victoria’s small, compact layout and relatively flat topography encourages a sustainable food system. The distances are short between where food is produced, processed, marketed and transformed into productive waste. Instead of requiring a big truck for deliveries (and needing the volume to justify the trip), some small urban producers use inexpensive and sustainable options such as bike trailers for nearby pick-ups and drop-offs. The small scale also facilitates a community where there are close relationships, and informal communication networks that easily connect people interested in urban food.

Infrastructural Assets Demonstration Sites: For a City of its size, Victoria features a wide range of urban agriculture sites where people can observe and learn about working models. In other words, lots of people are already “doing it”. These are both public and private sites, and showcase features such as grey water harvesting, composting, food polycultures, community commons, small lot intensive gardens, commercial operations and backyard poultry. Regular workshops, tours and/or informal meetings expose these working models to the public, and demonstrate not only the physical features but also the partnerships and coordination needed to support them. Underutilized Land: Victoria has many opportunities for increasing urban food production. Vacant lots, such as Chinatown and north downtown, present the opportunity for temporary gardens while development process is underway. Land owned by School District 61, churches, service clubs, British Columbia Building Corporation and the Provincial Capital Commission can be explored for food production opportunities. Parks and boulevard sites offer other food production locations, as do unconventional sites such as floating barges. Public Markets: Local produce is sold at seven public markets and six pocket markets. The small pocket markets are distributed across the City and thereby provide an accessible alternative food outlet for fresh, quality food in neighbourhoods that might not traditionally support a bigger public market. The City of Victoria recognizes the markets as both an economic and neighbourhood development tool, and plays an active role in facilitating and supporting the markets. Emerging Local Food Businesses: There is increasing interest in local food and drink products from Victoria’s eateries and shops. Many small local, organic farmers and food processors have established close relationships with city chefs. A small but growing number of Victoria restaurants and a number of specialty food shops feature fruits, vegetables, meat, dairy, eggs, grains and wine produced locally. Victoria’s microbreweries are nationally recognized and featured on local menus. Many Victoria food businesses are independent, allowing local control of management and purchasing decisions. Rise of New Farming: While traditional, large-scale farming may be in decline in the region an increasing number of new farmers are making a viable living off small lot agriculture in the CRD. 93 These “new farms” are typically just a few acres in size and showcase a mixed production model, including organic vegetables, berries, honey, wine grapes and tree fruits. Demand outstrips supply for many small farmers. Because many grocery stores buy from wholesalers with relatively high volume requirements, the majority of small farmers sell

93

Geggie, L. and K. Platt. 2007. Our Farmlands, Our Foodlands…Our Future: Tools and Strategies for Ensuring Productive and Accessible Farmlands in the CRD. Accessed from lifecyclesproject.ca/conferences/focusonfarmlands/docs/OurFarmlands-Our-Foodlands-Conference-Findings-Report-07-2009.pdf, August 7, 2009.

110

City of Victoria Food System Discussion Paper

through direct marketing, such as farmers markets, home delivery programs (brown box) and direct sales to chefs. Others have direct sales through on-farm eateries and stands. Existing Regional Food Policy Organization: Victoria’s food system benefits from the work of Capital Region Food and Agricultural Initiatives Roundtable (CR-FAIR), a multi-sectoral group of organizations, academics, governments and farm and food businesses that promote regional and municipal policies supportive of a local food system. CR-FAIR has completed key information related to development of food policy, including a baseline food assessment (2004), and worked with local governments to adopt a Food and Health Action Plan and Regional Food Charter. The Peninsula Agriculture Commission develops agricultural policy and practices at a regional level. Regional Food and Farming Organizations: Regionally, there is a wide range of organizations that serve to promote food security through education and demonstration (e.g. Haliburton Community Organic Farm or Westshore Center for Learning and Training demo garden site), and food action projects (e.g. Sooke Food Community Health Initiative). In addition, there are a number of farmer and chef networks that support new farmer development, farmer education and skill building, cooperative marketing, agritourism activities and public education.

Community & Institutional Assets Supportive Local Institutions: There are several local and regional institutions working on issues related to the local food system. The Provincial government, Vancouver Island Health Authority, School District 61 and Capital Regional District also support regional and community food and agriculture initiatives. Universities and colleges provide garden- and food-related courses. Some financial institutions, such as VanCity Savings Credit Union, provide micro-credit loans and grants for food initiatives. Existing Educational Programs: Residents wishing to learn gardening and other food-related skills and knowledge are provided with many opportunities. In Greater Victoria, local organizations, municipal recreation programs and post-secondary institutions offer gardening, horticulture and food preparation classes. Additional educational opportunities include local farm tours, school food gardens, school culinary arts programs, in-school and local horticulture education programs. Supportive Municipal Regulations & Policy: While there is still tremendous potential to do more, the City of Victoria possesses many regulations that are already supportive of urban food systems, particularly for urban food production. These include one of the most permissive backyard chicken bylaws in North America, a home occupation bylaw that permits urban agriculture, a Community Garden Policy, demonstration edible landscaping in City parks, an urban agriculture resolution and a demonstration vegetable garden outside City Hall. Although these initiatives do have some shortcomings, their mere existence is a positive first step. The current City Council is broadly regarded by the food community as supportive of sustainable, local food systems and as providing leadership on food security. Strong Food Organizations: An extensive network of groups and organizations supports Victoria’s food system. The food community is characterized by a high-level of collaboration and strong partnerships. Non-profit groups, faith-based organizations and service clubs provide services and volunteer opportunities at all stages of the food system. Victoria boasts LifeCycles, one of Canada’s leading urban agriculture organizations. The food community has City of Victoria Food System Discussion Paper

111

a strong activist and politically oriented tradition, which has been used to mobilize community efforts.

