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Grocery Stores Grocery Stores: Neighborhood Retail or Urban Panacea? Exploring the Intersections of Federal Policy, Community Health, and Revitalization in Bayview Hunters Point and West Oakland, California By Renee Roy Elias A dissertation submitted in partial satisfaction of the requirements for the degree of Doctor of Philosophy in City and Regional Planning in the Graduate Division of the University of California, Berkeley Committee in charge: Professor Jason Corburn, Chair Professor Karen Chapple Professor Malo Hutson Professor Margaret Weir Fall 2013 Abstract Grocery Stores: Neighborhood Retail or Urban Panacea? Exploring the Intersections of Federal Policy, Community Health, and Revitalization in Bayview Hunters Point and West Oakland, California By Renee Roy Elias Doctor of Philosophy in City and Regional Planning University of California, Berkeley Professor Jason Corburn, Chair Throughout the nation, grocery retailers are reentering underserved communities amidst growing public awareness of food deserts and the rise of federal, state, and local programs incentivizing urban grocery stores. And yet, even with expanding research on food deserts and their public health impacts, there is still a lack of consensus on whether grocery stores truly offer the best solution. Furthermore, scholars and policymakers alike have limited understandings of the broader neighborhood implications of grocery stores newly introduced into underserved urban communities. This dissertation analyzes how local organizations and agencies pursue grocery development in order to understand the conditions for success implementation. To do this, I examine the historical drivers, planning processes, and outcomes of two extreme cases of urban grocery development: a Fresh and Easy Neighborhood Market (a chain value store) in San Francisco’s Bayview Hunters Point and the Mandela Foods Cooperative (a worker-owned cooperative) in Oakland’s West Oakland districts. Through a comparative institutional analysis, I find that both Fresh and Easy and Mandela Foods reflect distinctive neighborhood revitalization legacies, critical moments of institutional capacity building, localized versions of national policy narratives, and the role of charismatic leaders in grocery store implementation. While national narratives shape the rhetoric of urban grocery development, ultimately local context dictates how food access issues are defined, who addresses them, and how. These findings suggest that federal grocery incentive programs should: 1) maintain a broad framework that enables local communities to define food access problems and their solutions on a case-by-case basis, 2) encourage diverse solutions not limited to grocery stores and supermarkets, and 3) emphasize community reinvestment goals. 1 Table of Contents Table of Contents ........................................................................................................................... i Tables and Figures ....................................................................................................................... iv Acknowledgements ....................................................................................................................... v Prologue ......................................................................................................................................... 1 Chapter 1: Introduction ............................................................................................................... 3 I. Definition of terms ................................................................................................................... 4 A. Grocery Stores .................................................................................................................... 5 B. Food Deserts ....................................................................................................................... 6 C. Neighborhood Revitalization ............................................................................................. 6 II. Why study urban grocery stores? ........................................................................................... 7 A. Overview of urban grocery literature and debates ............................................................. 7 B. Contributions of this study ................................................................................................. 9 III. Case background / selection ................................................................................................ 10 A. Federal food access programs and the Bay Area [See Figure 1] ..................................... 10 B. Fresh and Easy, Bayview Hunters Point .......................................................................... 12 C. Mandela Foods Cooperative, West Oakland .................................................................... 14 IV. Research approach .............................................................................................................. 16 A. Methodology .................................................................................................................... 16 B. Analytical Framework ...................................................................................................... 17 V. Organization of chapters ...................................................................................................... 19 Chapter 2: Grocery Stores on an Urban Agenda: A Historical Review and Policy Analysis ..................................................................................................................... 21 Introduction ............................................................................................................................... 21 I. Grocery stores and the ideal neighborhood ........................................................................... 22 A. 19th and early 20th century utopian planning and the neighborhood ideal ....................... 22 B. Neo-traditional planning, mixed-use development, and the neighborhood ideal ............ 23 II. Grocery stores and neighborhood revitalization .................................................................. 24 A. The War on Poverty, CDCs, and neighborhood retail ..................................................... 24 B. Urban decline and the urban grocery gap on the federal agenda ..................................... 25 C. Grocery stores and the push for “inner city revitalization” .............................................. 27 III. Community food security and the federal food access agenda ........................................... 30 A. From community food security and food access on a policy agenda .............................. 30 B. Health disparities and food deserts ................................................................................... 33 C. Neighborhood and municipal responses to food deserts .................................................. 34 IV. Converging grocery store agendas: public health and neighborhood revitalization ........... 36 A. From food deserts to a federal policy agenda .................................................................. 36 B. Reactions to federal actions .............................................................................................. 39 Conclusion ................................................................................................................................ 40 Chapter 3: The Institutional Contexts of Neighborhood Revitalization in Bayview Hunters Point and West Oakland ............................................................................................................ 41 Introduction ............................................................................................................................... 41 i I. Wartime economic development and the military-industrial complex (1940s) .................... 41 A. Bayview Hunters Point: Shipbuilding and early trajectories of community and economic life ......................................................................................................................................... 41 B. West Oakland: Industrial growth, redevelopment, and community resistance ................ 43 II. Redevelopment as a response to deindustrialization (1950s) ............................................... 45 A. Bayview Hunters Point: Neighborhood change and redevelopment ............................... 45 B. West Oakland: The “Industrial Garden” and Urban Renewal ......................................... 46 III. Federal urban policy and the local response (1960s-1970s) ............................................... 47 A. Bayview Hunters Point: Experiments in community action ............................................ 47 B. West Oakland: Resident mobilizations around place ....................................................... 48 Conclusion ................................................................................................................................ 50 Chapter 4: The Convergence of Public Health and Retail Revitalization Agendas: The Case of Fresh and Easy Neighborhood Market, Bayview Hunters Point, San Francisco ............. 52 Introduction ............................................................................................................................... 52 I. Neighborhood revitalization and the rise of grocery stores as a local concern (1993-2004) 53 A. Planning practice, revitalization, and the focus on Third Street .....................................
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