112

City of Victoria Food System Discussion Paper

APPENDIX 4 - MUNICIPAL GOVERNMENT INITIATIVES THAT SUPPORT THE URBAN FOOD SYSTEM IN PORTLAND, SAN FRANCISCO, SEATTLE & VANCOUVER Portland, Seattle, San Francisco and Vancouver were each profiled as case studies in this report due to their innovation and leadership in municipal food system policy, planning and programs. The following section provides more detailed information about food-related initiatives in each city, including regulations, policies, programs, projects, services and other activities in which the municipal government is directly involved. Initiatives are grouped according to the corresponding role played by the municipality: Education, Policy & Planning, Economic Development, Community Partnership and Research. The stage of the food system that is most affected by the initiative is indicated in parentheses.

Portland94 Education City Hall Garden 95

(Food Production)

The Portland Multnomah Food Policy Council asked Portland City Council to create a garden at City Hall that would inspire Portland residents to plant their own gardens and an extra row for the hungry. The Better Together Garden was adopted via a resolution in 2009 and includes 700 square feet of vegetables, perennial fruit trees, edible shrubs and plants. A seniors meal site located five blocks from garden receives the harvested produce and fruit. Urban Growth Bounty 200996

(Food Production & Processing)

The Office of Planning and Sustainability hosts a workshop series entitled “Urban Growth Bounty 2009” for “everyone who believes that food production should once again take a prominent place in family and civic life.” The workshops, offered over length of the growing season, provide comprehensive instruction on household and commercial urban fruit and vegetable production, raising chickens, beekeeping, cheese making, and food preservation. Youth Garden Education 97

(Food Production)

The City funds no-cost summer gardening classes for youth entering kindergarten through grade 12 at a local community garden. Participating students learn the fundamentals of organic gardening, ecology, food preparation, nutrition and urban stewardship.

94

Cohen, Steve ( Food Policy Program Coordinator, City of Portland Bureau of Planning & Sustainability). Telephone interview: October 2, 2009.

95

www.portlandonline.com/bps/index.cfm?c=50277&

96

www.portlandonline.com/osd/ugb

97

www.portlandonline.com/parks/index.cfm?c=39846&a=113450

City of Victoria Food System Discussion Paper

113

Composting Information

(Recovery)

Generally, compost and waste issues and programs are handled by Metro (Portland Metropolitan Area) although the City’s Bureau of Planning and Sustainability provides composting information and support in an effort to reduce food waste. Sustainable Food Resources Webpage98

(Food System-Wide)

The City’s website provides information about Portland’s sustainable food resources.

Policy & Planning Portland Multnomah Food Policy Council (FPC) 99

(Food System-Wide)

The Food Policy Council is a citizen-based advisory council to the City of Portland and Multnomah County. Established in 2002 by resolutions from the City100 and County101 the Council brings citizens and professionals together from the region to address issues regarding food access, land use planning issues, local food purchasing plans and many other food system-related policy initiatives. Peak Oil Task Force102

(Food System-Wide)

In 2006, Portland City Council adopted Resolution 36407 to establish the Peak Oil Task Force. The citizens’ Task Force examined the potential economic and social consequences of peak oil in Portland and developed recommendations to mitigate the impacts of rising energy costs and declining supplies. The Task Force actively engaged the community over a period of six months to produce their wide-ranging final report. Food system-related recommendations included the preservation of farmland and expanding local food production and processing. Backyard Bees and Livestock Policies103,104

(Food Production)

Under Chapter 13 of the City’s Charter, residents are allowed to keep bees and limited numbers (under three) of small animals including chickens, pygmy goads and rabbits. Roosters and commercial swine breeds are prohibited and animals must be kept well away from food preparation areas.

98

www.portlandonline.com/bps/index.cfm?c=45126&

99

www.portlandonline.com/bps/index.cfm?c=42290

100

www.sustainableportland.org/auditor/index.cfm?a=8728&c=27429

101

www2.co.multnomah.or.us/Public/EntryPoint?ch=4da0f4ba0fd7c010VgnVCM1000003bc614ac RCRD&ct=1681df87476cc010VgnVCM1000003bc614acRCRD

102

www.portlandonline.com/bps/index.cfm?c=42894

103

www.portlandonline.com/auditor/index.cfm?c=28228

104

ibid.

114

City of Victoria Food System Discussion Paper

Programs Community Gardens Office105

(Food Production)

The Portland Parks and Recreation Department (PP&R) Community Gardens Office was established in 1975. There are 32 community gardens located throughout the city, of which over 60% are located on parkland and the balance on private, institutional or other public land. A long-standing ordinance enables the PP&R to administer community gardens on private lands106. The gardens are developed and operated by volunteers and PP&R staff, offering garden opportunities and other activities, such as the Orchard & Small Fruits Program107 which encourages the growing of fruit trees and plants through its demonstration sites and community gardens. Produce for People108

(Food Distribution)

Administered through the Community Gardens Office, Produce for People links community gardens with local emergency food agencies to provide individuals and families in need with fresh, healthy, local produce. Since 1995, Portland’s community gardens have provided over 25 tons of fresh produce to emergency food providers. Home Composting: Green Yard Debris Roll Cart109

(Recovery)

The City of Portland offers bi-weekly pick-up service for yard debris on the same day as garbage and recycling. One green, 60-gallon roll cart is included in a household’s regular garbage service.

Economic Development Markets and Farm Box Programs110

(Food Distribution)

Portland has 11 neighbourhood farmers markets and provides the customer base for 19 Community-Supported agriculture operations within the region. Urban Agriculture Businesses

(Food Production)

Furthermore, the number of urban agriculture-focused businesses in Portland is growing. For example, several existing design businesses provide clients with information and assistance on incorporating productive gardens within their yards as well as on green roofs. While the City does not directly provide support to these businesses, it is interested in supporting economic development in this area.

105

www.portlandonline.com/parks/index.cfm?c=39846

106

Murphy Kaethler, T. 2006. Growing Space: The Potential for Urban Agriculture in the City of Vancouver. Unpublished Final Project for the UBC School of Community and Regional Planning.

107

www.portlandonline.com/parks/index.cfm?c=39846&a=200913

108

www.portlandonline.com/PARKS/index.cfm?a=201278&c=39846

109

www.portlandonline.com/bps/index.cfm?c=47246

110

Murphy Kaethler, T. 2006. Growing Space: The Potential for Urban Agriculture in the City of Vancouver. Unpublished Final Project for the UBC School of Community and Regional Planning.

City of Victoria Food System Discussion Paper

115

Community Partnerships Zenger Farm111

(Food Production)

Zenger farm is an old dairy farm on the southeast edge of Portland that has been owned by the City of Portland since 1994 and offers farming and ecology programs. The Friends of Zenger Farm was formed in 1999 to expand the existing educational programs in collaboration with the City, Portland Public Schools and Portland State University. Portland Composts! For Businesses112

(Recovery)

Portland Composts! is a partnership between Metro and the City’s Bureau of Planning and Sustainability whereby Portland businesses can contract with waste haulers to collect organic waste for composting. The City of Portland provides businesses with technical assistance, training and marketing materials.

Supporting Research Farmers Market Study113

(Food Distribution)

Portland’s 11 markets are run by independent operators. In 2007, the Office of Sustainable Development and Portland Development Commission sponsored an economic analysis of the City’s farmers markets to help identify ways that policy makers might provide more effective support. Diggable City – Making Urban Agriculture a Planning Priority 114

(Food System Wide)

Resolution 36272 (2004) called for an inventory of city-owned lands suitable for agricultural uses. A group of Portland State University Urban and Regional Planning students worked with City staff to create an inventory of city-owned lands suitable for agricultural uses. The study researched new avenues for urban agriculture and compiled a land inventory using GIS analysis. The approach served as a model for Vancouver’s urban agriculture land use inventory. 115 Local Lunches116

(Food Distribution)

In 2006, students from Portland State University's Urban and Regional Planning program worked with city staff to develop recommendations for integrating local produce into school cafeterias. Local Lunches focused primarily on the distribution of local produce to school districts in Portland, and involved schools, distributors, farmers and the national Farm to School program.

111

www.zengerfarm.org

112

www.portlandonline.com/bps/index.cfm?c=41682&

113

www.portlandonline.com/bps/index.cfm?c=49940&

114

www.portlandonline.com/bps/index.cfm?&a=121596&c=42291

115

Murphy Kaethler, T. 2006. Growing Space: The Potential for Urban Agriculture in the City of Vancouver. Unpublished Final Project for the UBC School of Community and Regional Planning.

116

www.portlandonline.com/bps/index.cfm?&a=123015&c=42294

116

City of Victoria Food System Discussion Paper

San Francisco117 Education San Francisco Food Website118

(Food System Wide)

The San Francisco Food website, hosted by the City, is a well-used resource that better connects the community to a healthy food system. Victory Gardens 2008+119

(Food Production)

Victory Gardens 2008+ is a pilot project funded by the City of San Francisco to support the transition of backyard, front yard, window boxes, rooftops, and unused land into organic food production areas. The Victory Garden program builds on the successful programs of WWI and WWII but redefines "Victory" in the pressing context of urban sustainability, where the "Victory" is growing food at home for increased local food security and reduced food miles. San Francisco’s Department of the Environment contributed $60,000 for the program.

Policy & Planning SF Food Policy Council

(Food System-Wide)

The Council was recently established under the Mayor’s Healthy and Sustainable Food Directive. It will consist of both public officials and citizens from a wide variety of departments and organizations representing different aspects of the City’s food system. The immediate goals will be to integrate the principles of the Directive on Healthy and Sustainable Food as well as existing recommendations and plans for food policy into the municipal code, General Plan, and other relevant planning and policy documents. Mayor's Executive Directive: Healthy and Sustainable Food for San Francisco120 (Food System-Wide) This groundbreaking, comprehensive food policy for San Francisco holistically considers the food production, distribution, consumption, and recycling system. It outlines objectives regarding hunger, healthy food planning and procurement for city departments, food production on city owned land, a healthy food business plan, the marketing of regionally grown food in SF, recycling, an education and awareness plan, and advocating for consistent state and federal policies among others. The Directive was issued in Summer 2009, and it is too early to evaluate implementation. Among the initiatives: 

Inventory of all City lands to identify urban agriculture sites;



Accept food stamps at farmers markets;

117

Jones, Paula (Food Systems Director, Food Systems Program, SF Department of Public Health). Personal Communication. Telephone Interview, September 18, 2009.

118

www.sfgov.org/site/sffood_index.asp

119

www.sfvictorygardens.org

120

www.sfgov.org/site/uploadedfiles/sffood/policy_reports/MayorNewsomExecutiveDirectiveon HealthySustainableFood.pdf

City of Victoria Food System Discussion Paper

117



Mobile food vendors with City permits must provide healthy and sustainably produced food;



Serve healthy foods at meetings;



Nutrition standards for vending machines;



Develop Sustainable Food Business Recognition Program; and



Develop a Food Business Action Plan to recruit and incubate new food businesses.

San Francisco Urban-Rural Roundtable121

(Food System-Wide)

Led by the Mayor, over 50 leaders from the “city and country” convened three times over five months to discuss the development of a “foodshed” for the City. The Mayor challenged Roundtable participants to develop an “integrated set of recommendations for programs, incentives, strategies and practical actions” that San Francisco could implement “to support the regional agricultural economy and increase the amount of high quality, California grown food for all of our residents.” The work culminated in the Mayor’s Directive for Healthy and Sustainable Food for San Francisco. Sustainability Plan 122

(Food System-Wide)

The Plan guides outlines goals, five and ten year objectives, and specific actions for San Francisco to take towards long-term environmental sustainability. The plan covers a wide range of topics. The food and agriculture section highlights the importance of ensuring access to safe, affordable food for all residents and purchasing locally and organically. Farmers’ Market Ordinance123

(Distribution)

In 2007 the Board of Supervisors passed this ordinance requiring all farmers’ markets in the city to accept all forms of payment from food assistance programs such as food stamps. It allowed Parks and Recreation land to be considered as a possible venue for future markets, and called for a comprehensive assessment by the Agricultural Commissioner of the neighbourhoods in San Francisco that could support farmers’ markets.

Programs San Francisco Community Gardens Program124

(Food Production)

The Recreation and Parks Department supports and manages a growing program of 40 community gardens on City-owned property. Each garden is operated by a group of committed volunteers for growing ornamentals and produce for personal use through individual or shared plots.

121

www.farmland.org/programs/states/CA/documents/FINALSFURRTRecommendation051509.pdf

122

www.sustainablecity.org

123

www.sfgov.org/site/uploadedfiles/sffood/policy_reports/FarmersMarkets.pdf

124

www.parks.sfgov.org/site/recpark_index.asp?id=27048

118

City of Victoria Food System Discussion Paper

Composting 125

(Recovery)

San Francisco established one of the first large-scale urban organic waste collection programs in the United States. Today, over 400 tons of compostable food scraps, yard trimmings and soiled paper is collected daily from local households and 3,000 restaurants and other businesses and transported to a local composting facility.

Economic Development Farmers’ Market Assessment126

(Food Distribution)

The assessment, commissioned by the Board of Supervisors, focuses on underserved neighbourhoods, where markets could support low-income access to healthy local produce without detrimentally impacting local businesses. The assessment examines the necessary requirements for a neighbourhood to support a market, including physical location, community support, financial backing, and the specific needs of low-income neighbourhoods.

Community Partnerships Sourcing & Serving Sustainable, Healthy Food127

(Food Distribution)

The City and County of San Francisco have teamed with two non-profit organizations to provide searchable databases of sources for sustainable, healthy food to consumers and institutional purchasers. San Francisco Parks Trust128

(Food Production)

The Trust partners with community organizations and the Departments of Parks and of Public Works, to facilitate the construction and maintenance of parks and community gardens. The Trust advocates new and existing neighbourhood parks, promotes open space and land stewardship, and helps for capital improvements. Alemany Farm129

(Food Production)

Alemany Farm is a 4.5-acre working organic farm collaboratively managed by volunteers, the City and community residents to grow organic food, provide food security programs and support environmental education for all San Francisco residents.

Research San Francisco Foodshed Study130

(Food Distribution)

The study, authored by the American Farmland Trust (2008), documents the opportunities that exist for San Francisco to increase consumption of locally produced food.

125

www.sfenvironment.org/our_programs/topics.html?ssi=3&ti=6

126

www.sfgov.org/site/uploadedfiles/sffood/policy_reports/2007%20SF%20Farmers%20Market%20Assessment.pdf

127

www.sfgov.org/site/sffood_index.asp?id=66024

128

www.sfpt.org

129

www.alemanyfarm.org

130

www.farmland.org/programs/states/ca/Feature%20Stories/San-Francisco-Foodshed-Report.asp

City of Victoria Food System Discussion Paper

119

Food Security For All: A Strategic Plan to End Hunger in Our City131

(Food Distribution)

The report by the San Francisco Food Security Task Force (2007) recommended ways to improve food security and access, including improving technology to simplify/increase access to nutrition programs and increasing outreach and funding to programs. San Francisco Collaborative Food System Assessment132

(Food System-Wide)

The San Francisco Food Alliance developed the first comprehensive food system assessment for the city, including baseline information for production, distribution, consumption and recycling. Staff of San Francisco Food Systems and the San Francisco Department of Public Health’s Environmental Health Section provided project management and editing. The City is a participating member of the Food Alliance.

City of Seattle133 Policy & Planning Local Food Action Initiative134

(Food System-Wide)

Resolution No. 31019 (2008) aims to improve the sustainability and security of Seattle's food system by developing a coordinated approach to food. The Resolution commits Seattle to establishing broad, overarching food policy goals; to creating a connected policy framework; and to identifying supporting planning, research and analysis work. Anticipated actions include:

131



The development of a City of Seattle Food Policy Action Plan (currently underway), which will identify policies, programs and opportunities to promote local food system sustainability and security;



Strengthening of local farmer’s markets and market gardens by securing their tenure through permanent locations



Identifying additional locations and infrastructure for community gardens that strengthen the existing garden program and maximize accessibility to all neighborhoods and communities;



Supporting programs that provide fresh food for food banks and meal programs; and



Creating a “permanent” Regional Food Policy Council that can assist the City and the County with the development of supporting policies.

www.sfgov.org/site/uploadedfiles/sffood/policy_reports/FoodSecTaskFrcStratPlan012007.pdf

132

www.sfgov.org/site/uploadedfiles/sffood/policy_reports/FoodSystemAssess.pdf

133

Shulman, Phyllis (Legislative Assistant to Seattle City Council President). Personal Communication. Telephone Interview: September 18, 2009.

134

www.seattle.gov/council/conlin/food_initiative.htm

120

City of Victoria Food System Discussion Paper

Seattle King County Acting Food Policy Council135

(Food System-wide)

The Seattle King County AFPC officially formed in May 2006. The AFPC is comprised of 11 individuals from key sectors, including the City of Seattle, representing food system issues. Other community members participate in meetings and committee work. The AFPC has been effective at supporting the development of a number of research papers aimed at developing a better understanding of aspects of the City’s food system. The AFPC refers to itself as “Acting” to demonstrate that one main goal is to form an officially sanctioned food policy council recognized by local government. Discussions are underway with the Puget Sound Regional Council to establish a regional food policy council that would provide policy advice to the four-county region served by the Council. Comprehensive Plan

(Food Production)

Seattle’s Comprehensive Plan (1995) formally recognizes community gardening and calls for one community garden for every 2000 households in every ‘urban village’. This provided important justification for both city officials and community garden supporters. 136 Community gardens are regularly identified as a high priority in neighbourhood planning processes and resulting plans. 137 Community Gardens are recognized as a recreational use of open space throughout the City. 138 They are allowed on all parkland where they do not displace existing activities. Beyond just parkland, Resolution 20194 encourages community gardens to be co-located with other amenities on all City property.139 Protecting the Regional Foodshed140

(Food Production)

Resolution 31147 (2009) directs City Council to work with surrounding King County to transfer rural development rights to Seattle to protect properties that sustain Seattle’s foodshed. The legislation identifies sites that supply City farmers markets and regional-serving dairy cooperatives as potential properties to be protected. The agreement also specifies that King Country should provide Seattle with funding for amenity and infrastructure programs in neighbourhoods that accept more density under the agreement. Designated sites within Seattle have been identified.

135

king.wsu.edu/foodandfarms/foodpolicycouncil.htm

136

McDonald, R. History of the P-Patch Program: 1993-2003.Program Thrives in Third Decade but Challenges Loom. Accessed from www.seattle.gov/neighborhoods/ppatch/history.htm, October 9, 2009.

137

Murphy Kaethler, T. 2006. Growing Space: The Potential for Urban Agriculture in the City of Vancouver. Unpublished Final Project for the UBC School of Community and Regional Planning.

138

ibid.

139

McDonald, R. History of the P-Patch Program: 1993-2003.Program Thrives in Third Decade but Challenges Loom. Accessed from www.seattle.gov/neighborhoods/ppatch/history.htm, October 9, 2009.

140

www.seattle.gov/council/conlin/miw/0908miw.htm#3

City of Victoria Food System Discussion Paper

121

Backyard Bees and Animals Policy141

(Food Production)

The keeping of small animals, farm animals, domestic fowl and bees is permitted in all of Seattle’s zones as an accessory use, subject to the standards of the Seattle Municipal Code.

Programs P-Patch Community Garden Program 142

(Food Production)

Seattle has over 70 community gardens within City boundaries, administered in partnership through the Department of Neighborhoods P-Patch Program and the non-profit P-Patch Trust. The P-Patch Program focuses on community and market gardening. These programs serve all citizens of Seattle with an emphasis on low-income, immigrant populations and youth. Currently, over 1,900 garden plots serve more than 3,800 urban gardeners on 23 acres of land. Gardens are located predominantly on public lands, with a few on private lands. Increasingly P-Patch community gardeners provide fresh produce to Seattle food banks and feeding programs (12.3 tons of food in 2008). In 2008, Seattle voters approved the 2008 Parks and Green Spaces Levy, which will provide $2,000,000 in annual revenues for the community garden program. 143 Green Gardening Program 144

(Food Production)

The Green Gardening Program provides workshops and resources to promote environmentally sensitive landscaping practices for professionals, including organic gardening, water conservation and reusing/recycling of materials. Emergency Food Programs145

(Food Distribution)

The City of Seattle began funding emergency food programs in the 1980s. As part of its annual budget, the Human Services Department invests funds in meal and food bank programs to help people who are homeless, home-bound or have low incomes meet their basic nutritional needs. These programs include 17 food bank sites, hot meal programs, and food distribution programs that supply the food banks and meal programs. Organic Waste Recycling 146

(Recovery)

The Public Utilities Department provides a curbside food and yard waste collection service for all single-family households, including apartment buildings. Residents have the ability to opt

141

clerk.ci.seattle.wa.us/~scripts/nphbrs.exe?s1=23.42.052&s2=&S3=&Sect4=AND&l=20&Sect3=PLURON&Sect5=CODE1&d=CODE&p=1&u=%2F%7Epublic%2Fcode1.htm &r=1&Sect6=HITOFF&f=G

142

www.seattle.gov/Neighborhoods/ppatch

143

www.seattle.gov/neighborhoods/ppatch/whatsnew.htm

144

www.seattle.gov/util/Services/Yard/For_Landscape_Professionals/Integrated_Pest_ Management/ASKTHEGR_200312041625243.asp

145

www.seattle.gov/humanservices/emergencyservices/emergencyfood.htm

146

www.seattle.gov/util/Services/Yard/index.asp

122

City of Victoria Food System Discussion Paper

out of the program if they have a home composter. Yard debris (leaves, grass, and plant trimmings) cannot be disposed through the regular garbage collection service. The City provides a similar commercial composting program to interested businesses at a reduced cost. 147

Economic Development Anecdotally, local food and urban agriculture businesses appear to be increasing in number. The Food Action Plan is expected to help identify existing barriers that are hampering the growth of urban agriculture businesses in this area. Community Market Gardens

(Food Production)

Three of the City’s community garden sites are used as commercial market garden sites through the P-Patch’s Cultivating Communities program. Gardeners can earn extra money by growing produce in their plots and selling it to regular customers through a Community Supported Agriculture (farm box) subscription program. 148

Community Partnerships Marra Farm149

(Food Production)

City’s Marra Farm delivers educational and growing programs and is managed by a coalition, including the City and several non-profits. Master Composter/Soil Builder Volunteer Program 150

(Recovery)

The Public Utilities Department provides funding for Seattle Tilth’s Master Composter/Soil Builder Volunteer Program - a program designed to increase knowledge of composting and healthy landscaping.

Supporting Research Growing Green: An Inventory of Public Lands Suitable for Community Gardening in Seattle, Washington 151 (Food System Wide) The report, prepared by a University of Washington Planning student (2008) and modelled after similar inventories conducted in Portland and Vancouver, provides the first comprehensive attempt to identify publicly owned lands that are suitable for community gardens in Seattle. University-City Research

(Food System Wide)

City staff have collaborated with students in various University of Washington programs to create research reports, including recommendations on enhancing the urban food system’s 147

www.seattle.gov/util/Services/Yard/CommercialCompostCollection/index.htm

148

McDonald, R. History of the P-Patch Program: 1993-2003.Program Thrives in Third Decade but Challenges Loom. Accessed from www.seattle.gov/neighborhoods/ppatch/history.htm, October 9, 2009.

149

www.seattle.gov/neighborhoods/ppatch/locations/36.htm

150

www.seattle.gov/util/Services/Yard/Composting/SPU01_003320.asp

151

www.seattle.gov/neighborhoods/ppatch/pubs/MHORST_GROWINGGREEN.pdf

City of Victoria Food System Discussion Paper

123

environmental and social sustainability; assessing neighbourhood food systems; and identifying policy barriers to urban agriculture.

Vancouver152 Education Food Policy Website153

(Food System Wide)

This website provides tools and resources for urban food systems, including extensive links to research, reports and community organizations. Edible Landscaping Information

154

(Food Production)

The City published an edible landscaping brochure and bulletin that outlines considerations for developers and contractors responsible for using edible landscaping plants. One Day Program 155

(Food System Wide)

A program to encourage residents to take action to reduce energy use. The main outlet for the program is its website which provides helpful tools and resources. One Day is part of the City's Climate Protection Program and is vital to achieving their goals to reduce greenhouse gas emissions. Encouraging residents to choose Local food and grow some of their own is a part of the program.

Policy & Planning Vancouver Food Charter156

(Food System-Wide)

Vancouver Food Charter (2007) - adopted unanimously by Council – presents a vision for a food system that benefits the community and the environment. It sets out the City of Vancouver’s commitment to the development of a coordinated municipal food policy, community engagement and specific initiatives. Vancouver Food Policy Council157

(Food System-Wide)

The Council (2003) is comprised of individuals from all sectors of the City’s local food system, including food production, processing, access, distribution, consumption and waste management. The Council’s primary goal is to examine the operation of the City’s food system and provide ideas and policy recommendations on how it can be improved. The Council is a working committee, and the Council identifies and carries out its own work plan and initiatives, including the development of the Food Charter and several research papers.

152

Kahn, Devorah (Food Policy Coordinator, Social Development Department, City of Vancouver). Personal Communication. Telephone interview: September 20, 2009.

153

vancouver.ca/COMMSVCS/socialplanning/initiatives/foodpolicy/

154

vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/tools/pdf/EL_Info_06Mar.pdf

155

vancouver.ca/oneday

156

vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/tools/pdf/Van_Food_Charter.pdf

157

vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/policy/council.htm

124

City of Victoria Food System Discussion Paper

Pesticide Ban – Health By-law No. 6580 (amended by By-law No. 9071) 158,159 (Food Production) This ban prevents the cosmetic application of pesticides on lawns and gardens within Vancouver. There are a number of exceptions to the bylaw. Urban Agriculture Guidelines for the Private Realm160

(Food Production)

These voluntary guidelines provide staff and developers with information for the assessment and design of urban agriculture features, specifically 1) shared garden plots (allotments) and 2) edible landscaping. At the time the guidelines were adopted, two approved Official Development Plans (Southeast False Creek and East Fraser Lands) contain provisions encouraging urban agriculture as part of the development process.

Programs City Hall Community Garden 161

(Food Production)

A new community garden was established on the lawn of City Hall in 2009, as an first step of the City’s Greenest City Action Team. Community Gardens162

(Food Production)

Vancouver is home to dozens of community gardens spread throughout the city. The City supports the gardens primarily by providing access to water and land, and maintaining a listing on the website. No formal community garden program exists, and gardens are run through non-profit groups. Currently, there are close to 1600 community garden plots, as well as 2750 community-shared plots that have been integrated in various development projects around the city. Unique to Vancouver, some community gardens have orchard (fruit tree) plots, where gardeners are responsible for a particular tree(s). Some also feature bee hives that are managed by a local group. 2010 Gardens by 2010

(Food Production)

On May 30, 2006, Vancouver City Councilors challenged Vancouver residents to establish 2010 new garden plots by January 1, 2010, as an Olympic legacy. As a result, many new garden spaces have been created and several new residential developments have incorporated community-shared urban agriculture spaces into their design. As of October 2009, the total new plots stood at 1,800, just shy of the goal. No additional staff or community funding was provided to support this initiative.

158

vancouver.ca/engsvcs/solidwaste/grownatural/pesticideUseBylaw.htm.

159

vancouver.ca/bylaws/9535c.PDF

160

vancouver.ca/commsvcs/guidelines/U002.pdf

161

vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/projects/gardencityhall.htm

162

vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/projects/gardencityhall.htm

City of Victoria Food System Discussion Paper

125

Community Orchards

(Food Production)

Several parks, mainly in East Vancouver, have community orchards. These are maintained by agreement with a community organization, and members of the public are free to harvest the fruit. Backyard and Home Composting 163

(Recovery)

The City provides composters and worm bins at a reduced cost to interested citizens, as well as providing composting information on the City’s website. Collection of Yard Trimmings164

(Recovery)

City of Vancouver has an automated yard trimmings collection service that has been in place since 2006. Participating residents are provided with wheeled carts that are emptied every second week. The service is supported by utility fees, the amount of which is determined by the size of the cart and the number time it is collected per year.

Community Partnerships Compost Hotline and Garden 165

(Recovery)

The City of Vancouver and Greater Vancouver Regional District fund City Farmer, a local urban agriculture organization that runs their Regional Compost Hotline, workshops and a demonstration organic garden.

Research Food Secure Vancouver Baseline Report166

(Food System-Wide)

A recent study prepared for the Vancouver Food Policy Council to address key questions around global food security and the implications for Vancouver’s urban food system. Vancouver Recovered Food Assessment167

(Recovery)

The Food Policy Council commissioned this study (also known as the Food Diversion Report), to identify opportunities & barriers for recovery, reuse, and recycling (composting) of food. The report assessed current community programs and identified a number of barriers and opportunities for action within the City’s jurisdiction. The Vancouver Food Security Assessment (2005) 168

(Food System-Wide)

Produced by a collaboration of academic and community researchers with the support of the City of Vancouver, this presents a baseline assessment of food security in Vancouver and

163

vancouver.ca/ENGSVCS/solidwaste/garbage/garbagetips.htm

164

vancouver.ca/ENGSVCS/solidwaste/yard/index.htm

165

vancouver.ca/ENGSVCS/solidwaste/garbage/garbagetips.htm

166

vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/tools/pdf/FoodSecure_Baseline.pdf

167

vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/tools/pdf/Food_Diversion.pdf

168

vancouver.ca/commsvcs/socialplanning/initiatives/foodpolicy/tools/pdf/vanfoodassessrpt.pdf

126

City of Victoria Food System Discussion Paper

provides recommendations for strengthening different elements of Vancouver’s urban food system. University – City Research

(Food System-Wide)

There is an annual collaboration with a senior-level UBC Agricultural Sciences undergraduate class to conduct neighbourhood-based food system studies, as well as regular internships for graduate Community and Regional Planning students. Graduate students from UBC and SFU have conducted research for the City on topics including: grocery store access, farmers market access, urban agriculture design and food system planning. Three Food Policy staff members have taught a graduate-level Food Policy and Planning class at UBC at different times.

City of Victoria Food System Discussion Paper

127

128

City of Victoria Food System Discussion Paper

APPENDIX 6 - PRIORITY MUNICIPAL OPPORTUNITIES TO EXPLORE & OPTIONS FOR IMPLEMENTATION The following table elaborates the list of initiatives for the City to explore listed in Section 8.3. In particular, this table presents options for different mechanisms and tools that could be used to implement a particular initiative. Each of these regulatory, policy and program tools listed could also be specifically identified as an OCP policy direction, or could be developed individually at another time. Table 2. Opportunities for Moving Forward: Identification of City –Led Opportunities for Strengthening Victoria’ Food System, including Implementation Mechanisms Key Opportunities to Explore

Options for Implementation (Tools & Mechanisms)

Description

Food Production Increase availability of home garden space

Creation of more community allotment gardens and plots

Sustainability Guidelines for Private Development

(Under development) Encourages developers to create gardens

Zoning bylaw amendment to Off-Street Parking

Examines parking requirements for buildings converted to multiple dwellings to identify opportunities for retaining yard space

Program: City of New Food Gardens Initiative

Municipal program encourages new allotment and private gardens, with specific target numbers and dates

Program: Annual Food Garden Awards

Encourages neighbours to learn from each other; showcases and recognizes citizen efforts

Policy: Community Gardens Policy

Re-examines Policy, with input from stakeholders, to clarify conditions of use, partnerships, tenure and City’s role

Density Bonusing

Leverages proximate or on-site garden plots from developers in exchange for more density

Program: Community Gardens Operational Support

City staff facilitates identification and securing of new sites, partnership agreements, provides some funding

Zoning Bylaw

Recognizes community gardens as permitted use on City lands (parks and possibly others) to give prominence and protection to gardens

City of Victoria Food System Discussion Paper

129

Key Opportunities to Explore

Options for Implementation (Tools & Mechanisms)

Description

Program: City of Food Gardens Initiative

Municipal program encourages new allotment and private gardens, with target numbers and dates

Expanded edible landscaping on public lands

Edible Landscaping Guidelines for the Public Realm

Specifies guidelines for incorporating food plants, shrubs and trees into public gardens, boulevards, sitting areas

Planting of fruit trees on City land, including parks

Community Orchards

Community groups enter into agreement with City to steward and maintain trees; fruit is available for anyone to harvest

Expanded street food vending

Business licences/ Zoning bylaw

Re-examines opportunity for food kiosks on public lands, including possibility of local restaurants owning food carts to avoid perception of competition

Encouragement of Hobby Beekeeping

Voluntary Guidelines

Outlines standards for design, maintenance and safety; guidelines are easier than changes to zoning bylaw

Protection of rural agricultural lands

Transfer of development rights

(An American concept that needs to be explored for BC context) Victoria permits increased density in exchange for protection of rural property from development

Regional Working Farm Trust Fund

Levy on new or redeveloping low-density construction projects for protection of regional working farms

Project:

Assessment of capability of agriculture, retail sector and home gardens to meet emergency food needs

Food Distribution Food included in emergency preparedness

Walkable food system amenities in every neighbourhood

130

Assessment of local food supply in case of emergency Program: Partnership agreement between retail food sector, farmers and Emergency Management Agency

Clarifies food contributions of each sector during emergency

Neighbourhood plans Transportation/Pedestrian Plan

Ensures that all residents have food stores, community gardens, markets and other services within walking distance

City of Victoria Food System Discussion Paper

Key Opportunities to Explore

Options for Implementation (Tools & Mechanisms)

Description

Creation of Year-Round Farmers Market space

Feasibility Study (underway) Capital Investment in Multi-Use Site

Results of current study can be used to determine next steps and potential tools, including capital investment, Density Bonusing, locating market on Parks land in new multi-purpose outdoor arcade

Advocacy

City supports other municipalities through advocacy efforts (e.g. lobbying province on meat processing regulations)

Neighbourhood Plan

Ensures that needs of food processors (e.g. coffee roasters, breweries, tofu manufacturers) are supported by land use regulations

Capital Investment/ Funding

Supports commercial kitchens and community processing equipment in public facilities

Advocacy

Supports small scale food processors efforts to lobby for relaxed and reasonable health regulations

Operational policy: Procurement policy

CRD-produced and processed foods AND healthy choices would be given precedence in menu selection for events and meetings

Food Processing Strengthening of food system infrastructure within region (primarily for food processing, but also other sectors)

Strengthening of small scale food processing infrastructure with Victoria

Food Distribution Serving more local food at City events and meetings

Includes City Hall, facilities and Victoria Conference Centre Recovery Better capture of organic wastes

Program: Redistribution of surplus organic materials from City operations

Surplus mulch and leaves from City operations could be available to community groups and private residents by prior arrangement

Program: Regional household organic waste collection

Expansion of current pilot project would share the benefits and costs across region

Program: support of commercial composting uptake

Work with CRD to encourage and/ or financially support organic waste collection in private sector

City of Victoria Food System Discussion Paper

131

Key Opportunities to Explore

Options for Implementation (Tools & Mechanisms)

Description

Food System-Wide Compilation of basic data on the food system

More stable funding for community food organizations

132

Project: Updated food system assessment

Provide current baseline data of food system statistics, trends and issues

Project: Inventory of food production lands

Identifies City lands with legal and physical potential to support food production; can be used as a first step in site identification

Targeted City grants for food initiatives

Annual operating or project grants for food initiatives; consideration should be given to multi-year funding in order to promote stability

City of Victoria Food System Discussion Paper

APPENDIX 7 - GLOSSARY Abattoir: A slaughterhouse, where animals are killed and processed into meat foods. Commercial Kitchen: A kitchen certified by the Health Authority that can be used to prepare and process foods for public sale. Community Allotment Garden: A parcel of land operated by volunteer members that is used for the production of produce, native plants, edible berries, food perennials and flowers for the personal use of its members. Membership provides access to garden plots or allotments on the parcel. Community Commons Garden: A parcel of land operated by volunteer members that is used for the production of produce, native plants, edible berries, food perennials and flowers for public use and consumption. Products can be harvested by anyone, and surplus is donated to food access programs. Consumption: Processes related the act of eating food, including health and nutrition, public health, cultural practices and eating establishments. CRD: Capital Regional District Distribution: The networks and processes that shape where food is moved and how it is accessed, including transportation, wholesaling, and outlets for such as stores, markets and food programs. Gleaning: The collection of leftover or surplus food from farmers’ fields, gardens or fruit trees. Farm Box Program: A partnership between consumers and producers in which consumers pay a set price to the farmer in the spring, essentially buying a share in the farm's anticipated harvest. In return, members receive a weekly box of the farm's produce throughout the season. Food Access Programs: Programs that provide free or low-cost food, often through government, charitable or non-profit organizations. Food Miles: The distance food is transported from the location its of production until it reaches the consumer. Food Policy: A decision, program or project that is endorsed by a government agency, business, or organization which effects how food is produced, processed, distributed, purchased, protected and disposed. Food policy operates at the global, national, provincial, regional, local and institutional levels. Food Policy Council: A de facto citizen advisory committees made up of food system professionals and citizens that report to local government and provide expertise and advice on the development of food-related policy and initiatives.

City of Victoria Food System Discussion Paper

133

Food Security: Food security exists when all citizens obtain a safe, personally acceptable, nutritious diet through a sustainable food system that maximizes healthy choices, community self-reliance and equal access for everyone. 169 Food Recovery: The diversion, use and recycling of surplus edible food from retailers, restaurants and institutions that would otherwise go to waste. Recovered food is often donated to food access programs. Food System: An interconnected network of practices, processes and places involved in feeding a population: producing processing, distributing, consuming and disposing of food and food-related items, and the inputs and outputs at each stage. Peri-urban Agriculture: Agriculture that takes place on the outskirts of cities, including the suburbs and countryside. Processing: The processes that convert raw food products into consumable food products, including slaughtering, cooking, drying, preserving, freezing, distilling and packaging. Production: The raising of the ‘raw products’ of the food system – fruits, vegetables, eggs, meat, milk, grains and other products- using a variety of methods. Waste Recovery: The reuse, disposal or transformation of the organic matter, nutrients, water, seeds, packaging and other components that are both outputs and inputs of a food system. Urban Agriculture: The range of activities involved in growing, raising, processing, marketing and distributing food and non-food products in an urban area. These activities include backyard gardens, community gardens, beehives, orchards, greenhouses, market gardens, livestock production (chickens and other animals) and even small-scale aquaculture, hydroponic greenhouses and closed-loop buildings. Urban Farm: A commercial urban agriculture operation. Urban Food System: A system in which the food production, processing, distribution, consumption and disposal of end products are integrated to enhance the environmental, economic, social and nutritional health of a particular community and place. 170 VIHA: Vancouver Island Health Authority

169

Public Health Services Authority. 2008. Community Food Assessment Guide. Accessed from www.phsc.ca, August 3, 2009.

170

Garrett, S. and G. Feenstra. 1999. Growing a Community Food System. Pullman, WA: Western Rural Development Center

134

City of Victoria Food System Discussion Paper